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AGENDA
SPECIAL WORKSESSION
GULF TO BAY UPDATE
November 10,1999
10:00 a.m.
I. Call to Order
II. Status Update on Roadway Sections - Rich Baier, Public Works Administrator
III. Status Update on Utilities, Lighting and Intelligent Transportation Systems-
Mahshid Arasteh, Engineering Director '
IV. Questions and Answers
. V. Adjourn
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Interoffice Correspondence Sheet
To: Michael Roberto, City Manager
Thru: Cyndie Goodeau, City Clerk
From: Richard Baier, Public Works Administrator
CC: Mahshid Arasteh, City Engineer
Date: November 4, 1999
RE: Gulf-to-Bay Presentation on November 10, 1999
Attached is a copy of the presentation that will be given to the Commission on
November 10 concerning Gulf-to-Bay. Also attached is a copy of the Nabors study
outlining the project and potential funding sources.
Please feel free to call me if you have any questions or if I can be of further
assistance.
RJB/dk
Attachments
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GULF-TO-BAY BOULEVARD
REVITALIZATION
PROJECT
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GLATTING
NABORS, GIBLIN & NICKERSON,
GOVERNMENT SERVICES GROUP,
JACKSON KERCHER ANGLIN LOPEZ
P.A.
IN C.
RINEHART,
INC,
JUNE 1998
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GULF-TO-BAY BOULEVARD
REVITALIZATION PROJECT
Table of Contents
Executive Summary
Introduction
Objectives
Summery of Analysis
Action Plan
Remaining Issues
1. Existing Conditions
2. Redevelopment Issues
3. Redevelopment Objectives
4. Redevelopment Vision
5. Traffic Management Recommendations
6. Aesthetic Enhancement Recommendations
7. Estimate of Construction Costs
8. Funding Alternatives
Introduction
Municipal Home Funding Sources
Application of Alternative Funding Sources
9. Action Plan
Appendices
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EXECUTIVE SUMMARY
INTRODUCTION
Government Services Group. Inc. ("GSO") specializes in providing management consulting services to local governments
utilizing computer based technology and process oriented analysis. OSO is also affiliated with and partially owned by
Nabors, Giblin & Nickerson. P.A. ("NO&N"), a law firm dedicated to the representation of local governments on issues of
finance and taxation. Glauing. Jackson, Kercher, Anglin, Lopez and Rinehart ("01") is a consulting firm that provides
community planning services to local governments especially related to redevelopment activities. OSO and OJ, working
under the direction of NG&N, have combined their unique expertise to develop a design plan and funding options for the
Gulf-la-Bay Boulevard redevelopment effort.
The City of Clearwater (the "City") has entered into a professional services agreement with OSO, NG&N and OJ to
provide specialized services in the development of a conceptual financing and design plan for the revitalization of Gulf-to-
Bay Boulevard (the "Oulf-to-Bay Project").
The Gulf-to-Bay corridor provides regional access to downtown Clearwater and the beach. As the corridor is used by more
than 65,000 vehicles per day including tourists, commuters and residents, the City deemed it important to target corridor
enhancements as critical to insuring that this central corridor is attractive and reflective of the City's high quality of life.
As such, the Gulf-lo-Bay corridor became an integral feature of the City-wide vision for redevelopment titled, "Clearwater
- One City. One Future. A Blueprint for the City's Future," adopted by the City Commission in January 1998.
OSJ ECTIVES
The primary objectives of the Gulf-to-Bay Project are to develop a preliminary design plan and funding alternatives for the
City that will aid in the revitalization of this corridor, and to provide a report ("Report") that contains the results of our
information and analysis regarding the policy decisions which need to be made.
To this end, GSG, NG&N and GJ have been charged to address the following objectives:
· Prepare typical design plans, sections and/or sketches illustrating a design concept for Gulf-to-Bay Boulevard reflecting
themes and issues established by City staff and officials
· Prepare a preliminary estimate of the construction costs to implement the design concept illustrated in the sketches
· De.velop a series of funding options available to the City based on the conceptual presentation of the development options
and other issues deemed to be beneficial to the City's revitalization efforts
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SUMMARY OF ANALYSIS RESULTS
To accomplish the objectives of the Gulf-to-Bay Project. a series of char~ttes were conducted with City, County and State
staff members, as well as with other City consultants, to obtain a consensus regarding the role of Gulf-to-Bay Boulevard
wil11in the context of the City's roadway network and as well as developing a vision for Gulf-to-Bay Boulevard in serving
the future needs of the City.
To develop the Gulf-to-Bay Project, the 6 1/2 mile long Gulf-to-Bay Boulevard was divided into five (5) distinct districts.
From east to west, these include:
· Gateway District - 1/2 mile length from the Welcome Center on Courtney Campbell Causeway west to the
overpass at McMullen Booth Road (CR 611)
· Eastern District - 1 1/4 mile length from McMullen Booth Road to U.s. 19 Overpass Road
· Eastern Central District - 1 mile length from U.S. 19 Overpass to Belcher Road
· Central District - 1 314 mile length from Belcher Road to the split at Highland Avenue
· Western District - 2 mile length from Highland Avenue to the foot of Memorial Causeway over
Clearwater Harbor (including Court Street)
For purposes of this Report, the northern split to Cleveland Street is considered part of the downtown Cleveland Street
Corridor and is not included in this analysis.
A number of redevelopment issues were identified. Based on these issues, redevelopment objectives were created. The
redevelopment objectives were categorized as follows:
· Land Use
· Traffic Management/Safety
· Aesthetic Enhancement
Based on the redevelopment objectives. a redevelopment vision for the future Gulf-to-Bay Boulevard. "Clearwater's Grand
Boulevard," was created.
To achieve the redevelopment vision for the future Gulf-to-Bay Boulevard, recommendations are provided related to
traffic management and aesthetic enhancements. Estimates of costs to construct the improvements have been identified
and included in the Report.
To fund these improvement costs, it is recommended that the City:
· Research and apply for all available State and federal grants
· Seek a contribution from Pinellas County, Florida Department of Transportation, and Federal Government
· Impose special assessments to fund the portion of the cost properly allocable to the property owners
· Contribute the portion of the cost that cannot be funded by special assessments from other City funds
· Consider constructing a portion of the Gulf-to-Bay Project in one or more demonstration areas
· Establish a fonnal or informal advisory board to assist with developing
community consensus
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ACTION PLAN
This section of the Executive Summary provides an overview of the most critical steps included in the redevelopment
action plan to implement the recommendations provided within this Report.
1. Meet with Florida Department of Transportation to verify feasibility.
2. Create a public/private project steering committee.
3. Develop final consensus regarding the required improvements to be constructed.
4. Prepare and design construction documents and estimates of costs.
S. Detennine final budget and viable funding alternative or alternatives.
REMAINING ISSUES
GSG. NG&N and OJ have identified the following issues that require further consideration with respect to the preliminary
recommendations and action plan that have been developed and presented within this Report.
Issue 1:
Conditions Assumed in Report Conclusions
The recommendations provided in this Report are predicated on the consensus decisions of stakeholders reached at this
point of the Gulf-to-Bay Project regarding the future vision of the Gulf-to-Bay corridor and redevelopment objectives to
be completed. Modifications to the redevelopment objectives or future redevelopment vision may result in alternative
recommendations than otherwise provided within this Report.
Issue 2:
Identification of Projects and Development of Actual Costs
As discussed in the action plan, the identification of the requisite improvements and actual costs of construction are
critical to the successful implementation of the recommended funding alternatives. Such identification of actual projects
and their associated costs were not available for purposes of this Report. As a consequence of such incomplete information.
the final detennination and recommendations regarding funding alternatives may differ from recommendations provided
within this Report, based on analysis of additional data provided by the stakeholders and consultants.
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SECTION 1 EXISTING CONDITIONS
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1. EXISTING CONDITIONS
Gulf-lo-Bay Boulevard is part of an interconnected network of roads that se("\'es two major functions for Clearwater
visitors and residents:
· Provides regional access to CleaIWater Beach from lhe Tampa International Airport, Interstates 275, 4 and 75, and lhe
Tampa area
· Provides access to local residential areas, businesses and institutions
Besides Gulf-to-Bay, two other major east-west collector roads serve the network: Drew St. (SR 590), a collector road
about 1/2 mile north of Gulf-to-Bay, planned to expand to five (5) lanes, and Druid, a two (2) lane collector road about 1/4
mile south.
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The 6 1/2 mile long Gulf.to-Bay Boulevard corridor is comprised of five (5) distinct Districts. From east to west, these
include: the \12 mile long Gateway District. from the Welcome Center on Courtney Campbell Causeway (o'o'er Old Tampa
Bay) west to the overpass at McMullen Booth Rd. (CR 611); the 1 1/4 mile long Eastern District, from Mc~1ullen Booth
Rd., to the SR 19 overpass; the I mile long Eastern Central District from the US 19 overpass to Belcher Road; the I 3/4
mile Central District. from Belcher to the "split" at Highland Avenue; and the 2 mile long Western District from Highland
to the foot of the Memorial Causeway over Clearwater Harbor (including Court St.. the southern "split"). For the
purposes of this study, the northern "split" to Cleveland 51. is considered part of the downtown Oeveland Street Corridor.
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Gateway District
\Vith the exception of the Western District, the majority of the Gulf-lo-Bay Boulevard right-of-way (ROW) is 100 feet wide.
typically configured as a seven (7) lane road with a central median or turn lane. A 2 foot grass strip and a 5 foot concrete side-
walk extend from the back of curb to the ROW line. Utilities exist above and below ground within the right-of-way.
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SECTION 2 REDEVELOPMENT ISSUES
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2. REDEVELOPMENT ISSUES
A number of interrelated issues have compelled the City to look at rcdcveloping Gulf-lo-Bay Boulevard. These include:
· Increasing traffic congestion and frustration of both residents and visitors
· Increasing competition for tourists from other beachfront cities
· Lack of a sense of arrival or a unique sense of place at the end of the Courtney Campbell Causeway
· Unattractive appearance of the continuous strip commercial development. including declining businesses, poorly
designed buildings and signs, poor maintenance and lack of landscaping
· Lack of space for landscaping within the ROW, as well as lack of funding for continuous maintenance of limited
existing landscaping
· Increasing traffic conflicts caused by frequent driveway and median cuts, lack of turn lanes, lack of pedestrian crossings
and other safety/circulation deficiencies
· Lack of safe bicycling paths and/or lanes
· Unattractive overhead power lines and poles
· Opportunity to enhance "One City, One Future" approach to the redevelopment of Clearwater and its beaches
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SECTION 3 REDEVELOPM ENT OBJECTIVES
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3. REDEVELOPMENT OBJECTIVES
Redevelopment objectives fall into three (3) categories. as follows:
Land Use
· Facilitate redevelopment of adjacent parcels
· Maximize flexibility
Trame Management/Safety
· Maximize traffic flow
· Maximize roadway capacity
· Minimize traffic conflicts
· Maximize traffic safety
· Maximize land use flexibility
· Provide safe bicycle and pedestrian access
· Optimize level of service for all users
Aesthetic Enhancement
· Improve the quality of the driving experience
· Visually connect the districts
· Soften the harshness of the vast paved areas
· Create a unique identity and sense of place;
reflect community character
· Improve "way finding"
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4. REDEVELOPMENT VISION
Our Vision for the future Gulf-to-Bay Boulevard is:
"Clearwater's Grand Boulevard"
We envision a divided boulevard comprised of:
. Decorative center medians with stately date palms and bold, colorful and exciting monuments, sculptures, fountains and
paving patterns
· Six lanes of steady, smooth flowing 35-40 mph traffic with efficiently distributed turning movements
. Wide, 6' - 8' concrete walkways (on both sides of the road) under the shady canopy of a double row of live oaks and
Washington palms .
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TRAFFIC MANAGEMENT RECOMMENDATIONS
5. TRAFFIC MANAGEMENT RECOMMENDATIONS
The following traffic recommendations support the conceptual vision of Gulf- to-Bay Boulevard. These recommendations strive
to improve the vehicle flow as weU as enhance the safety and aesthetics of the conidor for motorists and pedestrians alike.
5.1 ELIMINATE AND/OR SHARE DRIVEWAYS
Encourage that J) driveways be eliminated wherever side street access is available. and 2) sharedjoilll access driveways
be utilized where side street access is not available (e.g. parcels ill the middle of a block).
Each commercial parcel along Gulf-lo-Bay Boulevard has been developed with one or more of its own driveways. Over
time. this has resulted in hundreds of driveways along both sides of Gulf-lo-Bay Boulevard, with direct access into the
through lanes (as opposed to turning lanes or frontage roads). These multiple "conflict points" cause numerous slowdowns
and accidents, as drivers frequently pull into and out of Gulf-to-Bay Boulevard.
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5.2. REQUIRE CRoss-ACCESS CONNECTIONS
Require that developers construct aisles and alleys to connect adjacent parcels and parking lols to one another.
Once motorists leave Gulf-To-Bay Boulevard. they should be able to complete short trips between adjacent or semi-
adjacent parcels without getting back on Gulf-to-Bay Boulevard. Cross access connections, in effect, create a parallel
roadway network to Gulf-to-Day Boulevard, eliminating needless entrances and exits onto the main thoroughfare.
Many of the restaurants across from Clearwater Mall presently exhibit cross-access facilities, making it easy for patrons to
travel between properties without using Gulf-to-Bay Boulevard. Several of these properties also share driveway access.
Conversely, several parcels further west. such as the service station next to Albertson's and the car wash next to Burger King,
consist of no cross-access facilities, and can thus only be reached from Gulf-to-Bay Boulevard.
Cross access is one of the key features of the Access Management Plan contained in the upcoming Community
Development and Redevelopment codes, along with median openings and driveways.
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5.3. REQUIRE SIDE-ROAD ACCESS
Encourage that. wherever possible, parcel developers provide driveways onto side streets rather than on Gulf-Io-Bay
Boulevard.
The City can substantially reduce or eliminate the numerous driveway "friction points" along Gulf-to-Bay by encouraging
driveway access from side streets rather than directly from Gulf-to-Bay Boulevard. This allows motorists to more safely
enter and exit Gulf-to-Bay Boulevard at side road intersections rather than at hundreds of driveway access points, and also
provides safer and easier vehicular. bicycle and pedestrian access to commercial parcels from adjacent neighborhoods.
This principle can be supported with a traffic calming program, which would discourage regional traffic from cutting
through the adjacent neighborhoods further along these side streets.
Candidates for such side road access include all corner parcels. The McDonaJds on Gulf-to-Bay Boulevard is a good
example of a property that emphasizes side road access.
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5.4. ELI MINATE UNNECESSARY MEDIAN CUTS
Median closures can imprv't'e the safety vfthe roadway by minimizing wlco1ltrolled conilict points. Candidatesfor closure
include median cuts that serve indi't'idual properties or dead-end streets rather than interconnected local network streets,
as well as those that allow only outward left tums from side roads onto Gulf-to-Bay Boulevard. and prohibit similar cuts
in the future.
Over time, median cuts (c;>penings in the center median) have been provided to facilitate left turn movements into and out
of side streets andlor mid block driveways. While the side street cuts are necessary to maintain traffic flow across Gulf-
to-Bay Boulevard, many of the driveway cuts (some only serving a single parcel) are not necessary. Closure of
uMecessary cuts will not only improve traffic flow, but will also improve traffic safety (through the elimination of mid
block left turn movements) and aesthetics (through median planlings).
The left turn movement from side roads onto Gulf-to-Bay Boulevard is considerably more dangerous and disruptive than
the left turn movement from Gulf-to-Bay Boulevard onto side roads. In concept, while the latter should be preserved to
distribute local traffic through the network, the fonner should be eliminated because its safety hazards outweigh its local
traffic benefits. However, accident data must be thoroughly examined before final recommendations can be made regarding
median closures.
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A: Median Opening serves only dangerous left turn out movement
B: Median Opening serves only private driveways, not side roads
C: Median Opening has no deceleration lane (not shown)
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5.5. MAINTAIN AND ENHANCE THE NETWORK
Maintain and enhance the interconnected network of local .streets 10 aI/ow Cul/ro-Ba)' Boulevard 10 fulfill its mission of
moving large volwnes of regional traffic. and to aI/ow for changing land uses.
Clearwater's original street layout was comprised of a grid network of interconnected streets and a discernable block
structure. This network allowed traffic to disperse in many directions without being forced onto large collector or arterial
roads, and allowed for land uses to change over time without disrupting the City's fabric.
In recent years, the City and/or parcel developers have closed off streets or failed to connect the local network, resulting
in the disruption of the grid and the need to carry local trips on Gulf-to-Bay Boulevard. Furthennore, many parcels have
been combined (and internal streets closed) to accommodate large. single use "pod_type" developments. which are
difficult to redevelop as they deteriorate or when changing market conditions dictate a need for smaller sites or multiple
land uses.
By maintaining the grid and reconnecting or enhancing it wherever possible the City can minimize the number of local
trips forced to use Gulf-to-Bay Boulevard. thereby eliminating unnecessary traffic. and can also maximize the flexibility of
the urban fabric to adapt to changing market conditions and land uses.
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5.6. INITIATE TRAFFIC CALMING PROGRAM
Construct traffic circles. bulb-outs, splitter isla lids, textured pavement alld olh~r traffic calming dev;c~s on residential
streets adjacent and parallel to Gulf-Io-Bay Boulevard.
As the City enhances the street network for local trips, traffic calming measures must be taken to offset the temptation for
regional cut-through traffic. The City should initiate an appropriate traffic calming program to minimize cut-through
traffic and to ensure that all motorists travel through the neighborhoods surrounding Gulf-to-Bay Boulevard at safe speeds.
Since many traffic calming devices incorporate brick/concrete pavers, landscaping and street lights. these improvements
will also enhance the aesthetics of the residential areas.
Traffic calming devices are intended to reduce the effective design speed of local streets. Such reductions in speed will make
it more time consuming for regional travelers to cut through on local streets rather than to remain on arterials, and will ensure
that all motorists traveling through residential neighborhoods will do so at speeds that are safe for children and pedestrians.
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LEGEND:
Conceptual Configurations of Network Connections = =
Possible Locations for Traffic-Calming Devices ~
g(ttarwater ~
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BOULEVARD
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5.7. OETERMINE OPTIMAL DESIGN SPEED
Design and pa,\t Gulf-to-Ba)' Bouln'ard for the Jpeed which maximizes the flow of vehicles.
Studies have shown that arterial roadways with characteristics similar to those of Gulf-to-Bay Boulevard will be able to
carry more vehicles at lower relative speeds than at higher speeds, due to the ability to maintain a steadier traffic flow.
Higher speeds often entail constant acceleration, deceleration and congestion, and do not necessarily improve the capacity of
the corridor.
A detailed study of the specific traffic characteristics of Gulf-to-Bay Boulevard should be performed to determine the
roadway's optimal speed. Specific design elements, such as lane widths, traffic signal locations, and placement of street
trees, should then be developed for Gulf~to- Bay Boulevard
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15
SECTION 6
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6. AESTHETIC EN HANCEMENT RECOM M ENOATIONS
The following recommendations are intended to improve the quality of the driving experience. visually connect the
districts along Gulf-to-Bay Boulevard. create a sense of place, and improve "way finding."
6.1. ESTABLISH A UNIFORM DESIGN PALETTE
Repeat the same materials in landscaping, signs, transit stops, light fixtures and other design elements to establish a
common identity and to create a uniform, continuous appearance along Gulf-to-Bay Boulevard.
The City of Oearwater has a rich history and natural environment from which to create an effective palette of materials.
These include:
· Trees and Palms: Sabal Palms, Washingtonia Palms. Date Palms, Mangroves, Oaks, Ligustrums
· Shrubs and Aowering Plants: Hibiscus, Oleander, India Hawthorne, Annuals
· Natural Stone: Coquina boulders
· Architecture: Barrel tile roofs, decorative tile, cut coquina blocks, arches, sand colored brick, ornamental iron, stucco,
globe light fixtures
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16
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6.2. MAXIMIZE MEDIANS
Focus aesthetic enhancements on the existing medians and turn lanes along the cellter of Gulf-to-Bay Boulevard.
Currently, there is no room at the edges of the ROW to make meaningful aesthetic enhancements to Gulf-to-Bay Boulevard.
Improvements to these areas will be accomplished by private parcel developers as individual parcels are redeveloped over
the next several decades. Meanwhile the City should focus its efforts on improving the existing medians - or enhancing new
medians created by median cut closures - to make immediate improvements to the appearance of Gulf-to-Bay Boulevard.
Medians should be curbed to minimize FOOT structural setbacks (trees, monuments, etc) and to maximize the space
available for plantings and monuments. Median improvements should incorporate the unifonn palette discussed previously.
Potential Median Treatment Locations
LIomonIi
Wes1ern District
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Central District
Eastern District
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17
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6.3. 8 URV UTI LilY LI N ES
Rt!place o\.'erhead utility lines with ulldagrouJ/d (aMes ill conduit.
The overhead utility lines along the north side of Gulf.to-Bay Boulevard add to the cluttered, unattractive appearance of the
corridor. These should be replaced as opportunities arise. ideally in conjunction with any required road resurfacing or rocon-
struction project to minimize costs. The right-of-way beneath Gulf-to-Bay Boulevard presently contains numerous utility
conduits which must be examined in more detail before further recommendations can be made. Alternate utility corridors
should also be considered.
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6.4. ESTABLISH A PATTERN BOOK FOR REDEVELOPMENT
Establish redevelopment stwldards for various t)pes of land uses shmdll8 building setback /illes, driveway locations,
architectural styles, parking/rerentioll/landscaping locations and requirements. and sidewalklbike path configuratiolls.
The primary tool for accomplishing our vision of Gulf-to-Bay Boulevard is through the redevelopment of the commercial
parcels on both sides of the road. As markets change~ and as parcel owners make new improvements to lheir property. the
City should work with them to establish landscaping/sidewalk easements, close driveways, build sidewallcs, plant trees, and
re-orient their buildings to lhe Boulevard in accordance with the standards established in the Gulf-to-Bay Redevelopment
Pattern Book.. The City should also investigate incentives for voluntary compliance with the new redevelopment patterns,
including matching grants~ loans and other techniques.
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2.ater SECTION 7 ESTIMATE OF CONSTRUCTION COSTS
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7. ESTIMATE OF CONSTRUCTION COSTS
MEDIANS (within R.O.W.)
Item Qty. Unit -Unlttost Total
Demolition: exCAvate and haul50iJ from palm pits, 2.5cy per palm 165 cv $6.00 $990.00 ~
Monuments: SculDtural monuments 11 ea $40 000.00 $440000.00
Pavers: concrete unit Davers in medians, compacted base 205.920 sf $7.50 S 1.544.400.00 ;r.
Pavers: concrete unit oavers at intersections. concrete base 67 200 sf $10.00 $672000.00
Palmr. Mediool Palms 20'ct. SO'OC; backfrl with pbntina soi 66 ea $6.000.00 $396.000.00
iJOhtJna: Metal Halide wen IJohts 2 ocr oalm 132 ~ $1.200.00 S 1 58.400.00
niaatlon: Bubbler SYStem: eauicment in vaults 198 ea $150.00 $29.700.00
~ns: Fabricated custom directional sions 20 ea $3.000.00 $60.000.00 ).
CwtMna: 6- x 16- vertical curb 34.320 tf $9.00 $308.880.00 y..
Subtotal $3.610.370.00 :
1096 GC's Overhead. Profit. Bonds 1 Is $361037.00
1096<-'-"'-' Desion. Geotechnical Enoineerina. Pennittina 1 Is $361037.00
25% Continoencv 1 Is $902 592.50
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CURBSJDES
Item I ~ I --unit I Unit Cost Total
-
.
Demolition: excavate and haul $Oil from planting areas. 12" depth 8.000 r:v $6.00 $48.000.00
Walkways: 6' wide, colored and scored; 6.5 miles, both sides. less 25% 308 880 ea $5.00 $1.544.400.00
Oaks: Live Oaks, 200 gal,. CP SO'oc 838 sf 5800.00 $670.400.00
Palms: Canarv Island Date Palms. 12'ct @l l00'oc 28 sf $3.600.00 $ 1 00.800.00
Palms: Washinaton Palms, 18' - 20'ct @l 50'oc 1030 ~ $450.00 $463.500.00
Shrubs: Dwarf varieties, 3 aat. ~ 2'oc; 4' a~. width, less 2596 205 920 e.a $2.00 $411.840.00
L1ahtJng: Street lights with banners CP l00'oc; alternating sides 343 ea $3.800.00 S 1 303 400.00
Irrlaation, Trees: Bubbler SYStem; eauipment in vautts 3790 ea $75.00 $284 250.00
Irrigation, Shrubs: $Drav sYStem. fun coveraQe; equipment in vaults 205 920 If $0.40 $82 3&8.00
Subtoul $4.908.958.00
1 ()906 GC's Overhead Profit. Bonds 1 Is $490.895.80
1 096 ~''''-, Desion. Geotechnical Enaineerino. Permittino 1 Is $490.895.80
2 S96 Continoencv 1 Is $1227.239.50
Underaround Utirlties 1 Is $6000.000.00 $6000.000.00
ITOT AL 5,3,,17.989.1Q
-
GRAND TOTAl
$18.353,025.60
Does not include demolition of existing medians or paving, or reconstruction of side curbs, aprons, driveways, etc.
Based on information provided by Oty of Clearwater
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8. FUNDING ALTERNATIVES
This ~~ction of the Report will identify and discuss potential funding alternatives for the Gulf-to-Bay Projl"Ct. The Gulf.
to-Bay Project is a public-private partnership initiative; therefore. it is anticipated that property owners along Gulf.to-Bay
Boulevard will contribute to funding its construction and maintenance. Since special assessments will be considered as a
vehicle to facilitate private landowner funding that would be imposed pursuant to the City's home rule authority. this
section of the Report begins with a brief discussion of municipal home rule. Following a summary of the elements and
estimated constnlclion cost of the Gulf.to-Bay Projec~ several potential funding alternatives are described. Based upon a
very preliminary analysis, speciJic funding strategies are identified and discussed. This section ends with a brief
discussion of governance alternatives and identification of a recommended governance structure.
MUN ICIPAL HOME RULE
Municipalities have constitutional and statutory home rule authority to impose special assessments, impact fees. franchise
fees and other fees and charges not construed to be taxes under Aorida case law. If the fee. assessment or charge is imposed
in a manner that the courts construe the charge to be a "tax." the imposition is unconstitutional unless authorized by
general law.
Article VUI, section 2(b), Florida Constitution, grants municipalities the aut!'ority to exercise any power for municipal
purposes except as prohibited by law. This power is extremely broad as "municipalities are not dependent upon the
Legislature for further authorization. . . ; [l]egislative statutes are relevant only to determine limitations of authority. II State
v. City of Sunrise, 354 So. 2d 1206. 1209 (Fla. 1978). Section 166.021. Florida Statutes. does, however, complete the
constitutional design of broad home rule powers for municipalities. See City of Miami Beach v. Forte Towers, Inc. 305
So. 2d 764.765 (Fla. 1974) (Dekle. 1., concurring).
To detennine a municipality's home rule power to legislate by ordinance. the search is no longer for specific legislative
authorization. The search, rather, is for a general or special law that is inconsistent with the subject matter of the proposed
ordinance. Absent an inconsistent law, a municipality has the complete power to legislate by ordinance for any municipal
purpose. See Lake Worth Utilities v. City of Lake Worth, 468 So. 2d 215 (Fla. 1985) (compares municipal powers under
1885 and 1968 Florida Constitutions).
The Gulf-to-Bay Project is an innovative public-private partnership initiative. By exercising its home rule powers, the City
is not limited by traditional funding options and can craft a solution that corresponds to the unique equities of this
particular project. Many of the funding techniques described in this Report can be applied to the Clearwater Beach and
downtown redevelopment initiatives.
Gulf-To-Bay Project
The redevelopment vision for Gulf-lo-Bay Boulevard is fully described in a previous section of this Report. The capital
improvement portion of the Gulf-to-Bay Project includes a "Median Component" and a "Curbside Component."
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21
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TABLE 1
CAPITAL ~tPROVEf\1ENTS
Elemenl
Descrlptfon
Cost Estimate
Median Component
installation of decorative center medians that
include palms and sculptural monuments
$5,235,000 (1)
Curbside Component
installation of wide concrete walkways and a
companion canopy of live oaks and palms within
an expanded right-oC-way
$7,120,000 (2)
(1) Estimated construction cost does not include demolition of existing medians or paving.
(2) Estimated construction cost assumes donation of the additional right-of-way and does not include removal of
overhead power lines or reconstruction of side curbs, aprons, driveways and similar improvements.
Since the Curbside Component requires additional right-of-way, only the Median Component is proposed for immediate
construction.
The Gulf-to-Bay Project is logically divisible into five distinct districts:
DIstrict
Corridor
Gateway District
Eastern District
Eastern Central District
Central District
Western District
Welcome Center to McMullen Booth overpass
McMullen Booth overpass to U.S. 19 overpass
U.S. 19 overpass to Belcher Avenue
Belcher Avenue to Highland Avenue
Highland Avenue to Memorial Causeway (along southern route)
DESCRIPTION OF ALTERNATIVE FUNDING SOURCES
Since the Gulf-to-Bay Project is a public-private initiative, it is anticipated that a mixture of public and private souoces will
be used to fund its construction and maintenance. This section of the Report will provide a general description of
potential funding sources for the project. These sources fall into three categories: State and Federal Grants (outside
public funds), Special Assessments (private funds) and City Contribution Oocal public funds). In addition to the funding
sources described in this Report, the City may wish to request a contribution from PinelJas County since Gulf-lo-Bay
Boulevard is a major County transportation asSeL The next section of the Report will suggest a strategy for funding the
Gulf-to-Bay Project, employing several of these revenue sources.
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State and Federal Grants
As the City comes to closure regarding design issues and construction costs for the Gulf.to-Bay Projecr, a concentration
of effort must be put forward regarding lhe pursuit of outside funding sources for this project. Upon commencing Pbase
II of this project. the pursuit of State and Federal funding sources will be evaluated to address such components of the
project as aesthetic appeal, advancement of the arts. highway safety. pedestrian access and economic development
Each issue as described above will require the City to approach various Federal, State and private foundation funding
options. This pursuit, although timely, can prove to be highly beneficial to the City given the nature and costs of the
project described in this Report.
In addition, upon commencing Phase II of this project. representatives from the City of Clearwater and Pinellas County
should convene to begin a dialog regarding the County's financial contribution to this redevelopment effort. Because this
roadway is a major arterial network that benefits bolh the City and County, the County should be looked upon as a partner
in this projecL
Special Assessments
Municipalities have the authority to impose special assessments by ordinance pursuant to their home rule powers. See City
of Boca Raton v. State, 595 So. 2d 25 (Fla. 1992). Case law establishes two requirements for the imposition of a valid
special assessment: (1) the property assessed must derive a special benefit from the improvement or service provided, and
(2) the assessment must be fairly and reasonably apportioned among the properties which receive the special benefit Id. at
29. A special assessment may provide funding for either capital expenditures or the operational costs of services. so long
as the special assessment meets these two criteria. See Sarasota County v. Sarasota Church of Christ, 667 So. 2d 180, 183
(Fla. 1995).
Special assessments not meeting the foregoing requirements will be classified as a tax. Since the Ronda Constitution
requires that tax sources other than ad valorem taxes be authorized by general law, invalid assessments are void and may
give rise to an action for refunds.
Special Benefit Requirement
The benefit required for a valid special assessment can be articulated as an increase in market value of the property,
although a special benefit can also include both potential increases in value, and added use and enjoyment, of the
property. See Meyer v. City of Oakland Park, 219 So. 2d 417 (Aa. 1969). Furthennore. the benefit need not be determined
in relation to the existing use of the property. But the benefit must be substantial. certain, and capable of being realized
within a reasonable time. See City of HallandaJe v. Meekins, 237 So. 2d 318 (Ra. 4th DCA 1970), affd. 245 So. 2d 253
(Fla. 1971 )(upholding sewer improvement special assessments imposed against vacant property, not currently using sewage
service).
Although not legally required, the persuasiveness of legislative findings of both special benefit and fair apportionment have
been emphasized by the Supreme Court of Florida in the recent cases of Sarasota County v. Sarasota Church of Chris~ Inc.,
667 So. 2d 180 (Aa. 1995) and Harris v. Wilson, 693 So. 2d 945 (Aa. 1991). Tbe Supreme Court held in Church of Quist
that "the legislative determination as to the existence of special benefits and as to the apportionment of the costs of those
benefits should be upheld unless the determination is arbitrary." 667 So. 2d at 184. Similarly, in Harris v. Wilson. the
Supreme Court noted that lhe "question of what constitutes special benefit is a matter of judgment that courts should not
overturn in the absence of a clear and full showing of arbitrary action or plain abuse." 693 So. 2d at 948 (citing South Trail
Fire Control District. Sarasota County v. State, 273 So. 2d 380 (Fla. 1973)). Thus. legislative findings should be consid-
ered a critical element to any local government assessment program.
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23
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Fair and Reasonable Apportionmelll Requiremelll
Once a detennination has been made that an asscss~d improvement specially benefits the properties within a district, then
the assessment must be "fairly and reasonably apportioned among the benefitted properties." City of Boca Raton v. State.
supra; Parrish v. HiIlsborough County. 123 So. 830 (Fla. 1929). The manner of the apportionment of the assessment is
immaterial and may vary provided that the amount of assessment for each property does not exceed the proportional
benefits it receives as compared to other properties. South Trail Fire Control District, Sarasota County v. State, 273 So. 2d
380 (Fla. 1973).
In detennining the reasonableness of the apportionmen~ the courts generally give deference to the legislative detennination of
a local government. In Rosche v. City of Hollywood, 55 So. 2d 909 (Ha. 1952). the Supreme Court of Florida stated:
"The apportionment of assessments is a legislative function and if reasonable men may differ as to whether land assessed
was benefitted by the local improvement the determination as to such benefits of the city officials must be sustained."
Id. at 913. See also Sarasota County v. Sarasota Church of Christ, 667 So. 2d 180 (Ra. 1995).
The Rorida Supreme Court has upheld as "fair and reasonable" an apportionment of the cost of urban redevelopment based
on the assessed value of specially benefitted property in City of Boca Raton v. State, supra. This decision should be
considered limited to comparable improvements, i.e., redevelopment and commercial enhancement projects. The decision
was predicated upon expert testimony demonstrating that assessed value is an appropriate method of measuring the rela-
tive benefit derived by the assessed property. It is generally recommended that a consultant be engaged to prepare a report
justifying use of the assessed value and that the bond validation process be used to confinn the apportionment methodology.
Collection
Special assessments that meet the special benefit and fair and reasonable apportionment requirements may be collected on
the ad valorem tax bill by the county tax collector. The combined notice of ad valorem taxes and non-ad valorem
assessments acts as a lien against the property. Local governments may use the "Tax Bill Collection Method" for
collecting special assessments when it follows the complicated. lengthy process prescribed in section 197.3632, Florida
Statutes.
The initial steps in the statutory process are the publication of notice and the adoption of a resolution by the local
government of its intent to use the Tax Bill Collection Method. The adoption of a Resolution of Intent does not obligate
the local government to use the method or to impose a special assessment, but it is a prerequisite to using the Tax BiJI
Collection Method. The Resolution of Intent must be adopted by January 1 for assessments planned to be collected on the
tax bill mailed by the Tax Collector the following November. In the event the Property Appraiser and Tax Collector agree,
tbe Resolution may be adopted as late as March 1. Prior to the adoption of the Resolution, the local government must pub-
lish notice that the local government will consider it The published notice must appear in a newspaper once a week for
four consecutive weeks preceding the hearing. Upon adoption of the Resolution of Intent, the local government must
provide a copy to the Property
Appraiser, the Tax Collector and the Florida Department of Revenue by the statutory deadline, which is January 10, unless
the Property Appraiser and Tax Collector agreed to the later deadline of March 10.
The statute then requires the local government to develop a non-ad valorem assessment roll. The roll is a computerized list
that contains the base and rate of the assessment and electronically applies them to each parcel subject to the assessment.
The statute requires the assessment roll to utilize the property use code classifications maintllined by the property appraiser.
This requirement assures that the non-ad valorem assessment roll is compatible with the ad valorem roll and can be merged
with it to produce a single bill for the combined charges for ad valorem taxes and non-ad valorem assessments.
Collection of the assessments and ad valorem taxes begins in November. Failure to pay the assessments and taxes results
in the issuance of a tax certificate and may result in the sale of a tax deed.
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24
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City Contribution
Public bodies typically make a "general fund" contribution to public-private partnership projects. In fact, if special
assessments are used in lhe funding mix, a public contribution is often required to meet the fair and reasonable apportionment
requirement. Since the Gulf-to-Bay Project primarily consists of roadway and related improvements. there are a number
of City revenue sources that can be applied. Examples of these sources are summarized below. This list is intended to be
illustrative rather than exhaustive.
Ad Valorem Taxes
Ad valorem taxes can be expended for any lawful municipal purpose. which would clearly include the Gulf-to-Bay Project.
However. since ad valorem taxes cannot be pledged to the payment of bonds or otherwise committed beyond the fiscal year
without referendum approval. their usefulness is impaired if the City elects to finance the construction.
Local Option Infrastmcture Surtaxes
The Infrastructure Surtax may be levied countywide. with referendum approval. by the governing board of the county or
the governing bodies of municipalities representing a majority of the county population. The Infrastructure Surtax is
limited in rate to one-half a percent or one percent. The tax proceeds must be shared between cities and counties. pursuant
to an interlocal agreement or pursuant to the half-cent sales tax fonnula provided in section 218.62. Florida Statutes. The
surtax may also be shared wilh the school board. The proceeds of the surtax must be expended to finance. plan. and con-
struct infrastructure.
Motor Fuel Taxes
The State of Florida has levied a "Municipal Gas Tax." one cent per gallon tax on motor fuel and special fuel for
distribution to municipal governments. The statewide Municipal Gas Tax proceeds are distributed among municipalities
pursuant to the Municipal Revenue Sharing Trust Fund provisions in chapter 215. Florida Statutes. The revenues may be
used for transpoTUltion purposes as provided in section 206.605, Florida Statutes.
Counties may impose up to twelve cents of local option motor fuel taxes. The statutes divide the twelve cents of optional
motor fuel taxes into three categories: the original six cents motor fuel tax authorized by section 336.025(1 )(a). Florida
Statutes (the "Original Six Cents Gas Tax"); the new five cents authorized by section 336.025(l)(b). Florida Statutes. as
created in the Environmental Lands Management--or "ELMS"--legislation. Chapter 93-206. Laws of Florida (the "ELMS
Five Cents Gas Tax"); and the penny tax authorized by section 336.021. Florida Statutes. now titled the "Ninth Cent." Only
the Ninth Cent is not required to be divided among the county and the municipalities. The Original Six Cents Gas Tax and
the ELMS Five Cents Gas Tax must be shared with municipalities with the distribution based upon an interlocal agreement
or a fonnula detennined by the respective historical transportation expenditures of each.
Public Service Taxes
A municipality may levy a tax on the purchase of electricity. metered or bottled gas. and water service. The tax may only
be levied upon purchases within the municipality and cannot exceed ten percent of the payments received by the seUer of
the taxable item. ~ 166.23 I (1 )(a), Fla. Stat. A municipality may not tax a fuel adjustment charge. and such charge is
separately stated on each bill. ~ 166.231(l)(b). Fla Stat. A municipality may levy a tax on ;decommunications service
under two separate alternative statutory bases. Under one alternative, a municipality may levy a tax on local telephone
service upon purchases within the municipality of local telephone services at a rate not to exceed ten percent of the
monthly recurring customer service charge. Under the other alternative. a municipality may tax purchases within the
municipality of telecommunications service which originates and tenninates in this state. not to exceed seven percent of
the total amount charged for any telecommunications service provided within the municipality. ~ 166.231 (9), Fla. Stat
Proceeds of these taxes are available for general municipal purposes.
garwater.
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Half-Celli Stiles Ta:c
The local government half-cent sales tax program returns to municipalities and counties approximately nine percent of aJI
state sales tax proceeds remitted pursuant to Chapter 212. Part I. Rorida Statutes. The local government share is based on
the sales tax collected in each county. The county's share is determined by dividing the sum of the unincorporated area
population plus two-thirds of the incorporated area population by the sum of the total county population plus two-thirds of
the incorporated area population. The municipality's share is determined by dividing the population of the municipality by
the sum of the total county population plus two-thirds of the incorporated area population. This source may be used for
any municipal purpose.
State Revenue Sharing
The Revenue Sharing Trust Fund for Municipalities includes 32.4 percent state cigarette tax collections, the one cent
municipal gas tax collections, and 12.5 percent of the state alternative fuel user decal fee collections, pursuant to section
210.20(2)(a), 206.605, and 206.879(1), Rorida Statutes. A municipality may expend its share of the Revenue Sharing Trust
Fund for Municipalities on any public purpose. However, it may only pledge the portion of the revenues defined as the
"guaranteed entitlement" to retire bonded indebtedness. Section 218.25, Florida Statutes. The portion of the Trust Fund
allocation attributable to the municipal gas tax may be expended for transportation purposes only. Section 206.605, Florida
Statutes.
Tax Increment Funds
Chapter 163. Part III. Ronda Statutes, authorizes counties and municipalities to identify areas for redevelopment that are
suffering from transportation blight. After adopting a resolution declaring the necessity for improvement. a community
redevelopment agency can be appointed to implement a community redevelopment program. In lieu of appointing
members of the community, the City Commission may elect to serve as the governing body of the agency. A redevelop-
ment plan must be submitted for approval by the affected taxing authorities and adopted by the agency following a public
hearing. A redevelopment trust fund is established for each community redevelopment agency. Subject to certain
specified exceptions, the incremental revenue derived by each taxing authority is deposited annually into the redevelopment
trust fund and used to implement the redevelopment plan.
As an alternative to creating a formal community redevelopment agency, the City may use its home rule authority to iden-
tify the tax increment attributable to a redevelopment area and agree to appropriate all or a portion of that amount annual-
ly for redevelopment purposes. Although this alternative would exclude the county increment, it would pennit the tax
increment to be applied outside of the specific area and may provide a useful tool for broader redevelopment initiatives.
For example, if the City initially invested public funds in a redevelopment program for Gulf-to-Bay Boulevard (or a
district of Gulf-to-Bay Boulevard), the beach or downtown and the redevelopment program generated incremental revenue,
use of the statutory tax increment would be limited to the community redevelopment area in which the investment was
made. Under the home rule alternative, however, the increment derived from an early redevelopment investment could be
committed to other redevelopment programs within the City.
ApPLICATION OF ALTERNATIVE FUNDING SOURCES
This section of the Report will suggest a strategy for funding the Median Component of the Gulf-to-Bay Project, employing
several of the revenue sources described in the previous section. Obviously, it is in the City's interest to exhaust all potential
outside public revenue sources (State, federal and county) before using local private and public funds. The funding
approach described in this Report could be applied to any portion of the project cost not funded by these outside sources.
This Report is intended only to illustrate a potential funding strategy for the Gulf-to-Bay Project. A detailed analysis of
the alternatives selected by the City will be undertaken in the next phase of the project. Although the cost and revenue
figures included in this section are based upon the best available infonnation, they are included in this Report for illustra-
tive purposes only and may differ from the actual cost and revenue figures developed during the next phase.
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ULF-TO-BAY
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26
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The relative public and privale contribution toward the Gulf-Io-Bay Project is a key clement in the funding strategy. Similar
projects hav~ varied widely in this respect. To gauge the capacity of the property owners. a preliminary analysis of the
property values along Gulf-to.Bay Boulevard has been made. The results of this preliminary analysis suggest that the
property owners cannot finance the entire projoct and that a substantial contribution of public funds will be required. If it
is determined that the property owners should contribute toward funding the Gulf-to-Bay Project, their equitable share
should be determined first. After the private contribution has been ascertained, the balance of the project cost must be
funded through a City contribution.
Use of Special Assessments
The most effective method of collecting a private contribution toward the Gulf-to-Bay Project is through the imposition of
special assessments against property located along Gulf-to-Bay Boulevard. As discussed in the previous section of this
report, there are two requirements for Ute imposition of a valid special assessment: (1) the property assessed must derive
a special benefit from the improvement or service provided, and (2) the assessment must be fairly and reasonably
apportioned among the properties which receive the special benefit.
It has been judicially determined that road and sidewalk improvements provide a special benefit to abutting property. In
fact, under certain circumstances the special benefit may accrue to property that does not abut the improvements. Although
the extent to which special benefit is provided by the Gulf-to-Bay Project has not been detennined, it is clearly provided
to property directly abutting Gulf-to-Bay Boulevard. If special assessments are used as a funding source, a specific
special benefit determination will be made during the next phase of the project.
The allocation of cost among parcels of property that are specially benefitted by a project is always the most difficult aspect
of a special assessment program. Since the Gulf-to~Bay Project will promote redevelopment and commercial enhance-
ment, it is a candidate for the "assessed value" method of apportionment. Under this method, the contribution of each par-
cel of property is proportional to its assessed value for ad valorem tax purposes. This method is generally considered fair
by the property owners since the more profitable business generally have a greater assessed value and bear a greater share
of the cost.
Preliminary Data Analysis
Information was obtained from the ad valorem tax roll files maintained by the PineIJas County Property Appraiser for all
properties within one mile north and south of Gulf-to-Bay Boulevard. The files obtained included the name, address and
legal fiJe, the master appraisal file and a file from the County's geographic information system ("GIS") which provided an
electronic map of the area.
Using the GIS files, boundaries of the Gateway District, Eastern District. East Central District and Western District were
established. Once these geographic boundaries were developed, parcels of property directly abutting Gulf-lo-Bay
Boulevard within each district were identified The parcel identification number for each parcel of property identified on
the GIS file was then correlated to the ad valorem tax roll database files to obtain information regarding property owner
name and address, the use of the property as assigned by the Property Appraiser for ad valorem purposes, and the taxable
value of the property. Since the Gulf-to-Bay Project will promote redevelopment and commercial enhancement, the
preliminary analysis excludes property classified as residential in the Property Appraiser's system. A summary of the
various property uses abutting Gulf-to-Bay Boulevard is attached to this report as Appendix A.
Preliminary Funding Strategy
As previously noted, this preliminary analysis assumes that the special assessment against each parcel of property will be
proportional to its value for ad valorem t-1X purposes. Using this approach, the assessment rate each year will be similar
to a millage rate. If the City imposes special assessments and issues bonds to fund the property owner's contribution, the
assessment rate must be sufficient to pay debt service on the bonds. For simplicity of presentation in this Report, the
assessmen~ rate will be expressed in terms of miHage.
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27
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Since the Gulf-to-Bay Project is divisible into five distinct districts, the value for each district was detennined separately
and the project cost was allocated to the districts. For purposes of this allocation, the entire project cost for the Median
Component (other than monuments) was prorated on the basis of project length within each district. The cost of each
individual monument was allocated to the district in which it is located. This cost allocation methodology will be reviewed
during the next phase of the project and may be revised.
The City Charter requires that revenue bonds for projects in excess of $1,000,000 be put to public referendum with the
exception of revenue bonds for public health. safety or industrial development. Special assessment bonds to fund the Gulf-
to-Bay Project would be similar to industrial development bonds for two reasons: first. the bonds would be payable from
revenue derived from the persons benefitted by the project, and second, the goal of the project is to stimulate economic
development. The City may wish to consider filing a validation proceeding to determine if bonds issued to fund this
project would be exempt from the referendum requirement.
In order to detennine the percentage of the project cost that could be funded by special assessments along Gulf-to-Bay
Boulevard, the amount that would be generated by special assessments imposed at various rates was compared to the
estimated annual debt service necessary to fund the project. The property values used were taken from the current ad
valorem tax roll and include only abutting commercial property. The amount and value of property subject to the proposed
assessment is likely to change when the actual special benefit detennination is made during the next phase of the project
For purposes of this Report, the annual debt service necessary to fund the project was estimated to be $500,000. This is a
very rough estimate. The actual debt service cannot be detennined at this time and may be greater or less than the amount
assumed.
The following table computes the percentage of the project cost for the Median Component allocable to each district that
could be funded from special assessments imposed at the rate of one mill per year. This analysis does not include debt
service coverage factors or collection cost associated with the special assessments. If special assessments are used as a
funding source, these factors will be developed and included in the report generated during the next phase of the project
TABLE 2
PROJ ECT COSTS
MEDIAN COMPONENT
District Allocated Allocated Taxable Assessme1lf Percent
Project Cost Debt Sevice Value Proceeds Funded
(per Mil) (per Mil)
Gateway $ 323,548 $ 30,902 $ 1,350,100 $ 1,350 4.37%
Eastern 1,031,974 98,564 81,428,200 81,428 82.61 %
East Central 761,670 72,747 29,758,200 29,758 40.91 %
Central 1,444,850 137,998 40,835,100 40,835 29.59%
Western 1,672,991 159,787 18,452,680 18,452 11.55%
Total Proj. $5,235,036 $500,000 $171,824,280 $171,824 17.18%
As evidenced by the foregoing table, an assessment rate equivalent to one mill funds slightly more than 17 percent of the
total project cost for the Median Component If, for example, the City imposed spedaI assessments at a rate equivalent to
two mills, that would leave approximately 65 percent of the project cost unfunded, requiring a City contribution of
approximately $3,400,000.
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28
In lieu of constructing the Median Component along all of Gulf-to-Bay Boulevard. the City may wish to consider one or
more districts as demonstration areas. The required City contribution at various assessment rates for any district or
combination of districts can be computed easily from the infom13tion set forth in the foregoing table. Although this table
includes the best current information, it is subject to change for the reasons described above.
Although the final determinations of speciaJ benefit and fair allocation of cost would not be made until the next phase of
the project, it is likely that no politically practical assessment rate will exceed the share of the Project cost for the Median
Component that is properly attributable to the property owners. Accordingly, the specific assessment rate to be applied will
be a policy issue to be detennined by the City Commission. The following factors should be among those considered by
the City Commission in detennining the appropriate assessment rate.
1. Many of the property owners may be asked to provide additional right-of-way for Gulf-to-Bay Boulevard
to complete the Curbside Component of the project.
2. The City may wish to consider a special assessment against the same property to provide for maintenance
of landscaping included in the Curbside Component of the project
3. The City may wish to consider funding the monuments from local public funds. This would be justifiable
since the monuments will enhance the image of the entire City. This approach would also avoid placing a
larger burden on property owners in the Western District. in which monuments are placed more closely
together.
The lowest ratio of value to allocated cost occurs in the Gateway District, in which an assessment rate equivalent to 20
mills would not fund the allocated project cost for the Median ComponenL Fortunately, this is the area that may justify a
larger contribution of local public funds since it creates the visitors' initial impression of the City.
Governance
I:,'
If special assessments are to be used as a funding source, it will be important that the landowners support construction of
the project and believe their share of the cost to be fair and equitable. As the Gulf-to-Bay Project evolves, the City will
need to build community consensus for both the project and the proposed funding strategy.
Although the City could establish a special district to develop and fund the project, the extent to which the City will be
required to contribute funds and the need ~o integrate the Gulf-to-Bay Project with other elements of the One City - One
Future program make this an undesirable alternative. It would be more appropriate for the City to develop and fund the
project with the assistance of a formal or infonnal advisory board. This approach has been used successfully with similar
projects. Using this approach. the landowners can become involved with the project and provide valuable input regarding
its design and financing, but the City can control the level of its contribution and ensure that the Gulf-to-Bay Project is
coordinated with other elements of the One City - One Future program.
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SECTION 9 ACTION PLAN
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9. REDEVELOPMENT ACTION PLAN
Within Right of Way
I. Meet with F.D.O.T. to verify feasibility
2. Assign staff member with full responsibility for phase one implementation
,
,
3. Create public/private pr~ject steering committee
4. Define phase one scope i~Uding quick victories such as:
- McMullen - Boot~'~ 19 box beam graphics
- Sewer plant
- Welcome Center! Gatewa
- Median plantingsl Increas
- Banners, paint, etc.
NOTE: DAVE BAR1'D WILL UnV) E
THIS PAGE ON IIUNDAY 8/11/911
5. Detennine phase one budget and fundi
6. Conduct detailed traffic study if required; c rdinate planning efforts with ED.D.T. and City departments
7. Verify real physical opportunities to implement affic management and design solutions; prepare survey if necessary
8. Prepare design and construction documents of phas ,one for redevelopment
\
\
9. Develop district treatments, overlay zones, pattern book(s)
\
Within CorridorlDistricts
1. Define role within localJregional network
2. Development land use plan(s):
- Belcher to Highland, Druid to Drew (Community Redevelo
- Downtown
3. Develop City-wide investment priorities
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