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AMENDMENTS TO BEACH BY DESIGN 2001 REFERENCE FILE Final Agenda Item # Meeting Date: 04-19-01 /1~ /JlIMh1# If,l ,~~ AtJr t~ r"7 Amendments to the Clearwater Comprehensive Plan related to the adopted Beach by Design special area plan. MOTION: APPROVE text amendment to the Clearwater Comprehensive Plan and PASS Ordinance No. 6794-01 on first reading. ~L-'b \3 Clearwater City Commission Agenda Cover Memorandum SUbJECT/RECOMMENDA TION: o and that the appropriate officials be authorized to execute same. SUMMARY: On February 15, 2001, the Clearwater City Commission approved Beach by Design: A Preliminary Design for Clearwater Beach and Design Guidelines. This is a special area plan that designates a specific area of Clearwater Beach a Community Redevelopment District (CRD) and contains specific redevelopment strategIes. The plan recommends that the Comprehensive Plan be amended to support designation of Clearwater Beach as a CRD. In reviewing the Clearwater Comprehensive Plan, staff determined that existing objectives and policies regarding redevelopment and/or Clearwater Beach could be enhanced to better define the City's redevelopment strategies in general and specifically to support redevelopment of Clearwater Beach. The proposed ordinance contains amendments to the Future Land Use Element, Transportation Element, Coastal Management Element and Capital Improvements Element. Some objectives and policies were revised and some new ones were added. A summary of the amendments is as follows. · Future Land Use Element o Revised Objective 1.2 to allow maximum density of coastal areas to exceed the density permitted by the Countywide Future Land Use designation where allowed by Beach by Design. o Revised Objective 2.1 to encourage the redevelopment of substandard, inefficient and/or obsolete areas, in addition to blighted areas, through the implementation of special plans, the construction of catalytic private projects and city investment. o Revised Policies 2.1.1 - 2.1.7 by adding five new policies and renumbering existing policies. Policy 2.1.1 encourages redevelopment through the use of development incentives such as density bonuses and the use of transfer of development rights. Po/icy 2.1.2 was revised to encourage the renewal of the beach tourist district pursuant to Beach by Design. Policy 2.1.3 was revised to require the area governed by Beach by Design to be designated as a Community Redevelopment District on the Countywide Future Land Use map. Policy 2.1.4 was revised to speCify the three areas on Clearwater Beach that are eligible for the density pool of additional hotel rooms created by Beach by Design. Policy 2.1.5 was revised to require that the City track the allocation of units from the density pool permitted by Beach by Design. The remaining policies were renumbered. Reviewed ~ Legal ' Info Tech NA Budget NA Public NA Works Purchasing NA DCM/ACM - Rio '~gmt NA Other NA Originating Dept: Gina Clayton/Planning User Dept. Costs Total Planning o!Y Funding Source: Captlallmprovement Current FIscal Year Attachments Resolution No. 01-14 Operating Other Submitted by: ~ ~ Ci Mana er V Printed on recycled paper Appropriation Code: o None o Revised Policy 2.5.3 to require that pedestrian and bicycle improvements on Clearwater Beach . adhere to the policies and design guidelines of Beach by Design. o Added new 'Policy' 2.5.4 that requires a full evaluation of the arrival and distribution system on Clearwater Beach upon completion of the design of the new Memorial Causeway Bridge. ' o Added new Policy 2.5.5 that requires the evaluation of an intra-beach transit system on Clearwater Beach and to investigate potential funding sources. o Revised Policy 3.2.1 to permit allowable intensity standards established within plan categories to be exceeded when allowed by approved special area plans and redevelopment plans approved by the City Commission. Also added language to the plan classification chart to allow maximum density/intensity in the Resort Facilities High (RFH) designation to be as set for in Beach by Design. Transportation Element o Added new Objective 5.6 that requires the City to monitor seasonal traffic on Clearwater Beach and explore methods to address issues identified. o Added new Policy 5.6.1 that requires the City to evaluate the feasibility of traffic improvements on Clearwater Beach including investigating funding sources. . Coastal Manaqement Element . o Revised Policy 19.3.3 - 19.3.6. Revised 19.3.3 to encourage trolley service between Clearwater Beach, Sand Key, and the other Pinellas County barrier islands south of Sand Key. Revised 19.3.4 to require the city to investigate the feasibility of an intra-barrier island transit system on Clearwater Beach and to evaluate the potential funding sources. The remaining provisions were renumbered. o Added new Policy 19.3.10 that encourages the consolidation of parking facilities open to the public on Clearwater Beach. o Added new Policy 19.3.11 that encourages public/private partnerships to provide additional new parking on Clearwater Beach and to replace existing publiC surface parking west of South Gulfview Boulevard. o Revised Policy 19.6.1 that requires redevelopment proposals be reviewed for compliance with the Comprehensive Plan and other plans to include review of Beach by Design. o Revised Objective 21.3 to allow density to be increased in the coastal zone only as allowed in the Future Land Use Element. . Capital Improvements Element o Added new Policy 28.1.10 that gives priOrity to capital improvements associated with redevelopment plans and special area plans. The Community Development Board will review the proposed ordinance at its regularly scheduled meeting on April 17, 2001. Staff will report the Board's recommendation at the meeting. I I \\ 2 ~ COpy CITY OF CLEARWATER .. 'J'~~~ ~~'J"~?~~ ~ ~\Y I ,~""'l" .~~~ ,\ 1/ ':. ~ ':, ~~ ~ _ ,7 . III "iu-:. :,--=-. ~,iIl) ':.~\==- ,~ -:.?.4'\"'.... -=- "N' 't: ~r~~~~.,1~~\" ~~~Q~TH\J1'~J~11~' '~-4T Jl.DJ .. PlANNING DEPARTMENT POST OFFICE Box 4748, CLEARWATER, FLORIDA 33758-4748 MUNICIPAL SERVICES BUILDING, 100 SOUTH MYRTIE AVENUE, CLEARWATER, FLORIDA 33756 TELEPHONE (727) 562-4567 FAX (727) 562-4576 loNG RANGE PlANNING DEVELOPMENT REVIEW HOUSING DIVISION NEIGHBORHOOD SERVICES MEMORANDUM TO: City Commission ~ Ralph Stone, Planning :{lkff;,P April 19,2000 FROM: DATE: RE: Community Development Board Recommendation regarding Comprehensive Plan Amendments At the April 17, 2001 meeting, the Community Development Board unanimously approved with proposed amendments to the Comprehensive Plan in Ordinance No. 6794- 01 with the following change. The Board's proposed change is highlighted. ' Proposed Revised Policy 2.1.4-2 Renewal of the beach tourist district shall be encouraged through the establishment of distinct districts within Clearwater Beach, the establishment of a limited density pool of additional hotel rooms to be used in specified geographic areas of Clearwater Beach, enhancement of public rights-of-way, the vacation of public riehts-of-wav when appropriate. transportation improvements, inter-beach and intra-beach transit, transfer of development rights and the use of design guidelines, deyelopment 'Nithin innovatiye shared parking solutions, possible land acquisition, transportation impro'lements, and establishment of a community redeyclopment area or areas pursuant to Beach bv Design: A Preliminary Desiffn for Clearwater Beach and Design Guidelines. \ BRIAN J AUNGST, MAYOR-COMMISSIONER J B JOHNSON, VICE MAYOR-COMMISSIONER ED HART, COMMISSIONER * BOB ClARK, CDMMISSIONER F DAVID HEMERICK, COMMISSIONER "EQUAL EMPLOYMENT AND AFFIRMATIVE ACTION EMPLOYER" CDB Meeting Date: Case #: Agenda Item: April 17,2001 CPA 01-03-01 D4 CITY OF CLEARWATER PLANNING DEPARTMENT STAFF REPORT COMPREHENSIVE PLAN AMENDMENTS REQUEST: Comprehensive Plan Amendments Related to Beach by Design INITIATED BY: City of Clearwater Planning Department BACKGROUND INFORMATION: Clearwater Beach is a 543 acre barrier island bordered on the west by the Gulf of Mexico and on the east by Clearwater Harbor and the Intracoastal Waterway. Clearwater Beach has a north-south orientation and can be accessed from the mainland on the east by the Memorial Causeway or from the south by the Sand Key Bridge. Memorial Causeway and Pier 60 serve as the boundary between "North Beach" and "South Beach." According to the 1990 Census, Clearwater Beach is home to 3466 residents. Almost half of the island is used for residential purposes including single-family dwellings, townhouses, multi-family dwellings and condominiums. The remainder of the island is tourist oriented. There are approximately 3777 hotel and motel units ranging from "mom and pop" motels to several large hotel chains. Clearwater Beach also has a small commercial district north of Pier 60 along Mandalay Avenue, south of Pier 60 along Gulfview Boulevard and in Clearwater Pass. The City began discussing the need for a development plan for Clearwater Beach in 1991. A traffic study was conducted that year, however, no real planning efforts took place until 1996. At this time a parking feasibility study was conducted, as well as a redevelopment report regarding the South Mandalay area of Clearwater Beach. This redevelopment report garnered support among the City Commission to authorize a Request for Proposals to determine the need for a Community Redevelopment Area (CRA) on Clearwater Beach. In 1996 a consultant was selected and in 1997 the report was finalized which indicated that a portion of Clearwater Beach met the statutory requirements for CRA designation. Due to concerns about how such a designation would affect the perception of the beach, the Commission opted not to pursue the CRA. 1 During this time, concerns continued to be raised about the general physical conditions of ClealWater Beach and how tourist and market perceptions were changing due to the general lack of reinvestment in business properties, poor traffic and pedestrian circulation, parking and poor aesthetic conditions. The Beach continued to suffer from an inability to tap into the wave of economic and real estate expansion. Buildings that were appropriate and sufficient to cater to 1960s and 1970s visitors were viewed as worn out, too small and too functionally obsolete to meet the demands of today's travelers. Due to density and height restrictions on Clearwater Beach, large private-sector developers had not attempted redevelopment projects on the Beach, because they could not get the intensity of development that they believed necessary to justify costs. Residents, business owners, the City Commission and City Administration concluded that near-term action must occur to preserve the quality of life and business reputation of Clearwater Beach. In order to address these concerns, the City hired a consultant in 1997 to identify problems, desires and opportunities on ClealWater Beach, as well as to determine specific actions that would preserve and improve this unique urban barrier island. This process resulted in a strategic development plan for Clearwater Beach entitled "Clearwater Beach: Strategies for Revitalization." This planning process involved extensive public input. Three surveys were conducted of the three stakeholders on the beach - the beach property owners, beach visitors and hotel/motel owners/operators. Additionally, the Clearwater Beach Association, the ClealWater Beach Chamber of Commerce, and the Greater Clearwater Chamber of Commerce Beach Area Council hosted a series of public meetings. A two-day public design charette was also conducted as part of the process, as well as several other public meetings. This extensive public input process resulted in the development of a number of key issues and concerns. These ranged from basic code enforcement and maintenance issues to more complex redevelopment needs. Public services such as parking and transportation and public facilities such as recreation needs, public buildings and public safety locations were also identified as key issues. The Plan recommended twenty (20) projects to deal with the issues and opportunities identified, Many of the project ideas were formulated, discussed and critiqued at the public design charette and gained significant public support. The City continued its work on Clearwater Beach by hiring the consulting firm of Siemon and Larson to prepare a plan to implement the recommendations of Strategies for Revitalizatzon in light of fiscal and legal constraints, analysis of the economy and market, as well as changed conditions. Beach by Design: A Preliminary Deslgn for Clearwater Beach and Design Guidelines was presented to the City in September 2000. A total of thirteen (13) public meetings, including four (4) citywide public workshops were conducted. The City Commission adopted the plan on February 15, 2001. 2 Beach by Design sets forth a series of strategies for the revitalization of Clearwater Beach The plan includes six major components: . Land Use . Mobility · Off-street Parking . Catalytic Projects · Economic Feasibility and Financing, and . Design Guidelines Below is a brief discussion of each component of the plan. 1. Land Use. The boundaries for Beach by Design are generally located between Acacia Street to the north, the Sand Key Bridge to the south, and the Gulf of Mexico to the west and Clearwater Harbor to the east, excluding Devon Avenue and Bayside Drive. Beach By Design establishes the following eight (8) distinct districts within Clearwater Beach. Attached please find a map illustrating these districts. Below please find a brief description of the anticipated character of each district. · Old Florida - Low scale and intensity area of North Beach. Renovation and revitalization of existing improvements is anticipated. Densities in the area should generally be limited to existing densities. · Destination Resort - The preferred form of redevelopment is mixed with resort residential and hospitality uses fronting on the Beach and retail, restaurant and residential uses fronting on North Mandalay. · Marina Residential - Beach by Deszgn anticipates the redevelopment of this area into a marina based residential neighborhood with commercial uses permitted in specified locations and residential uses permitted between them. A public boardwalk is desired for this neighborhood between the Causeway and Mandalay with the potential development of a marina-based hotel on the Yacht Basin Apartment site. · Retazl and Restaurant - The Plan anticipates that this district will become a retail and restaurant district. It also stresses the need for a parking garage to accommodate anticipated commercial development in the District. 3 · Pier 60 - Additional beautification efforts are proposed for the area surrounding the Beach Roundabout. The area will continue to be a place of assembly on the Beach. · Small Motel District - Beach by Design envisions that this area will retain most of the existing buildings and be an area where renovations to existing improvements are made. The only exception is on Brightwater Drive, which is anticipated to redevelop with new townhomes and timeshares. · Beach Walk - Beach by Design proposes to redevelop S. Gulfview into a great beachfront promenade that will involve the removal of some parking west of Gulfview. This strategy has been identified as a way to stimulate the redevelopment of properties in this area. · Clearwater Pass District - Beach by Design contemplates this District will be an area of strategic revitalization and renovation in response to improving conditions in other areas of the Beach. 2, Mobility. The mobility element of Beach by Design focuses on the arrival and distribution of traffic, the need and desirability of alternative transportation modes including pedestrian, bicycle and intra-beach transit, transit between Downtown, and transit between Clearwater Beach and the other barrier islands. This section also discusses access rationing and the need for residential and guest priorities in such a system and the possibility of access rationing by controlled access lanes. Some of the specific improvements proposed by Beach by Design include: widening Coronado to a three lane section; relocating South Gulfview to the west of its current location to create Beach Walk which is a promenade, pedestrian way and bicycle path along traffic-calmed South Gulfview; road improvements on Mandalay; a continuous sidewalk system south of the Beach Roundabout; real sidewalks along North Mandalay; and an intra-beach transit system, Off-street parking is also identified as a key issue. Beach by Design proposes that at least two garages be constructed on Clearwater Beach when additional demand is generated by revitalization efforts. One garage is proposed to be located south of the Pier 60 Park and the other behind the Pelican Walk retail center. Additional garage sites were also identified on the west side of North Mandalay between Rockaway and Bay Esplanade, in the Clearwater Pass District and at the Clearwater Marina. 3. Catalytic Proiects Beach by Design proposes to designate the Beach a Community Redevelopment District on the Countywide Future Land Use Map. This would enable the City to transfer development rights within the plan area and deviate from existing density standards in 4 limited locations. In order to overcome economic constraints associated with beach redevelopment, the Plan proposes a small number of catalytic resort projects that would transform Clearwater Beach into a quality family resort community. In order to stimulate these "catalytic resort projects," the plan proposes to establish a limited pool of 600 additional hotel rooms that would be available in key locations on the Beach upon compliance with specific criteria. The pool would be available for five (5) years and would activate upon designation of the Community Redevelopment District. If the units were not used within that timeframe, they would cease to exist. 4. Economic Reality and Feasibility Beach by Design includes a section that estimates the public investment costs for all road, sidewalk and landscaping improvements proposed by the Plan, which is estimated to be approximately $12 million. The Plan proposes that a mix of existing City revenues such as Pennies for Pinellas and the city capital improvement program could finance the investments, as well as developer contributions, tax increment financing, grants and increases in ad valorem taxes as a result of new development. The Plan also recommends that the City seek federal funding for the capital costs of the intra-beach and beach access transit systems. 5. Design Guidelines Because Beach by Design involves private development and redevelopment, design guidelines have been included in the Plan to ensure that the City's design objectives will be met. The design guidelines section includes provisions that will guide the following: . Density . Building height . Building design, scale and mass . Setbacks . Street level facades . Parking areas . Sidewalks . Street fumi ture . Street lighting . Fountains, and . Materials and colors. ANALYSIS: 1. Future Land Use Element The existing Future Land Use Element includes policies regarding redevelopment in general, as well as redevelopment of the beach tourist area. Staff is proposing to make revisions to this element to expand and/or better define the City's redevelopment policies, 5 recognize Beach by Design, the special area plan approved for Clearwater Beach, designate Clearwater Beach as a Community Redevelopment District, create a limited density pool of additional hotel rooms for three specific areas on Clearwater Beach, and address transportation concerns regarding Clearwater Beach. Staff is proposing the following revisions. A. Proposal: Revise Obiective 1.2 as follows: Objective 1.2 - Population densities (included in the Coastal Management Element and the Future Land Use Map) in coastal areas are restricted to the maximum density allowed by the Countywide Future Land Use Designation of the property, except for specific areas identified in Beach by Design: A Preliminary Desif!n for Clearwater Beach and Desif!n Guidelines, and shall be consistent with the Pinellas County Hurricane Evacuation Plan and the Regional Hurricane Evacuation Plan and shall be maintained or decreased. Analysis: Redevelopment efforts can be assisted by significant improvements in the public domain; however, private investment does not always follow. Usually significant community redevelopment occurs only after one or two major projects have been constructed. These projects typically involve significant risk and their success is usually the reason why additional reinvestment is made throughout an area. Redevelopment opportunities on Clearwater Beach are constrained by the existing density limitation of 40 hotel units per acre. New resort development cannot justify the cost of demolishing income producing buildings and rebuilding at 40 rooms per acre. Depending on various factors, this cost is generally 2 to 4 times greater than the per room costs typically paid by quality resort developers. Beach by Design recognizes the need and value of attracting one or more quality resort developments to Clearwater Beach; however, it also acknowledges the reality that existing density limitations will preclude the construction of such "catalytic" projects. In order to attract the type of development that will help reposition Clearwater Beach as a family oriented quality resort community, Beach by DeSIgn establishes a limited pool of 600 additional hotel rooms which would be available for use in three locations on Clearwater Beach for a period of five (5) years from the time Clearwater Beach is recognized as a Community Redevelopment District. At the end of this time period, any unused units would cease to exist. Although this pool creates units that are not currently permitted, there will be no adverse impacts generated on the barrier island. In order to ensure that the type of "catalytic" projects desired is obtained and that impacts are minimized, the density pool can only be used for resort hotels and only if fourteen (14) criteria specified in Beach by DeSIgn are met. One criterion is particularly important when considering density increases in the coastal high hazard area. Beach by DeSIgn requires that a legally enforceable mandatory evacuation/hurricane covenant be established that requires any resort making use of the 6 density pool to close as soon as practical after a hurricane watch is posted by the National Hurricane Center. Destination resort hotels meeting this requirement will have an advantage over residential units when considering evacuation needs because no persons will be required to evacuate from one acre of land when a hurricane warning is posted, as opposed to 69 persons from one acre of land developed at the current permitted residential density of thirty (30) units per acre. Furthermore, destination resort rooms developed with the use of the density pool are limited to tenancies of thirty (30) days so that rooms cannot be used as residential units. The criterion prevents any resort making use of the density pool from generating permanent population in the coastal high hazard area. This provision reduces impacts on water and sewer consumption because hotel consumption rates are generally lower than residential rates. Decreased traffic is another benefit when comparing the impacts of destination resorts compared to residential development. Most guest travel to the resort and spend most of their time at the resort thereby resulting in a decrease in the number of trips generated on the local streets. Please refer to pages 42 - 46 of Beach by Design for additional analysis. B. Proposal: Revise Obiective 2.1 as follows: Objective - The redevelopment of blighted, substandard. inefficient and/or obsolete area~ shall be a high priority and promoted through the implementation of redevelopment and special area plans... afKi the construction of catalytic private projects. city investment. and continued emphasis on property maintenance standards. Analysis: The City of Clearwater experienced rapid growth during the 1960's and 1970's and is now a substantially built-out community. Regional trends indicate that people and business are attracted to outlying areas of the Tampa Bay metropolitan region. Although Clearwater has beautiful beaches and neighborhoods that attract people, it is apparent that the City needs to be proactive to keep Clearwater competitive in the regional market. Redevelopment is essential to maintain the health of Clearwater. Even though there are very few areas within Clearwater that could be considered blighted, there are many areas that are viewed as obsolete or inefficient III today's market. The City of Clearwater recognizes that it must plan for the future health and sustainability of these areas and must employ a variety of means in this endeavor. The proposed revision to Objective 2.1 supports a range of planning efforts including the use of special area plans, which have been used by the City of Clearwater and is supported by the regulatory scheme of the Pinellas Planning Council. The proposed amendments also support the construction of catalytic private projects that are generally needed to spur redevelopment, as well as city investment in public facilities. 7 C. Proposal: New and Revised Policies 2.1.1 - 2.1.7 as follows: New Policy: 2.1.1 Redevelopment shall be encouraged, where appropriate, by providing development incentives such as density bonuses for significant lot consolidation and/or catalytic proiects, as well as the use of transfer of development rights pursuant to approved special area plans and redevelopment plans. Analysis: Private redevelopment efforts do not always follow public investment; therefore, the use of development incentives may need to be used to stimulate private investment. In the past, the City of Clearwater has allowed higher densities through the community redevelopment district, as well as for significant consolidation with the boundaries of the Downtown Clearwater Periphery Plan, an adopted special area plan. Clearwater also permits the use of transfer of development rights within approved areas pursuant to the Rules Concerning the Administration of the Countywide Future Land Use Plan Rules established by the Pinellas Planning Council as well as the City's Community Development Code. The purpose of proposed Policy 2.1.1 is to recognize that in some circumstances redevelopment may need to be stimulated and the City should have the flexibility to creatively pursue redevelopment through a variety of techniques that includes the full range of development incentives. Revised Policy: 2.1.-1-2. Renewal of the beach tourist district shall be encouraged through the establishment of distinct districts within Clearwater Beach, the establishment of a limited density pool of additional hotel rooms to be used in specified geographic areas of Clearwater Beach, enhancement of public rights-of-way, transportation improvements, inter-beach and intra- beach transit, transfer of development rights and the use of design ~J'~/~guidelines" development ',vithin innovative shared parking solutions, ,tl()()~ ~ .....Ii possible land acquisition, transportation improvements, and establishment Vi; IJIL YI'tJ1'5 '-() of a community redevelopment area or areas pursuant to Beach hv f' i J 1!1lIJ(' Design: A Prelzminary Desifrn for Clearwater Beach and Design VV'. U Guidelines. Analysis: Renewal of Clearwater Beach is critical to the continued economic health of the City, The beach is an extraordinary natural resource and it is what draws potential residents, tourists, and a sizeable seasonal population to Clearwater. It is the heart of the tourist economy and its importance is also reflected in the amount of revenues the Beach contributes to the City's general fund. Clearwater Beach occupies less than one square 8 mile, which is 3% ofthe City's total land area; however it generates 12% of the total ad valorem tax revenues collected from the entire city. The purpose of the proposed amendment to Policy 2.1.2 is to expand the concept of a renewed tourist district. The existing policy supports design guidelines, shared parking, land acquisition, transportation and the establishment of a community redevelopment area. In light of the passage of Beach by Design, a special area plan, renewal of Clearwater Beach must be in compliance with the provisions of this adopted plan and the scope of this policy is being revised to reflect the major elements of the plan. Furthermore, the concept of shared parking already has been incorporated into the Community Development Code. The plan establishes eight distinct districts within the tourist area of Clearwater Beach based on locational, functional and desired characteristics. Depending on the vision for a district, development potential may be allowed to be in compliance with the existing provisions of the Tourist Zoning District. In some instances, however, development potential may actually be reduced due to the imposition of lower height limitations and a more narrow range of permitted uses (For example, see character of Marina Residential District, pages 11 - 12, Beach by Design.). This proposed revised policy acknowledges the creation of the additional density pool for resort hotel rooms. Due to the fact that resort development is constrained by the existing density limits of 40 units per acres, Beach by Design supports the use of a limited density pool to stimulate the construction of one or more destination resorts that will effectively reposition Clearwater Beach as a quality resort community. The construction of destination resorts will stimulate the revitalization and reinvestment of commercial property, as well as "mom and pop" motels, whereas it is unlikely that residential (condominium) development would have the same effect. The intensification of resort hotel uses on Clearwater Beach would also reduce travel demand and the amount of people that have to be evacuated in the event of a hurricane. Beach by Design also focuses on specific transportation improvements that should be pursued to improve the arrival and distribution system of the beach transportation network, the need to utilize alternative modes of transportation such as pedestrian and bicycle, as well as inter and intra-beach transit. The proposed revisions also support the use of transfer of development rights as a redevelopment tool within the area governed by Beach by Design. 9 New Policy: 2.1.3 The area governed by Beach bv Desi)!n: A Preliminary Design for Clearwater Beach and Design Guidelines shall be recognized on the CountyWide Future Land Use map as a Community Redevelopment District. This area is bounded on the north by the line dividing the block between Acacia Street and Somerset Street. the Gulf of Mexico on the west. Clearwater Harbor on the east and the Sand Key Bridge on the south, excluding Devon Avenue and Bayside Drive. Analysis: The Rules Concerning the Administration of the Countywide Future Land Use Plan permit special land use designations within Pinellas County to exceed density and intensity limitations established by the Countywide Future Land Use Plan. To be eligible for a special designation, an area must meet specific locational characteristics enumerated in the Countywide Rules and the local government must adopt a special area plan that governs development potential within the plan boundaries. The Pinellas Planning Council and the Countywide Planning Authority must also approve the special area plan and apply the special land use designation to the Countywide Future Land Use Map. Beach by Design is a special area plan adopted by the Clearwater City Commission that recognizes the area of Clearwater Beach described in proposed Policy 2.1.3 as a Community Redevelopment District (CRD). Section 2.3.3.8.4 of the Countywide Rules states that the purpose of the CRD is "to depict those areas of the County that are now designated, or appropriate to be designated, as community centers and neighborhoods for redevelopment in accord with a specific plan therefore." The locational requirements specify that the CRD classification is "designed to serve local retail, financial, governmental, residential, and employment focal points for a community; and to specified target neighborhoods designed to encourage redevelopment in one or a combination of uses as identified . . ." Clearwater Beach is a focal point of the community and Pinellas County. It is the heart of the City's tourist economy with 3777 hotel/motel units and is home to 3466 residents according to the 1990 Census. Numerous businesses are located throughout the entire redevelopment district and there are numerous city owned recreational facilities including a recreation center, swimming pool, boat ramp, ball fields, Pier 60 Park, as well as the City Marina. The area governed by Beach by Design has six different land use designations on the Clearwater Future Land Use Map and the Countywide Future Land Use Map including Residential High, Resort Facilities High, Commercial General, Institutional, Recreation/Open Space and TransportationlUtility. Beach by Deslgn only permits density increases beyond those currently in place through the use of the resort unit density pool, which is only permitted in three specific areas for a period of five (5) years. Proposed Policy 2.1.3 recognizes the Community Redevelopment District (CRD) created by Beach by Design in the Clearwater Comprehensive Plan policies and provides the 10 necessary regulatory link between Beach by Design, the Community Redevelopment District and the Countywide Future Land Use Plan. If the CRD special designation were to be applied to the City's Future Land Use Map, a significant number of properties would receive a new land use designation, however, existing development potential would not change. The only increased density allowed by Beach by Design is the additional resort units from the density pool that are limited to three areas for a period of five (5) years. The City is proposing to identify those areas within the policies of Clearwater Comprehensive Plan (see Proposed Policy 2.1.4). See pages 42 - 47 of Beach by Design for a more detailed analysis of the designation of Clearwater Beach as a Community Redevelopment District. New Policy: 2.1.4 The use of the density pool of additional hotel rooms established in Beach bv Desif!n: A Preliminary Desif!n for Clearwater Beach and Desif!n Guidelines is permitted in the following areas: 1. The property located on the east side of Mandalay Avenue north of Bavrnont Street known as the Yacht Basin apartment site: 2. The land located between Mandalay Avenue and the Gulf of Mexico between Bavrnont Street and Papaya Street: and 3. The land located south of the Pier 60 parking lot and north of the southerly lot lines of Lots 77 and 126 of the Lloyd- White-Skinner Subdivision between South Gulfview Boulevard and Coronado Drive. Analysis: Beach by Design, an adopted special area plan for a portion of Clearwater Beach, establishes the area as a Community Redevelopment District (CRD). This designation permits increased flexibility with regard to allowable density and intensity. Beach by Design establishes a density pool of 600 additional hotel rooms that can only be used if the proposed resort complies with the criteria established in the plan, is located within the area identified in the locations described in proposed Policy 2.1.4 and is approved by the Clearwater City Commission. The purpose of proposed Policy 2.1.4 is to limit the areas of Clearwater Beach that can apply for the use of the density pool. The plan does not support making the pool available to all 212.6 acres of the CRD. The areas eligible for the pool have been selected due to one or more of the following reasons: proximity to the dry sand beach; land assembly opportunities; proximity to Clearwater Harbor; or location relative to the proposed Beach Walk (improved South Gulfview Boulevard). 11 New Policy: 2.1.5 A tracking system for the allocation of units from the density pool permitted by Beach bv Design: A Preliminary Desif!fl for Clearwater Beach and Desif!n Guidelines will be established. administered and monitored by the Clearwater Planning Department. Analysis: In order to account for the use of the density pool of hotel units created by Beach by Design, the City Planning Department must track the allocation of units approved by the City Commission. The purpose of the proposed amendment is to ensure that the pool is administered properly and no more than the approved 600 units are actually allocated during the five (5) year life ofthe pool. Renumber Policies 2.1.2 through 2.1.7 with no change to the policy: 2.1.:2-2- 2.1~7 2.1.4-8 2.1.~ 2 2.1.6-10 2.1.111 Land use decisions in Clearwater shall support the expansion of economic opportunity, the creation of jobs, and maintenance of existing industries through establishment of enterprise zones, activity centers and redevelopment areas and by coordination with the Chamber of Commerce and Tourist Development Council. Downtown Clearwater, shall be designated a regional activity center suitable for increased threshold intensity for development consistent with the boundaries of the Central Business District as indicated in the Downtown Redevelopment Plan approved in 1995. The City shall continue to support and implement approved community redevelopment area plans, such as the Downtown Redevelopment Plan adopted in 1995. The City shall continue to review the boundaries of the downtown redevelopment district to determine whether boundary adjustments are needed. Clearwater will continue to support the tax increment financing program and redevelopment efforts of the downtown area through activities of the economic development office and actions of the City Commission as the Community Redevelopment Agency. The City of Clearwater will continue to promote infill development and the removal of blight through the Unsafe Structures Program. 12 Analysis: Existing policies 2.1.2 - 2.1.7 must be renumbered to accommodate the additional policies added to this section. No changes are made to any ofthese policies. D. Proposal: Revise Policy 2.5.3 as follows: 2.5.3 All proposed development/redevelopment initiatives shall be reviewed for opportunities to improve pedestrian and bicycle access. On Clearwater Beach. pedestrian and bicycle improvements should adhere to the policies and design guidelines set forth in Beach bv Design: A Preliminary Design for Clearwater Beach and Desif!n Guidelines. Analysis: An important aspect to improving the quality of life in Clearwater is to improve pedestrian and bicycle access throughout the City. The existing Policy 2.5.3 supports this concept. Beach by Design, the adopted special area plan for Clearwater Beach discusses alternative modes of transportation for Clearwater Beach. It specifically describes the "hostile" pedestrian environment there and the need to develop a pedestrian system in order to reduce traffic on the Beach. Beach by Design recommends providing a continuous sidewalk system and imposes sidewalk width standards for different areas within the Community Redevelopment District (CRD). An important component of repositioning Clearwater Beach as a tourist destination is the improvements recommended for South Gulfview Boulevard, south of Pier 60 in Beach by Design. This major project, known as Beach Walk, proposes to transform South Gulfview into a great beachfront place. It is a major component of the redevelopment strategy for Clearwater Beach and is located within one of the areas identified as eligible for the density pool of additional resort units. Beach Walk would relocate South Gulfview from the existing right-of-way to the west where existing surface parking lots are located practically on the beach. The existing right-of-way would be vacated and given to the property that fronts on South Gulfview, thereby adding significant amounts of land to small parcels that would otherwise have very limited redevelopment opportunities. Beach Walk would be a two-way two-lane roadway and include a 30-foot wide pair of pathways along the western edge of the alignment - one for pedestrian and the other for bicycles and roller bladers. The eastern half of the existing right-of-way is proposed to turn into a promenade with sidewalk cafe seating and other sidewalk activities. Beach Walk would not only result in a major pedestrian improvement, but would also create a drive with a real view of the Beach and the Gulf of Mexico. A more detailed description and analysis of this project can be found on pages 48 - 52 of Beach by Design. 13 E. Proposal: Add Policy 2.5.4 as follows: 2.5.4 The City shall fully evaluate the arrival and distribution of traffic on Clearwater Beach upon completion of the design of the new Memorial Causeway Bridge. Anal ysis: Clearwater Beach is the heart of the City's tourism economy. It is a small barrier island that is very urban in nature and has very limited access to and from the mainland and a very limited street network to provide island wide transportation. Due to the large number of residents, visitors, and businesses owners and employees all competing to get on the island, at times there are significant traffic delays. Particularly during peak periods, traffic backups extend several miles to the east. The City has committed to replacing the existing Memorial Causeway Bridge connecting the mainland with Clearwater Beach, which will have a better level of service than the existing bridge. The purpose of the proposed Policy 2.5.4 is to recognize that traffic to and within Clearwater Beach needs to be improved and the City must fully evaluate the existing network so that any needed improvements can be coordinated with the construction of the new bridge. F. Proposal: Add Policy 2.5.5 as follows: 2.5.5 The City shall evaluate the potential for an intra-beach transit system on Clearwater Beach and investigate potential funding sources. Analysis: The purpose of proposed Policy 2.5.5 is to require further evaluation of the potential for an intra-beach transit system that was introduced in Beach by Design (pages 30 - 33). This is a potential long-term solution to reducing the number of intra-barrier island trips. This option requires fuller evaluation to determine the potential route, cost and benefits of such a system, as well as to identify possible funding sources for such a costly transit proposal. G. Proposal: Revise Policy 3.2.1 as follows: 3.2.1 Land Uses on the Comprehensive Land Use Plan Map shall generally be interpreted as indicated in the following table. The intensity standards listed in the table (FAR - floor area ratio; ISR - impervious surface ratio) are the maximum allowed for each plan category. except where otherwise permitted by special area plans or redevelopment plans approved by the City Commission. Consequently, individual zoning districts, as established by the City's Community Development Code, may have more stringent intensity standards than those listed in the table but will not exceed the maximum allowable intensity of the plan category. unless otherwise permitted by approved special area plans or redevelopment plans. 14 PLAN PRIMARY USES MAX. DENSITY/ CONSISTENT CLASSIFICATION PER PLAN INTENSITY PER ZONING CATEGORY PLAN CATEGORY DISTRICTS ***** ***** ****** ***** Resort Facilities High Density 30 Dwelling Units Per Tourist (T) High (RFH) Residential/Overnight Acre; FAR 1.2; ISR High Density Accommodations .95; Overnight Residential Accommodations/50 (HDR) UP A; and as set forth Commercial (C) in Beach bv Design: A Preliminary Design for Clearwater Beach and Desif!n Guidelines. the special area plan governing Clearwater Beach adopted by Ordinance No. 6689-01. ***** ***** ***** ***** Analysis: The proposed revisions to Policy 3.2.1 permits an exception to permitted intensities and densities in the event that the City Commission adopts a special area plan or redevelopment plan. Since Clearwater is a built-out community that must compete in a growing regional market, it must have flexibility to increase density and intensity as a redevelopment tool. The City Commission can only permit any increases through adoption of a special area plan or redevelopment plan, which would include an analysis of such increases on existing infrastructure. The proposed revision to the maximum density/intensity chart for the Resort Facilities High land use category chart permits increases in development potential pursuant to Beach by Design, the special area plan adopted by the City Commission for portions of Clearwater Beach. The plan actually governs land within several plan categories; however, the only density increase supported by the plan is the density pool of 600 additional resort units available only within several defined areas. Redevelopment opportunities on Clearwater Beach are constrained by the existing density limitation of 40 hotel units per acre. New resort development cannot justify the cost of demolishing income producing buildings and rebuilding at 40 rooms per acre. Depending on various factors, this cost is generally 2 to 4 times greater than the per room costs quality resort developers typically pay. Beach by Design recognizes the need and value of attracting one or more quality resort developments to Clearwater Beach; however, it also acknowledges the reality that existing density limitations will preclude 15 the construction of such "catalytic" projects. In order to attract the type of development that will help reposition Clearwater Beach as a family oriented quality resort community, Beach by Design establishes this density pool for a period of five (5) years from the time Clearwater Beach is recognized as a Community Redevelopment District. At the end of this time period, any remaining units from the pool would cease to exist. Although this pool creates units that are not currently permitted, there will be no significant adverse impacts generated on the barrier island. In order to ensure the type of "catalytic" projects desired is obtained and impacts minimized the density pool can only be used for resort hotels and only if fourteen (14) criteria are met. One criterion is particularly important when considering density increases in the coastal high hazard area. It requires that a legally enforceable mandatory evacuation/hurricane covenant be established that requires the resort to close as soon as practical after a hurricane watch that includes Clearwater Beach is posted by the National Hurricane Center. Destination resort hotels meeting this requirement will have an advantage over residential units when considering evacuation needs because no persons are required to evacuate from one acre of land improved with a destination resort when a hurricane warning is posted, as opposed to 69 persons from one acre of land developed at the current permitted residential density of thirty (30) units per acre. 2. Transportation Element The Transportation Element of the Comprehensive Plan does not address the existing traffic congestion on Clearwater Beach. Staff is proposing to add one new objective and one new policy that recognize the seasonal traffic problems on the beach as well as the need to determine the feasibility of solutions. The following amendments are proposed to the Transportation Element of the Clearwater Comprehensive Plan. A. Proposal: Add Obiective 5.6 as follows: 5.6 Obiective - The City shall monitor seasonal traffic on Clearwater Beach and explore methods to address any issues identified. Analvsis: Due to the increases in traffic on Clearwater Beach during peak tourist season and also when the weather is favorable, the City needs to monitor the amount of traffic accessing the beach as well as how traffic navigates the beach after it arrives. The City needs to determine alternative means to handle this increased traffic. During peak season, various groups are competing for access to the Beach - business owners and employees, beach residents and beach visitors. An evaluation of various alternatives such as access rationing, mainland side express bus service, intra-beach and inter-barrier island transit, increased pedestrianism, etc. should be researched to determine which methods will best address the traffic issues identified. 16 B. Proposal: Addition of Policy 5.6.1 5.6.1 The City shall evaluate the feasibility of traffic improvements on Clearwater Beach, as well as investigate funding sources for such improvement. Analysis: Traffic is mainly an issue on Clearwater Beach during peak tourist season. However, improvements should be made to help traffic flows all year round throughout the island. Policy 5.6.1 is proposed to support the investigation and evaluation of alternative traffic improvements and the feasibility of such improvements. Consideration should be given to maintaining and/or improving levels of service, preserving accessibility to commercial and residential areas and remedying safety or operational problems. Transportation improvements geared toward enhancing the economic development potential of Clearwater Beach should also be considered. Any improvements determined to be feasible will require city expenditure to implement. Policy 5.6.1 proposes that possible funding sources be researched so that the burden of such improvements does not fall totally on the city's capital improvement budget. 3. Coastal Management Element Due to the fact that numerous vehicles visit the city's coastal areas on a daily basis, transportation and parking must be considered coastal management issues. Amendments are being proposed to the Coastal Management Element of the Clearwater Comprehensive Plan to encourage increased transportation service to the beach and between the barrier islands and to determine if an intra-beach transit system is feasible and affordable. The following revisions are proposed. A. Proposal: Revise Policies 19.3.3 - 19.3.6 as follows: New Policy: 19.3.3 The City encourages trolley service between Clearwater Beach, Sand Key and the Pinellas County barrier islands located to the south of Sand Key. Analysis: Existing Policy 19.3.3 encourages trolley service from the mainland to Clearwater Beach. In order to address travel between the City's barrier islands, as well as those beach communities to the south of the City, revised Policy 19.3.3 focuses on a way to reduce the amount of traffic arriving and departing from Clearwater Beach. According to the Metropolitan Planning Organizations 2000 Level of Service Report, the number of average daily trips on the roadway segments connecting the barrier islands range from 12,793 to 21,644. Reducing the number of car trips through any alternative mode of 17 transportation on these small land areas will help reduce congestion and pollution thereby improving the quality of life. The Pinellas Suncoast Transit Authority (PST A) recently established trolley service connecting Sand Key, which is adjacent to Clearwater Beach to the south, and Pass-A- Grill, the mostly southerly beach community in Pinellas County. Beach by Design recommends that the City work with PST A to extend this transit route to Clearwater Beach. If this link can be established, residents and visitors could use public transit to travel to all of the other Pinellas County barrier island communities. In addition to reducing the number of trips generated along the main thoroughfares connecting these communities, tourism within the County could be enhanced. New Policy: 19.3.4 The City shall investigate the feasibility of an intra-barrier island transit system on Clearwater Beach and evaluate potential funding sources for such a system. Analysis: In an attempt to reduce congestion on Clearwater Beach, Beach by Design suggests that an intra-beach transit system be integrated into the Beach Walk improvements. The Beach Walk project would relocate South Gulfview from the existing right-of-way to the west where existing surface parking is located on gulf-front property. Beach Walk is proposed to be a two-way two-lane roadway, which includes a 30-foot wide pair of pedestrian and cyclist trails on the west and a dedicated area for a fixed transit guideway system on the east. The purpose of such a system on Clearwater Beach would be to carry passengers between public parking areas and commercial areas between North Beach and South Beach. Beach by Design supports the use of a fixed guideway system for several reasons. The major reason is that such systems keep transit separate from the traffic. This enables fixed transit to be timely because its schedule is not affected by the amount of traffic on the roadways. It can maintain its published schedule no matter how much traffic is on the roads. This benefit encourages the use of the system and its use will ultimately eliminate trips that would otherwise be made on the roadways. A fixed guideway system is also beneficial because pedestrians mix better with transit when it operates in a defined area. Due to the difficulty and cost of developing such a system in a built-out area, the purpose of proposed Policy 19.3.4 is to support further review of a fixed guideway system and to determine the costs and benefits of such a system. See pages 30 - 33 in Beach by DeSIgn for additional information. 18 Renumber Policies 19.3.3 through 19.3.6 with no change to any of these policies: 19.3.~~ The City encourages trolley service from the mainland to Clearwater Beach. 19.3.4-Q The City in conjunction with the Florida Department of Transportation should replace the Memorial Causeway Bridge and pursue the addition of dedicated bicycle lanes. 19.3.~1 The City shall continue to encourage private ferry service from Clearwater Beach to the Clearwater mainland. 19.3.6~ The City shall retain all existing public access areas. Analysis: Existing policies 19.3.3 - 19.3.6 must be renumbered to accommodate the additional policies added to this section. No changes are made to any ofthese policies. B. Proposal: Add Policy 19.3.9 as follows: 19.3.9 The City encourages the consolidation of public surface parking facilities into structured facilities open to the public on Clearwater Beach. Analysis: There are a total of 695 surface parking spaces located on the west side of South Gulfview south of Pier 60. These valuable parking spaces located on publicly owned beachfront property provide convenient access to the beach but greatly compromise the natural beauty of Clearwater Beach. The parking obscures the view of the Gulf and precludes the use ofthis property from any public pedestrian and/or recreational uses. The City acknowledges that the number of existing parking spaces is needed to accommodate the public, and when Clearwater Beach is revitalized more may be needed. However, the City must balance the need for parking with the need of providing an attractive public amenity along the Gulf of Mexico. The purpose of proposed Policy 19.3.9 is to recognize the need to find another location for a portion or all ofthese spaces. The probability of purchasing enough land to replace these spaces with another surface lot is not great, nor is it desirable. Structured parking is the most attractive and realistic alternative. Proposed Policy 19.3.9 also implies that as an alternative, the private sector may also provide structured parking open to the public in the event it is not economically feasible for the City to provide such new facilities 19 C. Proposal: Add Policy 19.3.10 as follows: 19.3.10 Public/private partnerships are encouraged to provide additional new parking on Clearwater Beach and to replace existing public surface parking west of South Gulfview Boulevard. Analysis: In most redevelopment situations, public/private partnerships are valuable endeavors. Improvements such as parking are usually needed to aid redevelopment efforts, however, they are very costly. Due to the significant cost of acquiring beach property, which more than likely includes income-producing improvements, may be very difficult for the City to afford. Additionally, the City would also have to fund the construction of a parking facility, which is also significant. The City. recognizes that there may be opportunities to work with the private sector to provide new parking spaces as redevelopment occurs. Proposed Policy 19.3.10 also encourages the replacement of a portion or all of the 695 public surface parking spaces on the west side of South Gulfview Boulevard fronting the Gulf of Mexico. These parking spaces provide convenient access to the beach but greatly compromise the scenic qualities of Clearwater Beach. The parking obscures the view of the Gulf and precludes the use of this property from any public pedestrian and/or recreational uses. The relocation of some of these existing parking spaces will also make the construction of Beach Walk, a catalytic project recommended in Beach by Design, possible. See pages 48 to 52 in Beach by Design for additional information regarding Beach Walk. D. Proposal: Revise Policy 19.6.1 as follows: 19.6.1 Redevelopment proposal and plans shall be reviewed for compliance with the goals, objectives and policies of the Comprehensive Plan and other appropriate plans including Beach bv Design: A Preliminary Desir!n for Clearwater Beach and Design Guidelines and the City's NFIP Community Rating System Floodplain Management Plan. Analysis: The proposed revision to Policy 19.6.1 is needed to recognize the existence of Beach by Design and to require that redevelopment proposals located within the Community Redevelopment District on Clearwater Beach comply with the provisions of this special area plan. Even though the plan was adopted by ordinance and compliance with the document is required, the proposed revision acknowledges it use as part of the City's coastal management strategies. 20 4. Capital Improvements Element Due to the fact that special area plans and redevelopment plans typically recommend public investment in infrastructure, those improvements should be given priority in the budgeting process. One amendment is proposed to the Capital Improvements Element to accomplish this. A. Proposal: Add Policy 28.1.10 as follows: 28.1.10 The City recognizes the value and will prioritize capital improvements associated with redevelopment plans and special area plans. Analysis: When reviewing the eXIstmg objectives and policies of the Capital Improvements Element, there is no recognition ofthe importance of capital improvements recommended by redevelopment plans and special area plans. Since redevelopment is a key element in the City's comprehensive planning efforts, this should be reflected in the City's capital budgeting process. Redevelopment plans and special areas plans guide redevelopment and in many instances redevelopment strategies involve investment in city-owned infrastructure. These plans are adopted by the City Commission as policy and therefore must be considered when prioritizing projects in the capital improvements budget. ST ANDARDS FOR REVIEW Pursuant to Community Development Code Section 4-603(F) no amendment to the Comprehensive Plan shall be approved unless it complies with the following standards: 1. The amendment will further implementation of the comprehensive plan consistent with the goals, policies and obiectives contained in the plan. The proposed amendments to the Clearwater Comprehensive Plan further refines the City's redevelopment policies and incorporates important elements of Beach by DeSIgn, the special area plan approved for Clearwater Beach. The proposed amendments are consistent with the existing goals, policies and objectives contained in the plan and actually expand the city's long range planning policies related to redevelopment in general and particularly on Clearwater Beach. 2. The amendment is not inconsistent with other provisions ofthe comprehensive plan. The proposed amendments are consistent with the provisions of the comprehensive plan. They broaden the City's approach to redevelopment and gain consistency between the Comprehensive Plan and Beach by Design, the adopted special area plan for Clearwater Beach. 21 3. The available uses, if applicable to which the property may be put are appropriate to the property in questions and compatible with existing and planned uses in the area. The proposed amendments to the Clearwater Comprehensive Plan do not make any changes to permitted uses. The policies related to Beach by Design create a Community Redevelopment District for Clearwater Beach. The plan only allows uses that are currently permitted by the Tourist Zoning District. It also creates incentives to stimulate destination resort development, which is compatible with existing permitted uses on Clearwater Beach. 4. Sufficient public facilities are available to serve the property. The provision establishing the density pool of 600 additional resort units permitted by Beach by Design has been analyzed and it has been determined that existing sewer; water and transportation capacity can accommodate this pool. It is estimated that sewage discharge from the 600 resort hotel room will average 0.09 MGD. The Marshall Street Plant has a permitted capacity of 10 MGD and current average flow into this plant is 6.1. The sewage flows generated by the proposed density pool will not exceed the capacity of the plant and represent a very small increase in flow that the plant's current capacity can easily serve. The City of Clearwater purchases water from Pinellas County as well as draws from the City's wellfield. The Southwest Florida Water Management District permit allows the City to withdraw 6.25 MGD from the City's wellfield. Currently, the City uses 3 MGD but is currently expanding this to 5 MGD. An additional 600 resort rooms will generate approximately 120,000 GPD, which is 0.09 MGD; therefore, the City has capacity to accommodate these additional 600 units. The amount of increased water usage is minimal and within potable water capacities. With regard to traffic impacts, DKS Associates has supplemented their 1998 Beach traffic study and incorporated the proposed elements of Beach by Design including the pool of 600 additional resort rooms, new parking facilities, the construction of Beach Walk and the Coronado Drive improvements. Projections of future traffic volumes consistent with these proposals have been evaluated and it has been determined that no reductions will occur to current levels of service found throughout Clearwater Beach. Consideration should also be given to the fact that Beach by Design imposes lower height limitations than currently permitted in the Tourist Zoning District for several use districts. These limitations will actually result in decreased development potential on Clearwater Beach, which will have a positive impact on public facilities. The proposed amendments supporting monitoring and analysis of beach traffic, the need for improvements to improve traffic flow, inter-barrier island and intra-barrier island transit should also help reduce traffic congestion and eliminate trips from the existing roadways. 22 5. The amendment will not adversely affect the natural environment. The proposed amendments will not adversely affect the natural environment. Beach by Design governs areas that are already developed and the plan does not allow any increases in the permanent population in the coastal high hazard area. No amendments are proposed which change current environmental policies. Any redevelopment that occurs as a result of the proposed amendments must comply with impervious surface ratio, drainage, and water quality and transportation standards. No proposals contained in these amendments would alter the existing natural environment. 6. The amendment will not adversely impact the use of property in the immediate area. The purpose of the proposed amendments related to redevelopment in general and those associated with Beach by Design are to positively impact the use of property. The policies related to monitoring seasonal traffic congestion on the Beach, seriously exploring fixed guideway transit on the beach and transit options to link Clearwater Beach with the other Pinellas County barrier islands, relocating unsightly surface parking on the Gulf of Mexico, and requiring public improvements outlined in redevelopment plan are all policies which strive to improve the City of Clearwater and actually benefit property. SUMMARY AND RECOMMENDATION: The proposed amendments to the Clearwater Comprehensive Plan further refines the City's redevelopment policies, recognizes the adoption of Beach by Design, creates a Community Redevelopment District for portions of Clearwater Beach, articulates the need to analyze traffic issues on Clearwater Beach and find solutions to those issues, supports the relocation of public parking from gulf-front property, encourages alternative modes of transportation on Clearwater Beach, supports public/private partnerships to provide public parking on Clearwater Beach and supports integrating improvements proposed by special area plans into the capital improvement budget process. These proposed amendments further the goals and many objectives already included in the Comprehensive Plan. The Planning Department Staff recommends APPROV AL of the amendments to the Clearwater Comprehensive Plan. Prepared by: Gina L. Clayton ~ ATTACHMENT: Ordinance No. 6794-01 Beach by Design Land Use Districts Map 23 ~ ORDINANCE NO. 6794-01 AN ORDINANCE OF THE CITY OF CLEARWATER, FLORIDA, AMENDING THE COMPREHENSIVE PLAN OF THE CITY AS ADOPTED ON MAY 18, 2000, INCLUDING AMENDMENTS TO THE FUTURE LAND USE ELEMENT, TRANSPORTATION ELEMENT, COASTAL MANAGEMENT ELEMENT, AND CAPITAL IMPROVEMENTS ELEMENT, RELATED, BUT NOT LIMITED TO, RENEWAL OF THE BEACH TOURIST DISTRICT PURSUANT TO BEACH BY DESIGN, PEDESTRIAN AND BICYCLE IMPROVEMENTS ON CLEARWATER BEACH, TRANSPORTATION ON CLEARWATER BEACH, PERMITTED DENSITY OF THE RESORT FACILITIES HIGH LAND USE PLAN CLASSIFICATION, INTRA-BARRIER ISLAND TRANSIT, PARKING ON CLEARWATER BEACH, AND CAPITAL IMPROVEMENTS ASSOCIATED WITH ADOPTED SPECIAL AREA PLANS; MAKING CHANGES RELATED TO THE ADOPTED BEACH BY DESIGN SPECIAL AREA PLAN; AND PROVIDING AN EFFECTIVE DATE. WHEREAS the Local Government Comprehensive Planning and Land Development Regulation Act of Florida empowers and requires the City Commission of the City of Clearwater to plan for the future development and growth of the City, and to adopt and periodically amend the Comprehensive Plan, including elements and portions thereof; and WHEREAS, the economic vitality of Clearwater Beach is a major contributor to the economic health of the City overall and redevelopment to the Beach is required for its future sustainability; and WHEREAS, the City of Clearwater invested significant time and resources in studying Clearwater Beach and conducted numerous public meetings; and WHEREAS, the City Commission approved Ordinance Number 6689-01, which adopted a special area plan governing Clearwater Beach entitled Beach by Design: A Preliminary Design for Clearwater Beach and Design Guidelines on February 15, 2001; and WHEREAS, amendments to the Comprehensive Plan of the City have been prepared in accordance with the applicable requirements of law, after conducting the appropriate planning analysis, and public participation through public hearings, opportunity for written comments, open discussion and the consideration of public and official comments; and WHEREAS, the Community Development Board, serving as the designated Local Planning Agency for the City, has held a public hearing on the proposed amendments and has recommended adoption of the proposed Comprehensive Plan amendments; and Ordinance No. 6794 -01 ;,; WHEREAS, the proposed amendments have been transmitted to the Florida Department of Community Affairs for review and comments, and the objections, recommendations and comments received from the Florida Department of Community Affairs have been considered by the City Commission, together with all comments from local regional agencies and other persons, in preparing the final draft of the amendments; and WHEREAS, the City Commission finds it necessary, desirable and proper to adopt the amendments to the objectives and policies of the Comprehensive Plan in order to reflect changing conditions; now, therefore, BE IT ORDAINED BY THE CITY COMMISSION OF THE CITY OF CLEARWATER, FLORIDA: Section 1. The Future Land Use Element of the Clearwater Comprehensive Plan is hereby amended by revising Objective 1.2 as follows: 1.2 Objective - Population densities (included in the Coastal Management Element and the Future Land Use Map) in coastal areas are restricted to the maximum density allowed by the Countywide Future Land Use Designation of the property. except for specific areas identified in Beach bv DesiGn: A Preliminary DesiGn for Clearwater Beach and DesiGn Guidelines. and shall be consistent with the Pinellas County Hurricane Evacuation Plan and the Regional Hurricane Evacuation Plan and shall be maintained or decreased. Section 2. The Future Land Use Element of the Clearwater Comprehensive Plan is hereby amended by revising Objective 2.1 as follows: 2.1 Objective - The redevelopment of blighted. substandard. inefficient and/or obsolete area~ shall be a high priority and promoted through the implementation of redevelopment and special area plans~ aM the construction of catalytic private projects. city investment. and continued emphasis on property maintenance standards. Section 3. The Future Land Use Element of the Clearwater Comprehensive Plan is hereby amended by revising Policies 2.1.1 - 2.1.7 as follows: 2.1.1 Redevelopment shall be encouraqed. where appropriate. by providinq development incentives such as density bonuses for siqnificant lot consolidation and/or catalytic proiects. as well as the use of transfer of development riqhts pursuant to approved special area plans and redevelopment plans. 2 Ordinance No. 6794-01 ~ 2.1.4-2 2.1.3 2.1.4 2.1.5 2.1.&2- Renewal of the beach tourist district shall be encouraged through the establishment of distinct districts within Clearwater Beach. the establishment of a limited density pool of additional hotel rooms to be used in specified qeoqraphic areas of Clearwater Beach. enhancement of public riqhts-of-way. transportation improvements. inter-beach and intra- beach transit. transfer of development riqhts and the use of design guidelines, development 'Nithin innovative shared parking solutions, possible land acquisition, transportation improvements, and establishment of a community redevelopment area or areas pursuant to Beach bv DesiGn: A Preliminary DesiGn for Clearwater Beach and DesiGn Guidelines. The area qoverned by Beach bv DesiGn: A Preliminary DesiGn for Clearwater Beach and DesiGn Guidelines shall be recoqnized on the Countywide Future Land Use map as a Community Redevelopment District. This area is bounded on the north by the line dividinq the block between Acacia Street and Somerset Street. the Gulf of Mexico on the west. Clearwater Harbor on the east and the Sand Key Bridqe on the south, excludinq Devon Avenue and Bayside Drive. The use of the density pool of additional hotel rooms established in Beach bv DesiGn: A Preliminary DesiGn for Clearwater Beach and DesiGn Guidelines is permitted in the followinq areas: 1. The property located on the east side of Mandalay Avenue north of Baymont Street known as the Yacht Basin apartment site; 2. The land located between Mandalay Avenue and the Gulf of Mexico between Baymont Street and Papaya Street; and 3. The land located south of the Pier 60 parkinq lot and north of the southerly lot lines of Lots 77 and 126 of the L1oyd-White-Skinner Subdivision between South Gulfview Boulevard and Coronado Drive. A trackinq system for the allocation of units from the density pool permitted by Beach bv DesiGn: A Preliminary DesiGn for Clearwater Beach and DesiGn Guidelines will be established, administered and monitored by the Clearwater Planninq Department. Land use decisions in Clearwater shall support the expansion of economic opportunity, the creation of jobs, and maintenance of existing industries through establishment of enterprise zones, activity centers and redevelopment areas and by coordination with the Chamber of Commerce and Tourist Development Council. 3 Ordinance No. 6794-01 ,~ 2.1.~Z 2.1.4-8 2.1.a 9 2.1.&-10 2.1.111 Downtown Clearwater, shall be designated a regional activity center suitable for increased threshold intensity for development consistent with the boundaries of the Central Business District as indicated in the Downtown Redevelopment Plan approved in 1995. The City shall continue to support and implement approved community redevelopment area plans, such as the Downtown Redevelopment Plan adopted in 1995. The City shall continue to review the boundaries of the downtown redevelopment district to determine whether boundary adjustments are needed. Clearwater will continue to support the tax increment financing program and redevelopment efforts of the downtown area through activities of the economic development office and actions of the City Commission as the Community Redevelopment Agency. The City of Clearwater will continue to promote infill development and the removal of blight through the Unsafe Structures Program. Section 4. The Future Land Use Element of the Clearwater Comprehensive Plan is hereby amended by revising Policy 2.5.3 as follows: 2.5.3 All proposed development/redevelopment initiatives shall be reviewed for opportunities to improve pedestrian and bicycle access. On Clearwater Beach, pedestrian and bicycle improvements should adhere to the policies and desiqn quidelines set forth in Beach bv DesiGn: A Preliminary DesiGn for Clearwater Beach and DesiGn Guidelines. Section 5. The Future Land Use Element of the City of Clearwater Comprehensive Plan is hereby amended by adding Policies 2.5.4 and 2.5.5 as follows: 2.5.4 The City shall fully evaluate the arrival and distribution of traffic on Clearwater Beach upon completion of the desiqn of the new Memorial Causeway Bridqe. 2.5.5 The City shall evaluate the potential for an intra-beach transit system on Clearwater Beach and investiqate potential fundinq sources. Section 6. The Future Land Use Element of the Clearwater Comprehensive Plan is hereby amended by revising Policy 3.2.1 as follows: 3.2.1 Land Uses on the Comprehensive Land Use Plan Map shall generally be interpreted as indicated in the following table. The intensity standards listed in the table (FAR - floor area ratio; ISR - impervious surface ratio) are the 4 Ordinance No. 6794-01 '-\ . maximum allowed for each plan category, except where otherwise permitted by special area plans or redevelopment plans approved by the City Commission. Consequently, individual zoning districts, as established by the City's Community Development Code, may have more stringent intensity standards than those listed in the table but will not exceed the maximum allowable intensity of the plan category, unless otherwise permitted by approved special area plans or redevelopment plans. PLAN PRIMARY USES MAX. DENSITY/ CONSISTENT CLASSIFICATION PER PLAN INTENSITY PER PLAN ZONING CATEGORY CATEGORY DISTRICTS 30 Dwelling Units Per Resort Facilities High Density Acre; FAR 1.2; ISR .95; Tourist (T) High (RFH) Residential/Overnight Overnight High Density Accommodations Accommodations/50 UPA~ Residential (HDR) and as set forth in Beach Commercial (C) bv Desian: A Preliminarv Desian for Clearwater Beach and Desian Guidelines, the special area plan QoverninQ Clearwater Beach adopted by Ordinance No. 6689-01 . Section 7. The Transportation Element of the Clearwater Comprehensive Plan is hereby amended by adding Objective 5.6 as follows: 5.6 Obiective - The City shall monitor seasonal traffic on Clearwater Beach and explore methods to address any issues identified. Section 8. The Transportation Element of the Clearwater Comprehensive Plan is hereby amended by adding Policy 5.6.1 as follows: 5.6.1 The City shall evaluate the feasibility of traffic improvements on Clearwater Beach, as well as investiqate fundinq sources for such improvements. Section 9. The Coastal Management Element of the Clearwater Comprehensive Plan is hereby amended by revising Policies 19.3.3 - 19.3.6 as follows: 19.3.3 The City encouraqes trolley service between Clearwater Beach, Sand Key and the Pinellas County barrier islands located to the south of Sand Key. 5 Ordinance No. 6794-01 11 19.3.4 19.3.~Q 19.3.4-6 19.3.aZ 19.3.e~ The City shall investiqate the feasibility of an intra-barrier island transit system on Clearwater Beach and evaluate potential fundinq sources for such a system. The City encourages trolley service from the mainland to Clearwater Beach. The City in conjunction with the Florida Department of Transportation should replace the Memorial Causeway Bridge and pursue the addition of dedicated bicycle lanes. The City shall continue to encourage private ferry service from Clearwater Beach to the Clearwater mainland. The City shall retain all existing public access areas. Section 10. The Coastal Management Element of the Clearwater Comprehensive Plan is hereby amended by adding Policies 19.3.9 and 19.3.10 as follows: 19.3.9 19.3.10 The City encouraqes the consolidation of public surface parkinq facilities into structured parkinq facilities open to the public on Clearwater Beach. Public/private partnerships are encouraqed to provide additional new parkinq on Clearwater Beach and to replace existinq public surface parkinq west of South Gulfview Boulevard. Section 11. The Coastal Element of the Clearwater Comprehensive Plan is hereby amended by revising Policy 19.6.1 as follows: 19.6.1 Redevelopment proposals and plans shall be reviewed for compliance with the goals, objectives and policies of the Comprehensive Plan and other appropriate plans including Beach Bv DesiGn: A Preliminary Desiqn for Clearwater Beach and Desian Guidelines and the City's NFIP Community Rating System Floodplain Management Plan. Section 12. The Coastal Management Element of the Clearwater Comprehensive Plan is hereby amended by revising Objective 21.3 as follows: 21.3 Objective - Overall density shall be retained and not increased in Clearwater's coastal zone, except as otherwise permitted in the Future Land Use Element of the Comprehensive Plan. Transfer of development rights between beach parcels is allowed per the Community Development Code and by Beach bv DesiGn: A Preliminary DesiGn for Clearwater Beach and DesiGn Guidelines. 6 Ordinance No. 6794-01 " Section 13. The Capital Improvements Element of the Clearwater Comprehensive Plan is hereby amended by adding Policy 28.1.10 as follows: 28.1 .10 The City recoqnizes the value and will prioritize capital improvements associated with redevelopment plans and special area plans. Section 14. This ordinance shall become effective when the Department of Community Affairs (DCA) issues a final order determining the adopted amendments to be in compliance, or the Administration Commission issues a final order determining the adopted amendments to be in compliance, in accordance with Section 163.187 or 163.3189, F.S., as amended. PASSED ON FIRST READING PASSED ON SECOND AND FINAL READING AND ADOPTED Brian J. Aungst Mayor-Commissioner Approved as to form: Attest: Cynthia E. Goudeau Assistant City Attorney City Clerk 7 Ordinance No. 6794-01 J Ii BEACH BY DESIGN / LAND USE DISTRICTS Old Florida Destination Resort Retail and Restaurant Marina Residential - Pier 60 Beach Walk Small Motel Clearwater Pass " ~\ ~ Florida Department of Transportation COpy 11201 N. McKINLEY DRIVE. TAMPA, FL 33612-0456 . (813)975-6000 . 1-800-226-7220 JEB BUSH GOVERNOR THOMAS F. BARRY, JR. SECRETARY May 17,2001 Mr. Charles Gauthier, AICP Florida Department of Community Affairs Bureau of Local Planning 2555 Shumard Oak Boulevard Tallahassee, Florida 32399-2100 RE: City of Clearwater Proposed Comprehensive Plan Amendment 01-2 Dear Mr. Gauthier: The Department has conducted a review of the above referenced document in accordance with the provisions of Chapter 9J-5, Florida Administrative Code, and the Department's Review Guidelines for Local Government Comprehensive Plans. It is our understanding that the Department of Community Affairs has completed a'cursory review and will not provide an Objections, Recommendations, and Comments Report to address the subject amendment. We al~o understand the importance of redevelopment to the City. However, we are providing the following comments. The City proposes to amend the Comprehensive Plan (plan) to designate a portion of the Clearwater Beach barrier island as a Community Redevelopment District, and recognize a plan for redevelopment, Beach by Design: A Preliminary Design for Clearwater Beach and Design Guidelines. Beach by Design promotes catalytic projects (including 600 additional hotel rooms); the proposed plan policies offer incentives including density bonuses for significant lot consolidation and/or catalytic projects, and the transfer of development rights pursuant to approved special area plans and redevelopment plans. The Clearwater Beach barrier island connects to the mainland by Memorial Causeway and Gulf to Bay Boulevard (SR 60), part of the Regional Evacuation Route system. Two Critical Evacuation Route Points occur in this vicinity, one at the mainland approach to the Memorial Causeway, and the other on south Clearwater Beach Island (see attached maps). The 2000 Level of Service Report by the Pinellas County Metropolitan Planning Organization indicates that some segments of S.R. 60/Gulf to Bay in this area are operating below the adopted LOS standard. In addition, SR 60 is physically constrained. Redevelopment activities on the barrier island have the potential to affect SR 60. We encourage the City to carefully assess the cumulative effects of future redevelopment projects on the regional evacuation route prior to the approval of each one. www.dot.state.fl.us 11 (~ Mr. Charles Gauthier May 17,2001 Page Two The Department appreciates the opportunity to review and comment on this document. If you have questions about this matter, please contact me in the FDOT District Seven offices at SunCom 512-7801, or (813) 975-6444. Yours Truly, ~~ Carol M. Collins LGCP and CMS Coordinator cc: \ Mr. Bob Romig, Director of Policy Planning, FDOT Mr. Ralph Stone, Planning Director, City of Clearwater Ms. Cyndi Tarapani, City of Clearwater Mr. Etim Udoh, City of Clearwater ~;s..____ . ~-~-~~~.~'~"'~"""-'''''''"",,,~.u>...OKJiIt~-;'''~'''''''''''''~IP~~;>I.~rz,,;;:rJRrn'O'=1i p~ cc:JJiT'f C) / 1 311\f 2 iVa , ( 'Ill r~4 S! -,1 Q..E r1 s ~ ... I ~~ rH /' I~f/ ~eJ,o / 12>~ 1\ 1'1 !.l n \ ~r~ '( ,,\ ~ .\ I 19 ~ /3. 1 18~ ~1 ~'2. ~ 02~~) 2,/ ........... A l24 Figure 10 \ "- , (f'.... / '---- CRITICAL EVACUATION ~ \ ROUTE POINTS, .'\ 1 CRITICAL LINK POINTS ~ ') ~ ".,.~ I~ . AND ['- \. POTENTIALLY CRITICAL ~~ 27 "- 0 ~ ') BOTTLENECKS , ~~ IN 30~ ~"': :; PINELLAS COUNTY [?r;f" <:!7 I ~ . Critical Evacuation Route potnts( _ Critical Links <:) ~ (> I " ~~ SOURCE: Pine lias County Emergency Management, ~ 1996. ) ) ~ ---.. / I~ ,. ~ ~ ~ ,/,) 'l~r 141, v, 311 1sfJ(J 16 ~ 17 - Potential Crucial Bottleneck ~ ...".,."."",y~~ ~~-~~ j j; 1 I '. i' 1, i I I /; I' \: i, Ii I; I: , ! I t I I r I I I I I I. I t: