01/17/2001 - Special�
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. . AGENDA
. . SPECIAL MEETING
.
JANUARY 17, 2001
. 1:00 P.M.
_ �.
1. Call to Order
2. Staff and Consultant update of the Proposals
� 3. Staff update on Beach by Design
4. Mack Development Team
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S. ` Markop�lis Development Tearn
6. Kirnpton Development Team �
;;. , 7. Adjourn
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January 12, 2001
To: Mayor and City Commission MemUers
Fi•: Bill Horne�interim Cit Manaaer
� Y b
Re: Update on Beach By Design Draft and Clearwatei• Beach Development Propasals
Pursuant to your direction, staff has been conductit�g meetings with each of the party�'s that have
proposed si�nificant development altei-natives on Clearwater Beach. In adclition the staff has
continued to revie�v and refine the draft Beach By Design document. City staff and the
consultant have also met with the Secretai-y of the Department of Cominunity Affairs regarcling
the �verall structure of Beach By Aesign and pai-ticularly regai-ding the i•esort bonus unit pool and
� the construction of the type of catalytic pi•oject tl�at is anticipated by Beach By Design.
Each of the development teams that addressed the City Commission in December have either
made design modifications or inciicated that modifications would be submitted andlor have
modified the financial sti•ucture of their or-iginal proposals. City staff and the city's consultant
will �rovide an update of each of tl�e projects at the specia] City Commission meeting on January
17. Representatives of the development teams will be available to address theii• specific
proposals.
In terms of the draft Beach By Design document, several changes ai•e being suggested. These
will also be presented at the meeting. These include increasing the bonus d�nsity pool From �00
units to 600 units, providing a moi•e specific framework and alternatives for the East Shore
"Marina Residential District", adjustments to the suggesled d�sign guidelines and altei-native
locations for additional beach pai-king facilities.
,�
♦
Beach by Design:
A Preliminary Design for Cleaitivater Beach
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TA�3LE : QF CONTENTS
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%�°° '�Iatroduction/Summary
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II� ;��'�cttiire Land Use
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A.S �� O1d= Florida District
B:�`=Destination Res�rt District
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C � Mai=�na Residential �Dis�rict
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D,� � Retail and Restaurant D,istrict
E;�`Pier.�60`Dfstriet _ .. .
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F��;s Small IV.totel Dist� iet ;
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G":�"Beacli Waik>District
H � Clearwater Fass Drstrict �
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J[LII:±Mobili�y �
A; ��'A'r,rLYal and Distnliiition
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;1 � Entry
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2,� N�rth Beacli - �
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3.��KSouth';Beacli
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B�:�Alterriafi�ve�;Iv�odes nof=�,7'r'ansportatioii
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:1 r `Pedes�r-iai�
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2 =}Bicycles
34 Irii�ra Beacli Transit �
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�C�?�"Access, Rationirig
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`1 r .Residential�`and Guest Prionty,
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21 Access�Rationrng by Controlled .Access�Laries _
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� �U �� Transit fiom Do'writown}to Beach
,
E.`r=` Trarisit:between;tli�'�Bai"rier�:Islarids
'Y,'�" Offxf Street� Parking
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�A �'�Pier 60 Garage
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C � Rockaway Garage
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D°� Clearwater' Pass Drstnct` Garage _
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_ .� � F ata�ytic;�Pro�ects
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A a I��rth Mandalay Resort�De�elopmeiit
� B � Community Redeveiopment'DistriGt Desigiiatiori
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C` `. Be`ach �Walk:. ; New,Soutll Gi:ilfview Drive ,
�VI.]E:"conumic;l2ealitg�.and Feasibility
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VIY.rt1l�esign �Guidelines .. . ;
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I. Introduction/Surnmary
The City of Cleanvater �s committed to the revitalizatiorl of Cleai�vatei- Beacll as a"gr•eai" place
to live and visit. Clearwater Beach is both a�vorld famous tourist destination btit also home to
more than 8,000 Families.
Clearwater Beach is comprised of t�vo elements: the natural environment and the built
environment. The natural environm�nt — the beach, the bay and near shore waters — are
remarkable resources �vhere residents and visitors can reci-eate and relax. Clearwater Beach is
recognized as one of the tnily �reat beaches in t�1e United States, if not the world. In contrast, the
built environrnent on central Clearwater Beach — the traditional tourist area — suffers from
nbsolesceilce and age. Most of the buildings in Clear�vater were built at a tiine when the tourism
business was ��ery differerlt than it is today and the strength of the City's totirism is not sufficient
to support modernization and redevelopment. Beach by Design assumes that there is
considerable market support for residential, hotel, time share and retail uses on a revitalized
Clear�vater Beach if the negative aspects of character and quality of the public realm, including
traffic circulatior, and traffic, are improveci.
In 1997 and 1998, a Ylan was prepared for Cleai-��ater Beach entitled "Cleai-water Beach:
Strategies far Revitalization." This Plan was prepared after an extensive public process,
directive surveys and input from the City Commission and City administration. The purpose of
Beach by Design is tu irnplement th� recommendations of that Plan in light of fiscal and legal
constraints, analysis of the econoi�ny and the inarlcet, as well as changed conditions.
Clearwater Beach: Strategies for Revitalization presenteci � number of strategies which if
implementzd would lead tu the redevelopment of the �each. Thes� strategies can be group�ed in
the Following generalized topics:
transportation and parking
redevelopment of the supei-blocks between
redevelopment of the Mandalay retail district
upgrading of the Beach
Gulfvie�v/Coronacio hotel/retail redevelopment
East Shore entertainment district and marina
Bayside inulti__family redeveloprnent
Brightwater Finger redevelopn�ient
Transportation and Parking
Clearwater Beach and the I-filton and
Clearwater Beach: Strategies for Revitalization contained a number of transportation and
parking projects. SOIIle Of tllC S1�I11�1CaI1t tC':l.l1S})OI"tatlOIi 1I11jJi'OVC111eI1tS IIICILIC�EC� I110C�1f1CailOI1S t0
the overall at-rival a7d distribution system, including the nai•rowin� of 1�Iatldalay fi•om tour l�nes
to two �vith parallel parking, the e��ansion of o��e or bo�h of the sti•eets to the east and parallel to
Mandalay, and r.�odifications to Gulfvie�v Boulevard. Iil adclition, Sti•aiegies ('or Rcvitalization
0
recommended the development of a coordinated streetscaping program, the expansion of
sidewalks and significant parking garage projects. TIl� 1111O1111t Of (�ilt'k1I1� ��vhicl� these parking
projects would add if implernented is up to 1,110 spaces.
Upgrading the Beach
Strategies for Revitalization contains a nwilber of strategies for upgrading the Beacll
itself. T�vo of the most significant strategies include the removal of' parking from the Beach to
create an enlarged beach activity zone irom South Gul fview west to the water and the creation of
a"beach promenade" building on the "success of Pier 60 Pa�k as a place of significant
pedestrian, bicyclit�g and skatitlg activity." T}�ese ec�hancements �vei-e vie�ved as signiFcantly
enhancing the viability of the commercial properties on the east side of Soutll Gulfview. More
specific projects included within this overall strategy i�lclude: a promenade of colored conerete,
widulating in form, with appropriate beach landscaping, conversation areas, matching trash
receptacles, benches and lighting, and the incorporation of tournament c�uality volleyball courts.
Redevelopinent of the Superblocks b�tween Cleanvater Beach Hotel and the Hilton and the
Mandalay Retail District
Strategies for Revitalization cl�aracterizes the area between tlie Clearwater Beach Hotel
a.nd the Hilton as "tr�e best oppor-tunity for additional high_rise, mixed use hotel development."
Strategies for Revitalization cails for a concentrated three_block strip of upscale beachfront
hotels. This critical mass of development is nec�ssary to support the redevelopment of
Mandalay as a"Main Street Retail Street" and to gener•ate a11d support a diversity of up_scale
restaurants, clubs and other forms of entertainmetlt iil sllort supply on the Beach. Strategies for
Revitalization recognized ttlat the heigllt limitatioil of 92' tY�ight present a real hindrance in
attracting desirable developrnent arld in that event, height limitations should be relaxed in
coiisideration of "trade off demands."
Gulfview/Coronado Hotel/retail Redevelopment
Strategies for Revitalization recognizes the redevelopment of Gulfview/Coronado as "key
to the long ten:� success of Cleai-water Beach." Strategies for Revitalizatioii proviales for specific
pai•king/transportation iinprovements to this area in oi-der to "optimize project densities" in the
area. "�'he design of buil�ings in this area sh�uld allow gr�ater height while maintaining human
scale at pedestrian level and maintaining light, air and vie�� corridors.
East Shore Entertainment District and Marina
Strategies for Revitalizatioil vie���s t}�e East Sho►•e Enlertainment District and marina as an
opportunity to expand available commercial opportunities tllat can take advantage of immediate
water side development. It also sug�ests a t�vr�_level watc;rfi•ont retail and restaurant activity
area linked to the Mandalay retail district aiid 1 1111I"1111 l�Vli�l a boardwalk which would allow
linkage to the City's rnarina.
V
Bayside 1Vlulti_fainily Redevelopment
itrate�ies for Revitalization proposes that some of the small l�otel and inotels be
converted to true residential uses of comparable densities, thereby strengthening any remaining
viable small hotels. Between Ba}m�ont and Papayz there should be rnid_rise, rnultifamily
residential units or condominiums as �veli as high quality time share. Augmentation of quality
housing stock will better support the consolidated retail districts on Mandalay and the prc�posed
East Shore Entertainment District. Strategies foi- Revitali-r.ation also called for the vacation of
East Shore for one block and combining tlle waterfi•ont pi-operty with the property between East
Shore and Mandalay.
Brightwatei• Finger Redevelopment
Strategies for Revitalization calls for the conversion of this area to three and four level
townhouses and time sha.res. Regulations should encourage developm�nt that is consistent with
redevelopinent that occurs across the waterway.
Beach by Design is a preliminary design for the revitalization of Clearwater Beach whicr
implzments Strategies for Revitalization. Beac}i by Design focuses on the land area between
Acacia Street and the Sand Key bridge, but will have a direct and immediate irnpact on lands to
the north and south of this area.
Beach by Design is based on a series of strategies:
creation of an attractive and efficient "arrival aild distribution" system at the intersection of State
Road 60 and North Mandalay and Coronado;
tran�formation of North Mandalay into an attractive, pedestrian_friendly street which provides a
high quality address for retail and restaurant uses;
renovatiQn of Sfluth Gulfview to the west to create a unic�ue two_way, local street as part of a
destination aualit� beacl�.front �lace;
improving traffic circulation to the south of State Road 60;
improving sidewalks and creating an entire beachfront transit system;
constructing new parking facilities south of Pier 60 park to support beach visitors and north of
Pier 60 park to'sup�orf the North Mandalay retail/restaurailt con•idor;
promotii�g a small number of catalyiic redevelo�n-ieiit projects; and
the ad�ption of ciesign guidelines which are neces�ary to a�hieve the objertives of Beach by
Desigli.
II.� ��utur� L�nci Use
The existing pattei'Il O� 11I1C� t1Se IS Z 1111X Ot j�l'llll�ll"IIy CO1I1111ECC11I USeS _ IIOI�IS, motels, retail
shops, restaurants and tourist and/or recreational operations _ between Acacia Street and the
Sand Key bridge, Functionally, this area is divisible into a numUer of distinct districts:
an "Old Florida" district which lies between the Bay and the Gulf and Acacia and Rockaway;
a destination resort district west of North Mandalay bet�veen th� Pier 60 district and Rockaway;
a rnarina district to the east of Poinsettia and Noi•t}1 Mandalay to the north of Baytnont bct�veen
R�ckaway and State Road 60;
a retail/restaurant district 1�etween State Road 60 and Ba}nnont and North Mandalay and
Poinsettia;
a Pier 60 district comprised of the beachfi-ont land between the Hilton Hotel and the Days Inn
and the City Marina;
a small inotzl district between Coronadoi � Hamden and on Brightwater to the south of the
Pier 60 district;
a unique beach �valk district to the west of Coronado between the Pier 60 Park and the Adams
Mark Hotel; and
a south beach/Clearwater Pass distri�t including all land between sauth and east of tl�e Adams
Mark x-iotel between Clearwater Pass and the Bay and west and north of tlle Sand Key bridge.
Each of these districts represent a distinct condition and hav� common opportunities for
revitaliZation and r�edevelopment.
Q.. The "Old Florida" District
The area between Acacia and Rockaway is an arca of transition Uetween resort uses in
Central Beach to the low intensity residential i�eighl�orhoods to the north of Acacia. Existing
uses are geiierally the same as the balance of the Beach. However, the scale and intensity of the
area, with relatively few exceptions, is suUstantially less than coinparable areas to the soutll. The
mix of uses in the District favors residential more than other parts oF Clearwater Beach and retail
uses are primarily neighb�rhood_seiving uses. Given the area's location and existing conditions,
Beach by Design conternplates the renovatioii and revitalization of existing improvernents with
liinited new construction where renovaiion is not practical. Netiv sin�le family dwellir��s and
touinliouses are the prefen•ed forrn of developrnent. Densities in the area should be generally
limited to the density of exisiing improvements and buildin� hei h�sh�uld be low t� mid�rise in
accordance �wit�i t�ie Communitv Development Code. , Lack,�of parkin� in this area rnay hinder
revitalization of existin� improvemen#s, particularly on Bay Esplanade. A shaxed parlcing
strate r should��e pursued in order to assist revitalization effarts.
.
B. Destinatio�i Resort Disti-ict
The Destination Resori District represeiits a unic�ue opportunity for qualily beachfront
redevelopment W�11C�1 �r�ould se�ve as a catalyst for the revitalization a�Id redevelopment of
Cleaitivater Beacll to tl�e nortl� of the Piei- 60 Park. Two of the stronger destinations on
Clearwatei• Beach _ the Hilton and the Cleaitivater Beach Hotel i are located at opposite ends
of the District, bracketing ihe blocks l�etweeil Papaya 711C� B1j�111011t. T11is area is C1111e11t1y
llll�i'OVeC� Wltll IIlOC�eSt OI1e 1111� t�'VO StOij� I110tE�S �111Ci 1'Etall shops which clearly show their age,
with frequent tenant turnovers and frequent vacai�cies. Side�valks within the arca ai-e dilapidated
or non_existent and road pavement is broken and uneven.
North Mandalay is a visible reminder of the challenges facing Clearwater Beach.
Norivithstanding the presence of the Hilton Hotel, the Clearwater Beach Hotel, Pelican Walk and
Heilmans, North Mandalay is little i��ore than 80 feet of c�ilcrete bordered by nai-row sidewalks,
tourisr�l retail aild i-estaurant uses. However, I�,`oi-tll Mandalay is more Ll1�tI1 a ri111'g1I111 I'etal�
street; it is also the entry way to some of Clearwater's best neighborheods to the north. For
rnany years, the City has contem�lated the beautifcatioil of Noi-th Nlandalay in the hope of
creating a more vibrant tourism_based speciality retail district tike that Fotind in other tourist
destinations like Sarasota and Naples. Conflicts over North IVlandalay's traffic function have
stalled efferts to beautify tlle street into a desireable sti-eet wliicll provides visitors antl residents a
good qualitative level of servic�.
Not�vithstandin� the existing conditions within North l�landalay and the Destination
Resort Distr�ct, the District represents the primary opportttnity for n�ar_tern redevelopment on
Clearwater Beach because of the rclative stren�th of the Hilton and the Clearwater Beach Hotel
and the opporiunity for beachfront resort development with direct beach access. Untike the area
ta the sauth of Pier 6U Park, private ownership extends to tr�e beachfi•ont in the Destination
Resort District, cYeating an opportunity f�r the assembly of land �,�itl� frontage on the Beach. The
assernbly of �hese lands into redevelo�ment parcels of sufficient size to accommociate
contemporary resort residential and l�otel/time share development can be facilitated by the
vacatian of the right of way of North Gulfvie�v between Bayrnont and Papaya which exists only
to �rovide local access to prop�rkies within the District.
Ideally, lands witl�ili tlle District would be assembled on a block by block basis with the
lai�d between North Mandalay, Papaya, San Marco ani� the Gulf as one parcel and the land
b�tween North Mandalay, San Marco, Bayinont and the Gulf a second parcel.
The existing condition of the retail uses along the west side of North Mandalay have a
negative impact on North Nlandalay as an attractive and desirable street. The sticcess of Pelicail
�Valk, a bold and pionee:ing redevelopment Pffart, has been negatively inipacled by the
unattractiveness and econornic weakness of retail uses along the west side of North Mandalay.
The preferred fonn of redevelopment for this area is tnixed use with resort resiciential and
l��spitality uses frontins,7 on the Beach and r�tail, restaurant and residential uses fi-onting on North
Mandalay.
Currently, more than half of' the frontage on North Mandalay daes ilot havc a�l active
.
retail facade on both sides of� the street. This lack ot` "closure" diminishes the potential of' North
Mand�lay as a retail street. Ideally, North Mandalay �vould be redeveloped as a two._sided retail
street �vith retail uses on both sides of a street �v�l(Cl1 is suCficiently pedestrian_fi-iendly that
shoppers could easily cross fI'U111 one side to the other. Pedestrian friendliness requires a
functional bari•ier between movi�lg vehicles aiid pedestrians on t}ie side�valk ii� tile form of
parked cars, closely_spaced street trees or some other kiild of pllysical l�ai-rier. Pedestriarl
friendliness also requires well_marked cross �valks and, in the case of a four lai�e street, a safe
"�laVeIl�� lIl tlle I11ed1aI1 SO i�1at �)eCjeStilallS C1I1 1111kE tlle CI'OSSII1f�.T lil tW0 St1�ES.
Nortll Mandalay sidewalks should be desigr�ed so that p�desti•ians C�lll walk along
building facades and the curbside portion of the sicle�valk is dedicated to landscaping and street
amenities including cafe seating and casual setting of street fiirniture. Property owners srould
provide arcades or a�vnings to provide cover for pedestrians durii�g inclement weather.
Sidewalks should be surfaced ���ith pavers or cotnposed of other specialty materials like the
colored coquii�a pavemc;nt used in the sidewall:s at the Beach Roui�dabout. Nortli Mandalay
should be lined with palrn trees, spaced no �vider than 30 foot on centers. While Majool Date
Palrns would be a vety desireabie strcet trce foi- I�TOrtIi 1Vlandalay, matclied Washingtonian or
Sabal Palms �vould be an acceptable cost comprornise. Low landscaping plantei-s should be
inclL�c�ed in the non_walking po_rtion of tlie sidewalks with colorful foliage plants or annuals.
Flowering annuals should be located in pots along the buildin� side of the sidewalk to identify
individual uses and to i.ntroduce col�r into the streetscape. The rnedian shoulci be landscaped
with ground cover and specimen street trees.
The political rhetoric in regard to North Mandalay has framed the issue of traff c
convenience and safety versus aesthetics. In truth, the issue is far more complex and involves
the liatural tension and the interrelationship between quantitative and qualitative meas�ires of
quality of life. This issue is discussed in furtller detail in t}le Mobility section of t11is Plan.
C. 1Vlarina Residential District
The area to the east of Poinsettia and Narth Mandalay to the IlOt'tll of Baymont is
pi-imarily a residential district �vith a fe�v motel and restaurant uses. T'he parcels of land to the
east of East Shore fr�nt on Cleanvater Bay. H�wever, those parcels are relatively shallo��,
limiting the utility of tlle existing parcelizatioi�. Beach by Design anticipates the redevelopment
of the Marina District as a watzY�fi•ont resid�ntia! ��a nei ng borhood with parcels to the east of
Poinsettia consolidated witll parcels to the east of East Shor� in favor of land �ssembly. �e
��p»4 n�nrnnter �++ �F��a �/fnrir-in Tii..ir}i�y�,ti���.ttJVL«ir�%ii»•_ +r>>��e�nfri��r' r�rim�rii
Ll� �4 �JL\1
�•
Four distinct b1Q�ks_ sho_u_la he created fronl this consolidated land between the Cause��vav and
Baymont �Street consistent wirl�i existin� area_.street _patterns. P�destrian access shou�d be
provided tl�rou�Lh each block to the �ntracoastal `V�tterwav a�ld t�rmi.lat� at a public boardwalk
located alon�Lthe shoreline trorn the �ausewav to Mandala�� Avenue. Retail and restaurant uses
are appro_priate in the north and suuth block onlv and residentiai uses located between. The
Yacht Basin Apartment site, which is located on thc� north side or Bavmont, should be consi.dtred
a.n inte�al part of this nei�hborhood. It must be included in anv consolidation effort and is an
a�pro,priate site f�r a marina based hotel a>>d other residential uses.
0
If�al1 of�t�iis land is consolidated under sin�le ownership and developed a.ccordin��to the Marina
Residential Districf`framework as a unified plan, the City should do the following: vacate East
Shore;�create an assessment district to fnance_the board�alk constru�tion; participate in a 7�arage
at �=Pelicaii Walk; and malce available the deiisitv pooi Far a mari na�based hotel meetin� the
reqiiiren�ents of � Beach bv �De�i�n on` fihe Yacht Basin Apartrnent site, includin� the potential
a.11owance of 1 SO fe�t`in buildin�hPi�ht. All other buildin�, heights within this district �vould be
permitted between 2-4 stories above parkin�
In the event that, lot. consolidation under one o�vner does not occur, Beach b Design
contemplates the City workin� with_District property owners to issue a request for proposals to
reci.evelo,p the District in the consolidated manner identified above. If th2s a.,pproach does not
�eri�rate the desired:_consolidation� and redevelopineni:; Beach by Desi�n cal7s for the�: City to
initiafe a�itv Marina DRJ in order to facilitate develo,pment of a�riarina based nei�hborho�od
subj�ct �o��propertv owner support: `� If Ioi consolidation does n�t occur withui the entire I�istrict,
the maximurn �ermitted height of development east of East Shore will be restr�cted to ,two .(2)
stories �above parking; anri retween Poinsettia and East Shox•e could extend to four (4} stories
above parkin�,An additional storv could be" �ained in this area ii the proper-tv- ��vas` develo�ed as
a live/work nroduct:
D. Retail and Restaurant District
A key eleillent of any successfiil resort destination is a vital retail and restaurant district.
Given traffic considerations for North Mandalay, �each by Design contemplates that North
Mandalay wi11 be an attractive street, but will have lirnited function as a t�vo_sided "retail
street." As a result, Beach by Design contemplates that the land area l�et��veen North Mandalay
and Poiilsettia will become a retail/restaurant district in contrast to North Mandalay becorning a
gxeat retail street. Several uses including Pelican Walk, Heilemans and Eckerds front on both
North Mandalay and Poinsettia, providing for an efficient and fiinctional la.nd use pattern. A key
element of the Retail and Restaut•ant District strategy is the constniction of a parlcing garage
which vrill provide convenient parking to the District.
E. Pier 60 District
The Pier 60 District is composed of the lands ��vhich surround the Beach RoundaUout at
the intersection of Tvlernorial Causeway, Poinsettia, North Man:lalay and Coronado. Nlost of the
lands are owned by the City of Clearwater and are used for the City Marina, Pier 60, Pier 60 Park
and public parking.
Beach by llesigil calls for the beaiitificat�on ot'this entire District in conjunction with the
construction of the Roundabout and For the development of a Pier 64 Plaza as a place of
assembly on the Beach
F. Sn�all Motel District
The area to thr �ast of the Beach District is an area of si��all rnotels, rnany of which have
established ciiei�tele. The Small Motel District re[lects �l COI17Il10il paraclox of beachfront
communities _ improverneilts whicli were constructed i�l a difterent timc before jet travel and
air conditioning _�vith lirnited on_sitc arneilities a�ld of1_sti-cct ��arkirl�. In �Z�any parts �f thc
country, these kinds of units l�ave evolved iiito resideiltial uses. �-Io�vever•, t11c relative inteilsity
of adjacent land uses and the voluil�es Of :101'1�1 south traflic have 111a111La111CC� tl�e current
condition between Hamden and Coronado.
Beach by Design contemplates that the existing improvements in the Small Motel District
will be sustained over time. Although the e�isting improvements may not represent the
theoretical "highest and best" use of this area, the rclatively good COilC�it1011 of most buildings
and the economic value of the e;cisting irnprovernents make it difficult, if not irnpossible, to
aniicipate si�nificant land assembly, deinolition and ne�v development.
Bi•i�htwater Drive is also developed with smail motel uses with buildin con.ditions �atld
transient .:populations siinilar to those found along Harnden and Cororiado. Bri�litwater's
i^ocatign on the Intra�oastal Waterwa , in between two other stable residential "fingers",>inakes it
riper for redevelopment. Beach oy Desi n�calls for the redevelopment of Brightwater with land
uses and buildin� mass which are �compatible with the residential cul-de-sacs� to the.north. and
'south. Mid-rise townhouses and timeshares between �-- 4 stories above park�.ri�� are
contemplated. Additio�alLY, consideration should be �iven to the developrrient of _ a shared
parkinQ facili �.lanp� the street to provide some of the required parkin�that will be associated
uiitli redevelopnlent.
G. The Beach Walk District
The area to the west of roronado betwee�i the Adams Mark and the Pier 60 Park is the
prima�y "beachfiront" destination on Clearwater Beach. There are more tlian 800 public parking
spaces located on or near the Beach. These parking lots encompass approxirnately 52 acres of
land. While these parkiii� lots are extremely convenient for beacll patroils, the lots have a
�ignificant adverse impact on the character of South Gulfview as a"beachfroiit" district and as a
resort developn7ent area. The parking areas range in width frorn 275 to 900 feet and constitute a
visu�l and physical barrier between pedestrians and dri��crs along Gulfview aiid patrons of the
retailiresort iises an the east sidle of Gulfview, Tl�e rnodest state of motels and hotels along tile
Gulfview strip, in comparison to matels and hotels lo the north and south of the "strip", is a
re�ection of the fa�t that those uses are separated from the Beach proper by two lanes of traffic,
a s�ngle Iane �f parallel parking and either 2 or 4�ays of parking — a distan�e of 150 to 275 feet.
The firture of the Beach Walk District may b� �imitcd by pending cl��nges to the Coastal
Const�lictioii Control Line ("CCCL"). Tlie Departi��en� of Enviconmental Protection is currently
considering a revision to the CCCL whicl� would move the line lan�ward. Even tliough the
CCCL is a line af control, not setback, it is unlikely that significant new structures will be
perniitted to the west of tlie relocated CCCL. In tl�at t}ie CCCL does i�ot prevent revikalization of
existing structui•es, it is likely that i-edevelcprne,�t in tile Beach Walk District �vill prin�arily take
the forrn of renovation o f e�cisting structures.
Beach by Design contemplates the renovatio�i of' South Gulf'vie�v i�lto a�reat beachi'ront
place. The planned i•enovatio�� iilvolves i•eilloval of some or all oT the existi�lg surface parking to
the west of Gulfi�iew. The constructioti of a new parki�ig structtire south of the Pier G4 park �vill
allow for the replacement of spaces which are removed fi•om the beach proper. Gulfview would
then be relocated to the west of the elisting road rigl�t of �vay to the area cun�ently itnproved as
surface parking lots. The n�w Gulfview, however, �vould be in the form of a vehicular and
pedestrian promenade �vhich �vould constitute both a means of transportation and an attractive
place for residents and visitors. Dependin� on the ali ilment of the relocated Soutll Gulfview�
Beach Walk could �otentiall�create at least one de��elopment site �vith a drv sand beach. This
wou�reatly enhance the chances of aftractiri t� he qualit�esort development contemplated bY
13each b,y Desi�n on South Beach.
Beach by Design contemplatPS that the existing road right of way which is nat limited by
charter restriction would be declared excess property and made available ta the owners of
propei-ties t� the east of South Gulfvie�v if those owners propose to underiake renovation or
redevelopinent of those properties in a way which will advance the City's beach revitalization
objectives. Tliis strategy suppoi-ts i�evitalization in two ways — creating a"wor(d class" address
for the revitalized properties and providing additional land area for the constniction of additional
arnetziti�s. Both the promenade and tlle road issues are discussed in greater detail later in this
Plan.
H. Clearwater Pass District
The area to the south and east of the Beacll District and the Small Motel District is a
distinctive area of mixed use � high rise condominiums, resort hotels, recreation and tourist and
neighborhood serving retail uses. The Pass side of the District is relatively robust, though the
availability of off street parking is a limitin� factor i11 the revitalization of these improvements.
The Clearwater Bay properties are more modest in their stature and economic condition;
nevertheless, the motel propertiES are relativel}� successfiil. The balance of the District is made
up oi cornrnercial retail rroperties whicll prc�vide neighborhoocl sei-vice uses and entertainment
and tourist shops to residences and visit�rs.
Beach Uy Design contemplates that the Clearwater Pass District
strategic revitalization and ren�vation in response to improving conciition
Clearwater Beach.
III. I�Iobility
will be an area of
s on the balance of
The functional and economic integrity of a pla�e like Clearwater Beac}l depends iil large
pai-t on the extent to which residents and visitors arc able to move safely and eff ciently to and
frorn the geach and from pla�e to place on the Beach. The existing transportation systern is
comprised of 1Vlernorial Cause�vay, � four lane boulevard which c�nnects Clear�vater Beach to
the mainland, and a series of north_south roads which connect with the Causeway at the Beach
Rout�dabout.
Mobility o�l Gleai-�vater Beach is coil�prised of t�vo sep�rate elements: 1) access to the
barrier islands II'0111 lI7C lll�lllllZllc:�; a11C1 �� II1LI'�l_��i11'ICI' 1S��111(� LI'ilVCi. Mobilily on Cleai-�vater
Beacll is one of the �,lost a�rr�«�t CI1�11�CI14�CS tlle City ol' Cleai•�vater faces for a ntii»ber of
reasons.
First, the primary rnode af transportation on Clcanvater Bcach is the private automobile.
Bet��veen 35,000 a1�d 55,000 vehicles pass tlli'011�h the Beach Roundabout ut� a daily basis. In
part, this is a reflection of Arnerica's general love aftair with the autot�lobile. It is also a
reflection of the lack of facilities to acco►l�modate alternative modes of transportation like
sidewalks and bicycle paths. The "Jolly Trolley" is, theoretically, an altei-native mode of
transportation; utifortuilately, tlic Trolley is stuck itl tlle sarne tc•affic as all of tllc other vehicl�s
on Clearwater Beach.
Second, the roads on Cleai�vatcc� Beach are used foi' Illlllllple, conflicting purposes. For
the residential areas on Clearwater Beach and Sand Key, Norih Mandalay, Poinsettia, Coronado,
South Gulfview aild Harnden are sub_i•egional ai•terials which provide those areas with access to
the City as a wh�le and the region. For cei;tral Clearwater Beach, the roads are local retail streets
where residerits and visitors access goods and seivices. And final�y, these roads are the same
roads used by visitai•s and tourists to access the Beach and be a part of the
beach/tourisn�/entertainment sceiie. Unfortunately each of these user gc-oups has different
objectives and needs which often conflict �vith one another. For example, a resident on his or her
way home from work is rnost interested in tlle slior-test and quickest way home. A� the same
time, a local on the �vay to the hard�vare store is rnore interested in findirb a convenient parking
space. And, the visitor or tourist inay be ir�ore interested in sitting in traffic and enjoying the
Clearwater Beac11 "street theater." However, eactl of these users — with their different aild
conflicting needs — are tryiz�g to use tlle same road net�vork at the sarne time.
Resort beaches on bamer islai�ds are �inique places and it is not practical te expect thern
to function like other suburban landscapes. Incleed, thi-oughout the nation traffic congestion is the
noi-m for attractive accessible beaches — Cape Cod, Rehobeth Beach, the Uuter Banks, M}n-tle
Beach — to name just a few. In other words, in rnost parts of the country, the special character of
the amenity is generally accepted as c�iitweigl�ing the iilconve�iience of coTigestion. As a siinple
matter of fact, the same is evidently true in Cleaitivater Beacll. People wait in trafFic to get to the
Bsach because the value of the arnenit�, apparently out�veighs the inconvenience of congestion
and delay. The difficulty which arises is that those who tive on the Bai-rier Islands have a
different set af e�.pectations and talerance for delay.
Second, mobility o�l Clearwater Beach is not just a matter of traffic volume versias road
capacity. Cleaz-vvater Beach is blessed or cursed, ciepending on ane's pers�ective, with a
practically infinite clernand for beach acc�ss. Cleaitivater Beach is one of the finLst beaches
locatec� in a major metropolitan area in thc �vorld. The blessii�g relates to the economic Uenefits
of this demand/supply in_balance. The curse derives frorn the City's fillite capacity to �rovide
parking spaces on Clearwater Beach. In other words, all the i-oad cap�lCltj� in the world is IlOt
going to provide an acceptable level oF service iF a significant amount of traf�c has no place to
go an�i is forced to searcl� or ��vait on Beach roads, floping lor a parkiitg sp��ce. Wllile it is
teclv�ically feasible to pi-oviae additional parl:ing oil Cleanvatcr Beacli, tlie reality is tllat l�il��e
surface parking lots and parking stcuctures are �eiiei'11I}/ lIlC0I17��itI�I� �V1�}1 i�le C�ESil�eci character
of. a quality resort beach community. South GulCview — with almost 500 surtace parking spaces
actually constructed on the Beach _ is, iil t'act, a classic exa�nple of how the demand for
parking at a highly attractive commw�ity amci7ity cail dirninish thc charactet• of the arnenity
itself.
Third, Clearwater Beacll is lat•gely built out and there is l�o roum for additional read
laneage, even if it made sense to provide additional capacity.
In reality, the future of Clear�vater Beach will be detennined by how the City chooses to
deal with the mubility issues on the Beach. rf the City r,ontinues to rely upon the private
automobile as the primary mode of transportation to and fi•o�11 and along Clear�vater Beach, the
City �Will be confronted with the Hobson's choice of wlimaginable peak season, peak day, peak
hour traffic congestion or acres and acres o� Clear��vater Beach paved over to provide aduitional
road capacity and off street parkiil�. Alternatively, if tlie City takes steps to pro��iote or i-equire
the use of altemative modes of transpoi-tation, the City will conFront America's "love affair" with
the �rivate aulomobile, a confrontation which is alrnost always resolved in f.avor of Henry Ford's
legacy, a circumstance ti�hich calls to mind one modern philosopher's pPrspectives on rnankind's
ability to confront its challenges.
More th�n any tirne in histQry mankind faces a crossroads. One patli leads to despair and utter
hopelessness, the other to total extinction. Let us pray tilat we have the wisdom to choose
correctly.
Woody tillen
�Chere are four elements of improved mobility on C1ear�vater Beach: 1) an ef6cient and
attractiv� "ai-rival and distribution" systern for traffic c�oming to the Beach; 2) a fiinctional
north south road systern; 3) t}le use of �lon_automnbile forrns of transportation, particularly for
intra Cleanvater Beach. trips; and 4) demand controllecl by and limited by capacity.
Beach by Design contemplates that the City of Clearwater will: 1) improve the function
of the ro�d n�t�vork on Clearwater Beach to the extent that is possible without dirninishing the
character of the Beach; 2) expand the use of aiternativ� modes of transportation for
intra Clearwater Beach trips; antl 3) ration automobile access to Clearwate�r Beach, at least
during periods of peal: dernand. Beach by Desi�n projects that the C�ty will irnplement roaci
net�vork irnprovernents, alternative n;odes of transportation and access rationing on the basis of
the following principles:
the City should irnprove the fiulction of the north_south roads on Clearwater Beach as
trafficways and as commercial atad residential addresses
the City should establish a�reenway/sidewalks/bike path/transit program for Clearwater Beach
to provide pedestrian and transit accESS along Sc�uth Gulfvicw aiid Nortli Manc�ala�
individuals who live on the Bairier Islands and g�iests at resort units on Clearwater Beach should
be giv�n priority a.ccess to Clearwater Beach by private automobile during periods of peak
demand
gttests at resort units o�1 Clear-�vater Beacll sliould be encot►raged to use il 111C111S Of tl'ii11S�)O1"Lail01"1
other than the private automobile
dttring periods of peak demand, the City sholild providc altei•nativ� means of access in the foml
of preferentially priced parking in dowrltown Cleanvater and convenient transportation to the
Be�ch
the. City should impose congestion pricing for off street parking on Clearwater Beach ditring
per-iods of peak detriand
when parking facilities on Clearwater Beach are fully occ►.ipied, the City should limit access to
the Beach to individuals `vho live on the Barrier Islands or arc guests at resort units on
Clearwater Beacll or Sand Key
the City should design and construct road and parking improvements in the cont�xt of access
rationing and to ensure that any such improvemeiits do not aciversely impact the resources of
Clearwater Beach
A.
Arrival and Distribution
The int�rsection of Memorial Causeway and the Nortll Mandalay_ Poinsettia Coronado
north_south network on Clearwater Beach is the quintes.sence of the conflicts inhei•ent in
Clearwater Beach's multipie personality. At once, the intersection is the arrival and departure
point for the economic lifeblood of the City's tourisin econorny —� tourist's first and last
irnpression of Clearwatei• Beach — and Clearw�ter Beach's lifeline to the mainland. Historically,
the intersection has been a chake poir�t of epic pro�ortions with peak day, peak season backups
extending many miles to the east. The �learwater Beach: Strategies for Revitalization identified
the intersection as one of the five rnost irnportant problems on the Beach:
1. Clearwater Beach Entry Sequence
This subarea serves as the approach and entry to Clearwater Beach. It alluws the visitor and the
resident to sense arrival to a uniyue, urb�nized barrier island and offers fir.st glimpses of the
architecturat character and social values of the community. Currently, views to the major assets
of this sub_area (namely tile Cleaitivater Municipal Marina, Pier 60 and its newly constnicted
family park, and the Gulf itsel fl are congested by visual clutter (in tl►e form of sign�ge and
utilities), an outdated Civic Center, a small comrnercial venture, numerous surface parking lots,
and unattractive corninercial areas to the iioi-tli of Pier 60 Drive. Non_coordinated signage and a
complex system of right of way also confiise traffic.
In response to these conciitions, Strategies for Revitalization recom�l�ended that the intersection
be redeveloped in a way which would ensure a balance bet��veen trafCc rnovernent and creating a
positive "entry experience." I►i response to a City Commissioil directio�l to accelPrate the
improvemeizts t�� tlle intersection in advance of tlte ne�v Causeway Bridge, the preliminary design
for the intersection was prepared and submitted to the City Commissio�l i�i tlle fa(l of 1998.
Tlle celltral eleme��t of the rccommc��da�io�l ol� Bcach by Desi�n (or lhc i�itcrsectio« ��uas a
large, attractive Rotmdabuut. Althou�h the dcsirabilily �f� a rowiciabout likc "St. f�nnands" was
identified as an oppoi•tunity fot Clcai-watei• I3cilC}l d�u•ii�g the Strate�ics' pl�llllll!]� �)1'UCCSS, the
graphics wl�ic}i accomparlied tlle Plan iriclicated a"T" i»tersectio�l �vitfl C0111I11G1"C1�iVietall
development ZlOi1� the I101't�l �lI1C� south sicles of lhe road. When thc Stratc�ies concept was
evaluated, it became apparent t}�at the cap��city of �i "T"1111(;I'SCCtl011 and tl�c viability of street
retail along Caiiseway Botilevarcl did rlot satisfy tlle objcctives set out in Strategie�. Vai-iotis
alternatives were c;xamined and a large 1'O1111:�about ���as identi fied as the most efficient
intersection for the site �t�hich also could achieve the objective of creatin� a landmark entry
experience. Although relatively rare on thc; ���est coast of Tlorida, traffic circles and roundabouts
have been succ�ssfi�lly used ill ma»y parts of tlle world to strike a balance between demands for
traffic efficiency in areas �vllich are aesthetically importa�lt �o a cammtii�ity. St. Arn�aiiil's Circle
in Sarasota and a roundabout on Camino Real at the entrance to the Boca Raton Hotel and Club
are falililiar exa�ilples of the use of tlle rouildabout to strike a b��lance bet�veen the deil�aild for
traffic efficiency and community character. The only potential intersection design which
provided greater capacity than the roundabout was a grade separated intersection which would
have had a sigiiificant ne�ative. impact on retail uses aloilg Noi-t11 Maildalay and the
attractiveness of the entrance to Clearwater Beach.
The Clear�vater Beach Roundabout, which tvas completed in December of 1999, reflects
the imperative that the intersection of Memorial Causeway, Coronado and North Mandalay be
both functional and attractive — cai-ry higll volumes of traffic and still be aii attrac�ive landmark
welcoming a resident or visitor to the Beacll _ an icon to be remembered, to be used in
marl�eting the Beacll as a quality place to live acld visit.
The Roundabout is not, however, a"silver bullet" w}l:ch «�ill solve all of the City's
mobitity problems on Clearwater Beach. The Ruunciabout was designeci to improve the Function
of the intersection by approximately 25% over the existing condition. However, t}ie Rouildabout
will not, alone, Ue able to solve alt of the traffic problems whicll occur on the Beach, particularly
during �Seak hours, peak days and peak season. All intersections l�ave capacity lirnits and no
intersection, sliort of n�ultiple lane, grade separated interchanges can haiidle the volume of
conflicting turning move�lZents experienced on Clearwater Beach during peak periods.
Thousands of vehicles try to ��t to the Beach at the sarne time that residents are trying to get to
the maii�land on the few peak season, }�eak days when Clearwater Beach plays host to
international, national and regional ovec-night and day visitors. The existing intersection,
whatever its charactcr, is the "governor" on traffic movernent to and from the Beach and contrary
to popular opinion, is the Urimary cause af peak traffic congestion. By definition, an intersection
with a capacity �f 4,200 vehicles per hour can not provide an acce�table level of seivice when
service demand exceeds capacit}�.
2. North of the �COUndabout: North Beach
Tlle p��in�ary north south street to thc north of the Beach Roundabout is North Nitindalay
Buulevard which is the principal retail address on Cleartivater Beacl� and iS 1�1� Oilly COI1t11111011S
I101"tIl S011ill CO�IeCi01" �VI11C�1 CO11T1CCiS al� OI lI1C �ll•eas to the ►lorth oC the Beach Roundabout to the
rcgional tra�isportatioi� syslcm. Poinscttia and East Shorc 1CC0111,1110(Iatc a modest atl1011llt of
Il0it�1 SOtltll iI'Flf�it; ZS far as E3aymont, b�it prirnarily serve as a diversion route in the event of
�1�eCI10011 COI1��St1011 1t illt� �C�IC�I ROLU1C�ali011l. Beach by Desi�;n CO11tCIl;plates lhat North
Mandalay bct�veen �3ayrnont and thc nc�v Rot►ndabout should be redcvclopcd to make the street
lilt0 a�OOd lf IlOt �TCC�lI 11e�1CIl CO1t1111llilltj�, retail address. Ideally, North Mandalay, between the
new Roundabout illld B�1j�1110t1t, ��-ould be transl'orn�ed into a retail street with �vide sidewalks
and parallel on street parking with thc sai��e character as Fifth Avenue in Naples, Atlantic
Avenue in Delray or Worth Avciltte I11 Pali�� Beac11. Tlle residents of Cleaitivater Beacll,
particularly those to the noi-th of Acacia, however, are extremely coilcerned that a reduction in
the numbel- of laiies oi; North Maildalay �vill exacerbate �vllat thcy belicve is already intolerable
traffic congestion.
Objective measures of traffic demand and capacity indicate that the service capacity for
the reside�its is li��nited not by laneage of North Mandalay, but by the capacity of the intersection
of Memorial Causeway, Nartl� Mandalay and CoroTiado. In other ��vords, no rnatter �lOW I11UCr1
capacity and no ii�attei• �vllat tne level of service whicl� e�cists on North Mandalay, congestion,
particularly peak hour, peak season, is the result of the capacity of the intersection. It does not
matter whether Nortil Mandalay has the capacity to catry 15,000 vehicles per day or 3�,000
vehicles per day, trafrc congestion will result if the capacity of the intersection with the
Causeway is exceecied.
The Roundabout lias a capacity of approxirnately 4,200 vehicles �er hour (up by 25%
from the intersection it replaced). At the cui7-ent time, traffic on North Mandalay has a peak of
approximately 1, �00 vehicles �er hour. So long as traffic entering the Roundabout froln
Coronado and Nlemorial Cause�vay does not exceed 3,000 vehicles per hour, then traffic going to
and from the residential area to tl�e north of Acacia should IlOt e�perience congestior.. If,
hovvever, traffic to the Beach were to add rnore than 2,500 vehicles ciuring a peak hour,
congestion will occur, regardless of how rnany lanes e�ist on North Mandalay.
The City Cornrnission has considered a series of alternatives for North Mandalay between
the Roundabout and Baymo:it including 2, 3 arid 4 lane confi�urations and. i7cluding a
changeable lane option wl�ere the parallel parkiiig lanes �vould be used for travel during peak
peri�ds. The alternatives represented an an�ay of balances between the character and the capacity
of the street. The 2 lane configt.rations would allo�v f�r �vide side�valks, on_ street parallet
parking on both sides of the road and a generous, landscaped median. In thc 3 lane version, a
bi_directional center lane i-eplaced th� median. Each �f the 4 lane alternatives involved a
curnpromise of the width of sidewalks, on_street parking or the media>> in order to accomrnodate
two travel lanes in each direction. After extensive consicleration of th� alternatives, the
Commission selectecl a 2 way, 4 lane cross_section with �arallel parking on the western side.
3. South of the Beach Rowid�lU011t: South Beach
Mobility sotrth of the Beach R01121C��1�011t is complicated Uy several Cactors including
narrow roads, "back out" parkzng (�nuch of it on public rights_af �vay), access to beach parking
facilities, through trafGc to Sand Key, limited sidewalks, conflicts Uetween through traffic and
l�ca! traffic and conflicts ��etwee�l vehicles and pedestrians on Sotitll Gt�lfvie�v. According to
multi�le tr�iftic studics J�repared lor the City of Clcat-�v��tcr, aclequate traffic capacity for the areas
south of the Qeach Pound�lU011i, including Sand Key, mc�ins two relatively free_flo�ving lancs of
capacity southbound and t�vc� fi-ee__flo�vii�g lai�es northbound. �t least t�vo recent traffic studies
have recomil�ended that the <u�ea to the south of the Beach Rour�d�bout be served by a set of one
�v�ly pairs -- t�vo lane, onc ���ay sti•eets, eitller Coi-onado aild Gtil f��icw or Coronado and Harnden.
A key element of B�aclz by Desigi� is the transfor�tlation oF South Gulfview into a local
access street as a pai•t of a great i-esoi-t street/place. Ui�fot•ttinalely, the transformation of South
Gutfvie�v into such a place �vould fi�rther constrain the ca�acity of the road and �.vould not be
appropriate for ilon_local ti-affic. Coilsequeiitly, Beacli by Desi�il Foctises on improvements to
Coronado and Hamden 111 OiCI�i t0 1I11�iOVE 1i1f{IC COI1d1t10I1S S011tll Uf t�le B��1C11 Roundabout.
There are several options, iricluding the one �vay pairs recomme>>ded in the traffic st�.idies, �vit�
Coronado one way south and Hamden one �vay north. One study evaluated Coronado and
I-�amden as unbalailced pairs witll two la�les south alld oile lane north oci Coronado and two lanes
1101't11 111(� OIl� Ialle S011ttl 0I1 Ha111de11. AlieiIl�ltlVely COI"011ado coulc� be widened to a three or four
lane configuration. Eacl� af these alternatives is proUlematic.
One tivay pairs are ge�ierally not popular �vit}� the public because of ttle perceived
�nconveilience of indirect access and because one way pairs teiid to operate at higher speec�s tlian
two �vay facilities, one of the reasons why o�le way paii-s are more efficient. Speed is particularly
problematic because of the extensive "back out" parking along Cor�nado and Hamden.
Practicaily all of the motels and otller businesses along the east side of Coronada between First
Street and Harnden currently have perpendicular parking which recluires a drivei- to "back out"
into the travel lane in order to depart, a rnovement �V�11C11 conflicts �vith thr��agh traffic
movernents. On th� other hand the widening of Coronado to 3 or 4 lanes reqtiires the rern�val of
more than 153 parking spaces fi-om public rights of way al�d eliminating parking for more than
23 mvtels on the east side of Coronaclo. In this context, Beach by Design is se:�sitive to several
factors. First, while traffic congestion on Cleai-�vater Beach is, at times, horriFi�, the reality is that
serious and unmitigated congestion is episodic. Observatiolls vary, but most studies conclude
that urunitigated congestion occurs on approximately 40 days of the year and that during those
periods, there are no engineering solutions. Ill addition, tliere are 100 to 160 days on which
traific congestioil is more than an inconvenience, though it is not eleai- that traffic flows are
substantially worse than those experienced �n the vicinity of sigilificant traffic �enerators and
attractors like major shopping centers. In otller words, Beach by Design is wary of a des�gn
standard which is caiibrated to provide a hi�h level of service for seasonal denlands when road
improvements diminish the character of a special resource like Clear-vvater Beaci�. That is
particularly so because of the natural human tendency to fill whatevc;r capacity is made available.
The realily is that if roads are un_congested, trip making inc�•eases and vice versa.
Beach by Design resists a purely engineering solution to ca��acity dernands to the south of
the Beaeh R011I1C�ZU0tli in f�lvor of the COI1llllllllltj� character defining iillportance of South
Gulfvie�v as a local street and place of special quality. Ii1 ttlat conte�t, any of the alternatives
wtlicll have been siiggesteci — one way pairs and linbalanced ��lll'S OIl CO1'OIlaCIO �lI1C� HZI11C�e11 �I1Ci
widening of Coronado — are preferable to the subordination of the character of Cleaitivater Beach
to ti-affic tieecis.
ln his book In The Wake of� the "fourist, IlOtf',(� (�I�IIIIlEI' I'1't::(� BOSS('I111111 observed the
natural human tendency to over use special places until the speciality �vhich �vas so attractive in
tlie fii-st place is destroyed. Miami Beach, still a lusli ban-ier islaiici i�1 the early 1940s, is a classic
example of Bosselman's lament �i11Ci �V�li-11111� to others — all the ra�� in the SOs and 60s a�id
declared slum and blight in thc late 70s. 'I'i}e City of Clear-�vater �vould do well to heed
Bosselman's warning and avoid �vha± the i�oted coilservationist �nd political cartoonist Ding
Darling so cleverly described as the "Outline of History." For the City of Clearwater and its
citizens, tllere are no more utopias and the visioiz of Bcacll liy Desig�� is to sti-ike a meanitlgfiil
balatice between the competing interests �vllich ai•e scived by Cleai-watei• Beach. That means hard
choicc;s and real financial COI11II11tlI1�I1tS — IegaCj� C�CCISIOIIS WI11C�"1 will define the character of
Clear�vater Beach and its quality of life for generations to come. In the final analysis Beach b_y
Design foIlo�vs Strategies for Revitalization �I1C� seeks a balance between competing interests
and values.
Ultimately, Beach by Desi�n looks to Corotlado to i�nprove veilicular inovement sautll of
tlle Beacli Rounciabout. Wliile tlle existiiig public riglit of way for �Coronado is 6U feet, only 30
feet is currently paved and used for travel. The balance of the right of way is used for
intennittent parkways and sidewalks and �or �ff stree� parking. Beach by Design proposes that
Coronado be improved as a three lane road in one of tlle follo�ving configurations: I) t�vo lanes
SOU�Il c1l1CI OIle IaIle IlOI't11, or 2) ane lane soutll, 011e IZIle 110i1�1 and one lane For median, turn
lanes or to be reversible according to peak directional ciemand. B�acll by Desi�n proposes that
the City improve Coronado by recapturing a portion of the public right �f way which is currently
used for parkways, sidewalk and off street parking. To the extent practicable, the rigllt of way
should be reclaimed in a rnanner that miniinizes tlle irnpact of the loscs of off street parking on
those properties with no off street parking other than the spaces lecated in the public right of
way. Beach by Desigrl proposes a 45 foot wide cross_section «rith tl��ree travel lanes, directi�n to
be decided, and a 9 foot sidewalk on one side of tlie new cross section. It sllould be noted that
the existing constraints at the intersection of Coronado ar�d Harnden likely rec{uire that the
cross_section taper to two lanes prior to the intersection. However, given that much oF the
congestion south of the Roundabout is generated by beach patrons, the demand should be
diminished by trips «hich are diverted to ne�v �arking facilities iil tlie area.
Although Beach by Design recognizes the demai7d for additioi:al road capacity to the
south of the Beach Roundabout, Beach by Design does not recornmend that Hamden be
improved to three lanes for severai reasons. First, the utility of Hamden as a through traffic route
will be affected by the extensive bacic out parking all along its length of the western side.
Se� ond, increase traffic speeds and volumes will fiirther stress the srnall inote�s which line
Hamden. Third, Hamden currently serves as priiilarily a local street and tlic qu�lity of the small
iriotels — some of wl�ich have established a boutic�ue followin� — and the residential
neighborhoods to the east are likely to Ue diminislied by tlle conversien of Hamden into a
through street. Finally, Hamden is a great, if uni-ealized address. More than a tllird of the road
frorlts on Clea�tivater Bay and if anything, Beach by Desi�n i-ecommends that Hacnden be
improved as a unique address wllicll will justify reinvestiilent i�i tlie existing improvements along
Hamden.
B.
Altemative l�lodes oiTransportation
Unless the City of Clear�vater opts to SLlv01'C�111�1C� the character of Clcailvater Beach to
provide additiunal road capacity, e.g. one way pairs, widening two (ane i•oads to four fanes and
massive parking structures, the City llas no choice but to iilduce a sig�iiCcant share of
intra_barrier island trips to use alternative modes of iransportation. There are four modes of
transportation which are technically feasible for Clear�vater Beach: pedestrian, bicycle, and
transit.
1. Pedestrian
Clearwater Beach is a generally hostile ped�strian envirunmcnt. Sidewalks are
discontinuous or absent altogether tlu-ougtlout tlie Beach, and the few sidetvalks that do exist ai•e
too narrow for a typical family to walk i», any fom�ation other than single iile. The adjacent
aerial photograph shows the sporadic location of side�valks to the south oFthe Beach Roundabout
and shows that there are many rnissing liulcs in the system. Worse still, the sidewalks which exist
are narrov�,r, poorly maintained, rough concrete and largely unshaded — all attributes oF good
sidewalks. Most urban designers believe that sidewalks must be uf sufficient widttl to allow
groups �f 2_3 people to walk abreast a��d to allo��v sorne persons to� walk ]eist�rely while others
��alk rnore quickly, a tetal of 10 feet or rnoi•e. None of the sidewalks sllown on the aerial
photograph are ten feet wide. If t?le City of Clearwater wishes to prornote pedestrianism as an
alternative rnode of transportation for intra_island trips, the City must create an attractive,
comfortable and continuous network of sidewalks. It is not necessary that sidewalks be provided
on both �ides of every road, but it is necessary that al1 portions of Cl�;arwater Beach be served.
Beach by Design recommends that the City uf C[earwater make a serious cornrnitment to
improving the pedestrian environment on Clea�tivater Beach. A central element of that
commitment is the creation of C��€. Beach Walk, tlie proposed realignment and configuration of
South Gulfview which eontain� a prornenade, a bicycle�`roller blade trail and a gulfront sidewa?k.
In addition, the recominended improvements to Coronado include a continuous sidewalk frorn
Hamden to Pier 6Q. In the vicinity o#' Pier 60 Park, Beacli by Design proposes that sidewalks be
widened on the west side of the realigned Coronado and that the beach promenade be extended
to the Beach Paviiion from the nortl�em ternlillus of South Gtilfview. To tlle north of the
RoundaUout, the opportunity for significant pedestt-ianism is dependent on the width and
character af the sidewalks which are Ill;;lucied in the improvenlents to North Mandalay.
Assuming that North iVlanda?ay is a four lanc; facility, there are very limited opportunities for
iinproved sidewalks. To tl�e e�tent the C�ty partici�ates in any redevelopment in the area
betwcen the Beach Roundabout and Rockaway, the City should make every effort to obtain
additional ri�ht_of way in conjunction with redevelopment so that at least one sidewalk of at
least 14 feei in width cacz be constructed between North Beach and the Pier 60 Park. The
sidewalk svstem in the Clearwater Pass District sllould also be enhanced and coru�ected with
Beach Wa1k.
In addition ta impruvin� tlle pedestrian �nvironrnent on Clearwater Beach. it is critical that th�
Ueach pedestrian network be full� linked to Downtov��l. The potentiai f�r connecting tlie
Pinellas�Trail to the Mernorial Causeway �nd linkin� it to the be�ch network should be pursued
2. Bicycles
Bicycling is a natural transportation altei-��ative in a resort curnrnunity. In many resoc�ts,
visitors rent bicycles as a meai�s of touring and transport�tio�l and consider cycling as a part of
the vacation experience. Unfortunately, there are no meaniilgfiil pat[�s for bicycles on Clearwater
Beach. Along Coronado, for example, a bicyclist has no cli�ice but to cor��pete �vith cars for what
are relatively nac-ro�v trav�l lai�es. If tl�e City oF Clear-�vater wishes to promote bicycling as an
alternative mode of transportation, the City needs to install c�nvenient and safe pathways and
racks for secure storage at key locations. Mat1y COIZIIZIUI]it1eS in II111C11 less comf�rtable
environments have suUstantially i�ici-�ased use of bicycling for eiltertainment, shopping and
recreation trips by providing generous facilities for cyclists.
3. Intra Beach Transit
Transit is yet another option for intra_barrier island movernents. Technically, the Solly
Trolley qualifres as transit, however, its operations are inore �akin to an amenity, tilan a forrn of
transportation. Transit is generally uilpopu�ar in the United States and perceived to be ineffective
and unaffordaUle. Nevertheless, transit could be a meaningfi�I alternative means of
transportation if: 1) the rnovement of traclsit vehicles is not afFected by tr�ffic congestiori; 2) the
facilities have relatively short head ways (delays bet�veen vehicles); 3) tlle vehicles are attractive
and comfortable; 4) grants_in_aid can be obtained for capital costs; and 5) the cost of operation
is funded on a comprehensive basis.
Beach by Design recommends an intra_island transit system to cany passengers between
the public parking lot at Rockaway and the parking lot iininediately to the north of the Adams
Mark. The proposed transit system wou(d be reiatively slow moving vehicies, moving at 6_ 10
miles per hour — rubber wheeled or nairow gauge trolley — aloclg a fixed guideway. T'he adjacent
aerial photograph shows the general location �f the proposed guideway and the Iocation of
existing or proposed parking facilities.
There are thr�e reasons for a iixed �uideway. Most importantly, if the transit vehicle uses
the public roads wllich are clogged with traffic, the veliicles will not be a meaningful alternative
to the car. Secon�, �edestrians and vehicles, even slow_rnoving vehicles, do not rnix well unles.�
they operate in a defined area which is specially designed — urban plazas pavers and pedestrians
with the right af way force vehicles to accornmodate pedestrians. In addition, fixed guideways
alert �edestrians to the presence of transit vehicles, even when they approach �'rom the rear of a
pedestrian — when the vehicle honks its hom, the pedestrian knows where the vehicle will be
when he laoks around. Moreover, the proposed trazlsit system is coilteil�plated to operate in
t�ndein with increased pedestrian activity. In other words, a farniiy staying at the Adams Mark
rnight decide to go to Pier 60 Pai•k or City Nfarina. �Flley could, if they prefer, ���ait at the Adams
Mark parking lot tintil the next tra��sit vel�icle arrivcs, or in the alternative, they could start to
walk to the Park or IViarina a[o��g thc fixed guide�vay, expeciing to get on the next north bound
vehicle. If tlie vcllicle is detayed oc• tlley sto�� alona the way, they have neverth.eless been
converted from a potential car trip into an alternative mode of �transportation,
To the south of the Bcach Roundabout, it would be relatively easy to ac
transit guide�vay i�� the �roposed Soutl� Gulfview rc_alignment. Assuming two w�
along a single lanc, i.e. use of lay by arcas for pas5ing vehicles, a�uidelvay of app
feet in width is all that �vould be rec�iiired.
Near th� Beacil Roundabout, the gtiideway could easily be located bet�v
Roundabout and Piel• 60 Park.
conimodate a
y movements
•oxirnately 10
the Beach
To the north of the Beacl� Roundabout, the alignment is far inore difficL�lt. I'he foltowing
shows one aligilinent W�llC�l is theoretically popular with E�our travel lands. Tl is alternative
assurnes that the Pelican Wallc garage is constructed prior to or contemporane usly with the
implementation oF transit. The guideway could be located on the west side of N rth Mandalay
wherc pai•allel �arking is cui-rer�tly contemplated. Depending oll t11e nuinber of lan s which were
provided, the introduction of the guideway along North Mandalay would restrict tl e width of the
sidewalks w�-iich could be included. Beach by Design recommends that North iV1 ndalay shotild
be narrowed to t«o wide travel lanes whic�i would accommodate generolis side alks on 'ooth
sides, one lane of parallel parking, a 6 foot landscaped median and a�xed gui leway. To the
north of the signal at Bavmon�, there is substantiai right of way whic�l cou d b� used to
accommodate the guideway.
Headways are criticai to the effectiveness of transit. If tl�e wait for a vehi
the user will not rely upon the service and will use other mcans of travel. This is �
where the trip (here intra barrier island) is relatively short. There are no studi�
headtivays for a resort setting, however, the general rule of thumb for transit sy;
that a headway of no longe3• than 10 minutes is desirable if tlie user is to be able t
service in making a mode rhoice. Beacll by Design rec�r.�mends that the tra
designed with 5:minute headways dui-ing peak periods of demand. Assumi
effective speed of five miles per. hour (taking into consideration frequent stops), t�
Adams Mark would take approximately 12 minutes. In order to provide 5 mit
assuming a 5 minute turn around at each end of the trip, the system would requil
be operating during peak periods. At this level of operation, ass�.�ining 20 passen�
and an average trip of 2,SQ0 feet, fhe system could service in excess of 10,000 pas;
C.
Access Rationing
Beach by Design recommends that the City coniront the reality that as lon
Beach is easily aecessible, it will be accessed by far more per;�ons and vehicles
can handle, no matter how many lanes of tr•avel are created or ho��v many park
constructed. Beach by Uesig►1 recommends the City implemeiit relatively radical �
measures during the �0 �r so pcak ciays when the v�lume of cars seekin� to ga
Beach overwhelms the system, resulting in mile plus long traffic queues. Beach
recommends that the City consider les� radicai measures during the additionai 1 i
congestion is substantial.
�Ie i� too long,
�rticulariy true
� of reqLiired
terns indicates
► rely upon the
isit system be
�g an average
e trip from the
ute headways,
: 5 vehicles to
�rs per vehicle
engers a day.
; as Clearwater
flflll i�le S}�StP211
ng garages are
ccess rationing
n access to the
�y Design also
0+ days where
1. Residential �2nd Guest Prioi•it}�
Access to Cleai�vatei' Bc�1CIl SIll�7�IC1LeS a 1111111UCr of interests which shoulci be served by
the City's beach access syste�l�. ASSLlI71I11� that the City wishes to strike the baiance bet�vicen the
Beach as a tourist destination anc] residential area as prescrit�ed in Strategies for Revitalization,
Beach by Design recommends that the City ration access to the Beach during periods of peak
demai�d. First, iIlUSC \V�10 11VC O11 tI1C B�il'I'let• Islands represent a fiscal benefit tu the City; that is,
they pay more in taxes than they dernand in services. Ec�ually irnportant, Clea�-water's
attractiveness as a business location is, as is every othcr city in Florida, directly related to the
availability of accessible, high quality housing with a premi�r quality oF life. As a result, the City
has a fiscal interest in ensuring that the quality of the Barrier Island residential lifestyle is
preserved and enhanced, if possible. Second, resort guests are the lifeblood oFthe City's tourisrn
economy. They contribute indirectly through the property t�xes the resorts pay and directly
through bed taxes and the millions of dollars which are spent in the City durinb their stay. The
care and comfort of these visitoi•s mtist be a priority if the City is tc, co�ltin�e to be successfiil in
what is an increasing�y tourism economy. Concurrently, those �vho provide services ta the City's
touristn patrons need convenient and affordable access to Clearwater Beach, coincidentally and
most importantly, just when the Beach is experiencing peak traffic demand. Finally, those
citizens who are willing to use transit to access the Beach sho�ulci be rewarded with priority
access to the Beach.
2. Access Rationing By Controlled Access Lanes
Beach by Design recommends that access be rationed during the 40 peak days by
esseiitially dividing tlle Memorial Bridge and Causeway into two roads — one for residents, hotel
patrons, business owii�rs and employees and transit and one for all other vehicles. The
noi�thenvnost east bound laile on the Causeway wottld be restricted to priority drivers anc� the
seutliernmost would be available for all other vehicles. The substance of the proposed rationing
is relatively simple — those who live or work on the Beacil and those willing to park downto�un
and take transit to tlle Beach should have an express lane to the Beach. Those who prefer to go to
the Beach in their private automobiles rnay contii�ue to do so by cloing �vhat they do now —
waiting in traffic for their tuin. The difference, of course, is that those who live and work on the
Beach and thase who opt to access the Beach by transit are no loizger held captive by those who
prefer to go to the Beach on their own terms. And if non_resident, non_o�vner, iion_employee,
non_hotel guest pe�sons wish to �et te the Beach �vithout standing in line, they have the option of
using transit.
While rationing generally constitutes an intervention in tlle market, thc rationing systern
proposed by Beach by Desibil, reinforces the rnarket because it puts all users on ec�ual footiiig
giver� their interest in tl�e Beach and tolerance for COI1g�St10I1 und ina�Ces tl�e choice of
trinsportation mode a practical acid meaningCul choice.
Beach by Design does not recommen� that commercial vehicles be �iven priority access
for two reasons. First and foremost, a barrier islanci is a unique pl�ce and the cornrnercial trade
needs to make deliveries at kimes which clo nQt conflict with peak traffic congestion. That is ho4v
cornrnerce is practice� in tOU1'1Si11 markcts atl ovei• tl;e woi'IC� aI1C� there is no rc��soi� why
commercial practices can not Ue conforil�ed to the reality cf access to Clearwater Qeach.
Second, delivery trucks are Ieast I11111U1E lt1 StO� �311Ci �O tl�affic �IIIC� iI1G11• presence during pcak
demand periods is nothing more than �111 111V1iZf10?1 fOT �iCC1C��111S �111CI Cl"L1S11'�3llOil.
During th� 100+ additional dE1j�S �V}lel7 tC��IIC COI7f�',t'S11011 iS Sl��'lll{1Calli, Beach F�y Design
recommends tlzat the City eitl�er impleinent controlled lane access (similar in concept io a hi�h
occiinancX vehicic lane) or i���l�ose congestioll priciilg on access to the Beacli ►•oad �letwork.
Congestion pricing has corne ii�to vo�ue in recent years as transpol-tation sei-vice agencies have
saught to l�alance the competing demands for travel capacity. Sorne congestion pricing systems
are relatively sitz�ple, like those islands tivhere �i�equent usei•s pay a steeply discowited toll
(usually iti the fom� of cornrnuter passes or discotult books) and in freattent users — those who
contribute to peak period demands) �vho are required to pay a toll that may be 10 to 20 tirnes the
commuter rate. Other congestion pricing prograrns involve differential toils for at1 vehicles as a
means of encouraging drivers tu make trips at times other than peak periods of demand. Where
afternoon congestiarY is predictable, tolls are higher during t11e afternoon than in tlle moniing.
Many communities practice congestion pricing indirectly thl'011��l parking fees, though this
method of fee collection is some��vhat ine£ficient because it does not capture those drivers who go
to the Beach tc� just look around.
D.
Transit from Downtown to the Beac11
Beac�i by Design recomm�nds that the City implement a transit program to carry visitors
to and from CIeatti�ater Beach �ind, potentially, to link with the proposed intra_beach transit
system. Assuming that the City implements access rationing and that priority access is available
to transit vehicles, it i� very likely that transit will becorne a viable alternative for beach access,
whether by ferry, trolley, light rail or rubber_wheeled vehicle. There are manifest reasons why
transit makes sense for Clearwater, First, accornrnodating cars on Clearwater Beach is
p�oblematic — asphalt and parking gacages dirninisl� the character and quality of the beach
expPrience for residents and visitors alike. Second, inakila; downtown an �mbarkation p�int foi•
Clearwater Beach would be a trernencjous benef t to downtown businesses. Moreover, it v��ould
allaw the City to justify supporx of downtown parking garages as being of multiple benefit to the
coinrnunity at large. Third, transit makes more efficient �ise of pu�lic facilities. Finally,
irnplementation of' transit access to the Beach would elevate public respect for the Beach to a
level the natural resource deserves and does not now receive.
E: Transit Bettiveen the Barrier Islands
RecentlY the Pine�las Suncoast Tr�nsit Authoritv (I'STA� establishecl Trullev servic�
between'.`San1 ICey and Pass-A�Gri11. Beach b�y Desi n�recommends that the City work with
PSTA to extend the route to Clearwater Beach. 7'his could accommodate transportation neecls of
visitors' �and residents aiike froYn the other Pinellas Countv beach communities and potentiall�
liiik�with tlie nroposed intra-beacli transit svstern.
IV. Off-Street Parking
The ext7•aordinary character of the E3each is both a blessing a��d a curse to the City and its
residetits. A� one of the "best" beaches in the �voi•lci, Clear-�vater Beacll is a popular destination
for tourists and day visitors. As one of the "l�est" beaches in the world, Cleai-��vater Beach attracts
tens of thousands of tourists and day visitoi-s �vho want to park as close to tlie Beach as possible.
On peak days when prefeneci parking facilities are f lled, drivers searching for a parking space
q��eue up in the sti-eet and e�acei-bate an already coiigested roaci ilct�vork. At tlie sarne time, otller
drivers cruise from locatioil to locatioil in tlle ]tope of Gndiilg a parking space, adding to
congestion, ali-eady intole�rable to t•esidents and visitors alike.
Off street parkin� was identified as a key issue in Strate�ies for Revitalization for several
reasons. First and foremost, Strategies for Revitalization recognized the need for additional
parking spaces to serve peak day, peak season dernand. Second, Strategies for Revitalization
identified the cost of structured parking as a substantial disincentiv� for community
redevelopment and additional off street parking as a key to revitalizatiun. Third, many of the
existing iinprovemcnts on Clean�vater Beach are non_canforming in temis of off street parking,
a fact that limits the po�ential revitalization of existing propei•ties. Finally, �trategies for
Revitalization called for the rer�noval of the surface parking lots tQ the �vest of South Giilfview as
a part of a strategy to transform South Gulfview into an attractive beacllfr.ont address.
Clearwater B�ach is cunently sei-ved by 3,535 public parking spaces. On peak days
dUring the season and on holidays, literally tens of thousands of cars come to the Beach and there
is insufficient parking to accominodate all of the visitozs to tlle Beach. The provision of
additional parking is, however, complicated by a number of factors. A primary concern is the
ability of r?ew garages to generate sufficient revenues to service debt ir�cLirred to construct a
garage tivlien projected paricing deinand shows tl�at additional spaces will generate no revenue on
approYimately one half of the days of every year. W'llile th�re is obvious demand for as many
additional parkin� spaces as possible on the 4U or so highest peak days of the year, and some
additional need during the next highest 140 days of the year, there are already enough spaces on
Clearwater Beach to meet parking demand during the balance of the year. As a consequence, net
parking fees f.rom only 180 revenue days must be sufficient to service the debt incurred to
construct the garage. Moreover, occupanc}� data collected by the City for its parking facilities on
Cl.earwater Beach shows that the fiirther a parking space is fi•om the Beach, the less likely the
space will be occupied, even during periods of peak demand. Equally irnportant, parking garages
are large, massiv� structures which are not naturally compatible with tile special character of a
resort beach. That is particularly true where land has previously been sl�bdivided by a fine_grain
network of lo�al road�.
Strategies %r Revitalization pro}�osed rernoval of the surface parking spaces to the west
of South Guifview, with the exceptio�� of tlic surface lot immediatcly north of the Adams Mark,
and the co►istruction of parking garages in the blocks bet�veen Soutl� Gulivie�v �nd Coronado and
Coronado al1C� H1I11(�ell. However, the cost of litll(I �iSSC111��}� —�1CC�lll1'lllf�; �X1St1I1�T income
producing hotel rooms — increases the cost per E�arkii�� spacc to a lcvcl which is not reasonably
supportable by parking revenues, �)�1CfiCtl�cil'ly �vhcrc t�1C ��ill'�.11t� S(��iCf:S �l2'C rclativeiy remote
fi-arn the Beach as �vas proposcd in S±i'ategics for Rcvitaliiation.
Approximately 400 parking spaces are to Le relocaiccl. ti� addition, available data and a
parking stu�y conducted for thc City inJicates that at lcast �00 additianal parking spaces are
needed to meet existiiig parking dernaild dtii•ing tllc 200+ days of�hi�l�cst parking demand on the
Beach. If the North Mandalay con•idor is up�raded �lIICI tI1C uses along the con•idor flourish,
additio�ial parkillg of 200 to 400 additional spaccs «�olild be i•e�iiii•ed. Tlle timi�lg �f t}1e Nortli
Mandalay garage will be influenced by the extent to �vhich on_street parking is availaL�le after
North Mandalay is improved.
Beach by Design conternplates at least t�vo additional p�rking facilities on Clearwater
Beacii and ad�litional garaQes if and �vhen additional demaild arises i�l tlle fOiill Ot COI11Illtlilltjr
revitalization. The first two garages — one to the south of Pier GO Park and a second on the
surface parkin� area behind the Pelican Walk specialty retail center — are programmed to be
constructed as soon as practicable. Beach by Design recQmmends that the additional parking
garages be constructed on a self_financiiig basis — that is debt service is covereci by riet parkin;
revenues. Additional garages, e.g. a garage o11 tlle tinderutilized Iai1d at Rockaway and the other
between South Ciulfview and Bayway in ti�e Cleanvater Pass District — wotild be constructed
when econornically feasible, as demonstrated by acciipallcy rates in existing facilities or where a
garage is required to suppQrt a significant redevelopmEnt/revitalization initiative.
A. South of Pier 60 Park Parking Garage
The exact loca.tion of the �dditional parking garage to the south of Pier 60 Park is
dependent on a rnimber of variables 111CIUCi111� the W11IlI1P�,IlESS of private property owners to
cooperate with the City. The City Commission has previol�sly approved the concept of a very
large garage to be constructed on the Pier 60 parking lot and the Days Inn property. The concept
involved the acquisition of the Days Int� property, the closure of the east._�vest leg of S�uth
Gulfview aild the possibility of 150-+- l�ospitality units to be constructed as a part of tlle project.
The primary justification for the inclusion of the Pier 60 parking lot in the project was the cost
advantage, because the iand is currently owned by the City and used for parking purpases,
outweighed the visual impact of a parking barage on the Beach. lvloreover, the cost implications
of land alreaciy owned by the City avoided the question of �vllether a hospitality component was
economically feasible. In contrast, other sites �vhere the City would have to acquire all of the
land was either �ontingent on a hospitality component to help defi-ay the cost of assenibly or
infeasible.
S�ibsequent to the Commission's action, an alternative parking gaa�a�e proposal has been
advanced by the pi-ivate sector. The alternati`�e illvolves tlle constl-uction of a parking garage on
an assembly of land on both sides of 3rd Street between SUL1lI1 Gulfview and Coronado. The
proposed garage `vould be a part of a vertically mixed use project and wotild make at least 500
parking spaces availabie to the City. Beach by Besi�n is relatively indifferent as to the precise
lc�cation of the garage so long as the parlc�ng spaccs are lucated within a reasonable walk from
the dry sar�d Beacli. Tlie alternative parkitig garage proposal is explicitly contitigent on a
municipal commitiz�ent to transfonn South Gult'view iilto a great beachfront place by improving
South Gulfview as a great street or sirn�ly closing the i•oad to traffic. The principal advantage of
the alternative garage location is that a parking garage will not be constructed on the Beach on
the Pier 60 parking lot between Coronado and the Beach proper. "I'he principal disadvantage of
the alternative garage is that it may not �rovide sufficient parking spaces to accornmodate the
relocation of spaces the each proper to the «�est of South Gulfview and increase the inventory of
beach pa�king by 400 a�ditional spaces.
Ariotlier_possible locaiion for a��rage south of Pier 60 exists in the vicinity betwe�n Coronado
and Hamdeil anc� .between Third �treet a�zd Bri ht�va�er. This area presents a.n oppoi-ti.ulitv for a
��ara�e . vcritli a residential coniponent. A portion of Ha.mden coi�ld be vacated in order fo
consolidate land a�d create a waterfront parcel. Vacata.ng a portion of Hamden would not
impede traffic flo��v but actualiy,traffic calm this area of South Beach and enhance the residential
character of the I�evor, and Bavside cul-de-sacs. Analysis of the traffic impact of this
alternative would }�ave to be conducted. This aption aiso is workable without the vacation of
Harnd.�:n.
B. Pelican Walk Garage
The Pelican Wa1k Garage, to be constntcted on the e�isting surface �arking lot on the
Poinsettia side of the property, is c�nceived to provide additional conveni�nt and secure parking
for North Mandalay and the Retail and Restaurant District and to compensate for the possible
loss of on_street parking as a part of tlle improvement of North Mandalay. �1 addition, the
garage is an�icipated to be a catalyst for the revitalization and expansion of existing
ir7provements in the Disti-ict.
The size and the tirning of the Pel:can Walk garage will be dictated by the ability of the
garage to pay f�r itself and the extent to which individual property owners are willing to
participate in some so� of public/private partnership. While several properties like Heilemans
and the Cleanvater Beach Hotel llave an apparent need for additional parking, particularly during
the season, total de�nand for additional spaces is not, at this time, suff cient to support the debt
necessary to construct the garage. A recent parking demand study indicates that the garage
might actually generate sufficient r�venues to support debt service if the garage is successful in
attracting beach patrons to the garage, but that even then, the net i•evenues �vould be insufficient
to rneet bond coverage rec�uirernents that proj ecteci revenue ec�ual to 140% o f debt service.
Additional development or revitalization along North iVlandalay or property owner participation.
in the gai•aae would be necessary if the �arage is to be finaii�;ed exclusively on a revenue basi�.
There are two altei-native conceptual designs. The iirst is a four �evel garage which wuuld
be iimited to the Pelican Walk parking lot. The second is a more comprehensive (and shorter)
garage which would extend along Poinsettia to the southern boundary of the City's surface
parking lot between Eckerd's and Heilmans. i liis garage would require that the Eckerd's surface
parking lot between the Eckerd's building and Poinsettia be acquired �or the �arage project. The
first alternative is a simpler project involving a single prolaerty owner who has alre<<dy indicatcd
1 W1�IlI1�IlESS t0 WOCi� W1iI1 ��"l� Clt}/. TI1C SeCO21d 11tE1T11t1V� 111VC1IVeS iW0 pT'Opel'ty GWIIGTS, one of
�vhich may or may not be cooperative. The first alternative, however, is isolated frorn North
Mandalay aild would be accessible only from Poii�settia. In contrast, the second altet-�lative could
bc accessible fi•om both North Mandalay anci Poinsettia, enhancing use by visitors to Noi-th
Mandalay and in ��eak period, beach goers.
C. Rockaway Garage
An additiQnal parking �arage site has been identificd on ui�dcrulili�ccl land on the wcst
side of North Mandalay to the south of the fire statioi� bet�v�ci� Ctockuway ancl f3ay Lsplanade.
The site is owned by the City so that only the cost of thc sU•ucturc woulcl h<<vc tc� be paid £or t�y
parking revenues. The site, however, is relatively rcmote ti'QI11 tI1C CC11lCI- of' hcach uctivity and is
of little value in relocating parl:ing from the South GulCvicw h�ac;hri•c�nt. .�s �t result, the
Roekaway garage is considered a lon� tC1'II� O�I1011 111 iI1C CVCIII lll�il lI1G I'icr (������ ���r��;e ancl the
Pelican Walk garage are insufficient to rneet fi�ture parkin� dei»and oi� lhe nurtlYCr» p�rt oF the
Beach.
I�. Clearwater Pass District Garage
The revitalization and expansion o� the hospitalicy uses iii thc: Cicarwatcr Pass District is
limited by the availabilit� of off street parking. In thc evcnt that sli fficicnl de�l�and for additional
off street parking justifies a garage witli at lcast 400 spaces, thc City should ��articipate in land
assembly and revenue financing, provided that the principal bciieGciaries provide economic
assurances that the proposed garage will operatc on a break_cvci� or bctter basis.
,t,,,....:..
E:�:;.Clearwater Nla�riiia'�Gara�e
�ent: tliaf��� additional s
;_ ,;, . . . . . , ...
r;: pri�rate � lalid..`is : ava
.�
►i�rface���parkin�:Iot �
��'=_� _r.:i-'= Ti'_--':rn-_'�_.
V. Ca�alytic Projects
ble; aii'� al
. ., ,
t�laced 4firocn Clearwat�r'Beac
�ai��a�e :is the.:{e
�o�nnioc�a�
�
nii�> no � otlier
E'Clear:water
i ri'� th e�; everif
In community redeveloprne�lt nioi»eiittt»i is cvcrylhin�. 'rll� cconomic and aesthetic
trajectory for Clearwater Beacl� has bccn ir�sistc��tly clowr�wa�•cls for t�la��y years, no�twithstanding
the individual efforts of rnaiiy pt•opei•ty awners ancl businesses. That trajectory h�s momentum
which �leeds to be nverco►i�c in o�•cicc to tiCI1tLV� Lltt; O��CCtivcs oi Strategies for Revitalization.
The Beach Roundabo��! has starlccl the rcvers<<1 ai�II1L BE;II�;;h's prospects, as will the new parking
garages and t�c irnpr�vCil1C111S i0 NOI•�h M��nci��Iay G�ncl Ca�'Ot1�lC�0. IVCore is needed, however, if
t.he City is to be ti-uly sliceessfitl in trcinsi��rrni��b Cie;�c��vater Beacl� into a beach co�nmunity
wr�ich s�h•ikes a mea,�i3�gfi�l b�lance b�t�vcci� thc I3cach as a��lace of residenct and as a successful
tnui-ism dcs�inrition. I» nia�,y, m�»��y rccic��c:i�E�nicnt arcas, one ar more development projects —
often public/priv�tte parti��rshi��s - arc� the E�iu►�ecriii� projects thal ceverse the general economic
trend of the arG�i arici scrve as c��t��lysis ti�r rcinvcstmci�t and revitalization, Beach by Design
includes several cat�►lyt.ic i»itiuiivcs ii� <<ciclitio» to th� f3eac11 Roi�ndabout to create a positive
sense of mornentum for C'Ic.�r�vai�t� 13c�ich.
A. Noi•th M�inct<<lay I��surt l)cvcln��t1�cnt
Strategies for Revitalization identified thc land bct�vcc» thc 1-liltoi� f-(otcl ai�ci lhc
Clearwater Beach Hotel as a priority redevelopiilent oppoi•ttinity. 'I'lzc lanci is t�i�iquc in th��t it is
located between two of the major hotel properties on Cleaitivater Bcach and (i•ot�ts oi� North
Mandalay, the closest thing to a retail street that exists o�i the Isla�id. Stratc�ics tor [Zcvittiliration
anticipated that redevelopmeilt in this area, to�ether with the tX1Sil21� �IOiGIS, woulcl ci�e�.ite a
critical mass of economic activity that �vould be able to generate support (or businesses and
restaurants on the Beach.
During the preparation of Beach by Design, a well_kilo�vn Pinellas Cou�lty residential
developer approached the City in regard to a possible recievelupment �roject on Cleaitivater
Beach. The developer indicated that he was impressed �vith the City's new land developiilent
regulations, and the City's coinmitrnent to the revitalization of Clear�vater Beacll as eviclenced by
the City's decision to create the Beach Roundabout. The developer proposed to develop a
residential condominium on an assembly of lands located between Papaya ai�d San Marcos to the
west of North Mandalay,. The proposed site was in an area identificd in Stratcgies for
Revitalization as a primary redevelopment opportw��ty area. The Cily �vorked with lhe developer
in an unsuccessful effort to complete assembly of the Iand along i�lortl� Mandalay and enterect
into an agreement in regard to ceriain improvements to North Mandalay.
Construction of Mandalay Beach Club was recently c�mmenced. The project is
comprised of two towers of 13 and 14 stories �vhich are oriented towards the Gulf of Mexico.
Off street parking is provided in a garage whicl� serves as tlle tiuilding pedestal. By all apparent
rneasures, the project has been very successful and has stimulated substantiai investor/developer
in Clearwater Beach as a desirabte redevelopment location.
B DY;-��r�, "^+;�.:*�, r'°„+°r T�°�;� ��-e�-Cornnlunit�Redevelopment District Desi�nation
`JVhile improving the function and character of tlie public realm — strcets, side�valks,
public facilities and off street parking — on Clearwater Beach will substantially improve its
apparent econonlic vitality, experience demonstrates that private investtYYent does ilot necessarily
follow public investment. In most successfiil r�developmeni/revitatization efforts, one or more
catal}�tic projects have been used to accelerate the pace of investment in r�development and
revitalization, usually large scale public investme»ts like aquaria. In part, tlle n�ea for catalytic
projects is a result of many years of rnarket dis_iilter�st because of deciining fortunes. l��ost
importantly, however, i� tlie added ecuiio�nic rislc of reing the piQneer in recognizing an
emerging market. It is always casy to attract invesl�rs after the pioneer has demonstrated the
viability of the market.
The situation on Cleac-v✓atei- I3each is corn�licated by a number of additional factors. The
existi�lg regulatoi•y regimc ii�l�its density on thc f3each to 40 hotel units per acre. In order to
justify the cost of den7olishi»� it�coil�c j)!'0(..�11C111� 1111OI•ovements (no matter how modest), new
resort developm�nt �voulcl c�cquirc �i si���itic� i�t inci•ease ii� density above 40 hotel units per acre.
Depending on the cliscount 1'�l�C; ancl the ctu-rent econo�Zlic ��erforniance of the existing pr�duct,
the gross cost �f �1CC�LlIS111011 .u��l lILI11U�11i011 OC C\1Stlt1� LI171iS CaI1geS fl•om 2 tu 4 tinies the per
room cost which a c�uality resort hotcl cleveloper coulcl a�ford to pay. t� inally, 111L1CI� of the
obsolescence of Clearwater Beach is attributable to the lack of resort facilities with a fiill range
of on site amenities. Several of the bcttcr hotcls o�l Sand Key and Ciear�vater �each operate as
"destination resorts," ho�vever, evci� those resorts lack maily of the amenities that are: available at
Uetter hotels in othei• markets �vitl� �vl�icll Clca����atei' BCIIC�l COIIlOCiGS.
The economics of destinatian resorts are sucl� t►�at, exccpt in very exotic des�inatioiis,
they require a certain critical inass of roon�s in order to support the high cost of quality
improvements and amenities. Inciustry sources i��dicate that 200 to 250 rooms is a practical
minimum for the numbe�• of` 1'OOl11S ��'hicli ai'C I"CC]1111'CC� t0 CI'Cat� 1 SLICCESSfl1I, highly_amenitized
destination resort. For Glearwater E3cach, t�lilt IllCa►IS an a�SClll��j� of G.2� �1CI'�5 of land is
required under the exis�ili� re�ulatory rc;�ii»c of 40 rootl�s to the acre, a land area which is all but
1211pOSS1ble 111 t�lt', I"t(jCVC�O}�111CI11/CC�'Ilalii.l�lUIl COIlie�t.
TO OVeiC011le L}lESC COIISII'ainls Bcach by Design contemplates the development of a small
number of catalytic resrn-t prajecls which «�ould reposition Clearwater Beach and sei-ve to
re establish Clear��ater Bcacn as a c�uality, lamily c•esort community. Tlie cancept involves at
least one additional resort to tI�e soiitll of Pier 6� Park to serve as a c:atalyst for the revitalization
of Sauth Gulivie�v and, }�ossibly, an �tdciitional resort facility in the Nortll 1`vlandalay resort
district. 'I'hese resorts ���ould lie �.'��si�t�ed to serve as highly_competitive, fully_arnenitized
resorts which would effectively t•eposition Clearwater t3each in tern�s of the quality of the Beach
as a tourist a destination. Once Clea��vater Beach is re_positionzd as a destination, Beach by
Desi�tl anticipates tlia± the �eneral sti•eilgthening of the market will make it econornically
feasible Co revitalilc aild up�rad� the srllalter tourist units on the Beach as a more affordable
option for what will then be � significant.ly upgraded tourism destination.
I�l oydei• to stimttlate the desii'ed c�talytic i•esoz-t projects, Beacl� by Desi�l e�tablishes a
limited p�ol af 499 600 additienal hotel rooms which would be available for use at one or rnore
sites within designated }�riority redevelopment areas for a period of five (5) years. This pet-iod
would run fro�n the date th�t the ����c+���t+�• r°,�*°*• Community Redevelo�ment District is
approved by the County and accepted by the State. In the cvent that the units were not allocated
pursuant to Bcach by Besign wit.hin five (�) years, tl:e pool uf units would cease to exist.
Althuugh Beach by Design creates a pool of additional hotel rooms which are not
currently aut}lorized under the existi�lg plarulin� and regulatory regime, Beach b}� Design
foresees that the additional units will not in fact have any adverse impact on Clearwater Beach,
the City of Cleai-�vater, Pinellas Cor�nty, the Tampa Bay Regiori or the State of rlorida. Tllat is so
Uecause the way in ��vhicll the tinits �vould be made avaijable ensures that tlle norr�ina�
externalities of aciditional bai-rier island development will be eliininated or rr►itigated, ror
C��1111O�C, f�l� i'C�i50t1 Ci`etre of a ciesti»ation resort is to have guests travel to the resort �nd spend
most �f their ti111e (and nloney) at the resol•t. This fa�t is refl�cted in i�le II1StltLlie of 'rraffic
Lt14,�111CCC's Gth �C�111011 of tlie TC1�3 Gz11C'iatlOtl Ma�lual which sh�ws that destination resarts
bcncr�itc so;Z�iewl�ere bctween 50% ancl 12% of the number of h-ips generated by traditional
mc�lcls �inci I�utcls. �xpei-ie��ce fi•om around the State of Florida — fi-om Sanibe� to I�Iiami to Boca
R�iton to t.l�e riloriria Kcys _ demonstrates that auests at destination resorts generate a�raction af
thc 17U111E�t;1• of daily trips �vhich are prcjected by the Institute of Traffie E21�lI1e�1•s for the
occupants of a�l ordiilaty hotel room. Equally 1i11�UI�1ilt, the availability of' on_site amenitics
means that �vlleii g�iests leave the i•esoi-t, theit- trips are l�ighly discretionary aiid unlikely to occur
during peak travel periods.
A critical conce��n under Florida lativ involves increased residential densities �n the
State's bai-rier islands. Although the primat•y coilcern relates to lztirricane evacuatiori,
eI1V11'OIlIIleIlt�l ISSUCS ai'� �iISO IIIl(�11C�tCC� tIl LiI1l�eVelO}��C� aiCaS. HtS102"1C�llly, FIO1'1C�� �I�IlIllll,� a11C�
Z011117� �11S treated llotel 11I11tS 1S 1 t�� Of i-eside�ltial d�velli�lb, �Ve17 l�"lOtl��l }lOie�S are
comrnercial operations and hotel �L1eStS d0 not gelierate SC�1Q01 childre�i OP r•egularly requit-e
social and health services. As a result, an increase in hot�i 11I11LS 011 a barrier island, as a matter of
law, constituted an increase in residetitial intensities — dii�ectly, where l�oteI units ai-e defined as a
residentiai use, or indirectly, as in the case of the Pinella� County Planning R«les and the City's
land developinent regulations ��liere hotel and residelltial units are iiitercl-�ailgeable subject only a
density ratio. For the purposes of the additional hotel units pool, Qeach by Desibn provides that
such units are not interchaclgeable �vith residential units and that hotel rooms �vill be timited to
tenancies of 30 days or less. In addition, Beach by Design provides that any hotel room which is
allocated fi•om the additioiial hatel rooii� pool �vill be st�bject to a le�ally enforceable deed
restriction that the hotel which contains an a.dditional hotel room will be closed as soon as
practicable after the National Hui'ricane CEnter posts a hun�icaile watch f�r an area wllich
inciudes Clean�ater Beacll. As a i•esult, no occupants of destination resoc•ts wotild remain to be
evacuated when az�d if a l�ui-ricane warning is posted. Recent experience reveals that most hot�l
reservations are cancelled when a hun•icane watch is posted and that most I�iotei operators close
as soon as possible because of the cost of maintaining staff and operations with only a few
stalwart guests. In contrast, residents are likely to wait ui�iil the last rnintite or until the_y are
ordexed to evacuate. F�r Cleai-water �each, resol•t hotel units �re Z11 OliVlOL1S advantage ove;r
T'��identiat units, that is, 0 persons reQuired to evacuate from on� acre of land irnproved �vith a
destillation resort hc�tel wlieil a hun-icane warning is posted, as opposed to 69 persons frotri one
acre of Iand developed at cur�•ent residential densities.
Resort hotels are advantageous to the public in other ways. On average such facilities
generate vers� fetiv public sei-vice demands � most guest needs are provided b_y the resort. Such
facilities pay better than av�rage wa�es to tl�eir employees, have relatively high asse�sec�
valuations and their patrons pay sales and. �ed taxes ensuring thai such uses are fiscally
beneficial. Moreover, the very nature of destination resorts -- diverse, higher income tourist,
would provide much needed support for locu� businesses and restaurants, directly through
patronage and iildirectly throug)1 the provision of goods and services to tlie resort itself. Finally,
the ai�nenities provided b}% destination re5orts supplelnertt loc�l resources to local residents,
enriching the community's quality of life.
T}le allocation of units from tlie pool tu a particular project �vould be strictly controlled
and would require that the proposed resort be of a character tli�t it «�ill serve as a catalyst for the
revitalization of Cleattivater Beac11. In order to be eligible for additional resoc-t hotel units, a
project would have to have the following characteristics:
a minimurn of 200 hotel roorns or 150 rnarinE based hoteC roarns , unless a particular pro�osal of
fewer units has sucl� a distinctive cliaracter atld quality tllat the . r�sort �vill be a Iandmark
destinat�on
a full range of on and off site amenities ineluding full service restaurani, room service,
concierge, valet parking, exercise club, boating, fishing, golf, at least 20,000 square feet of
meeting space, or coinparable amenities
access to hotel rooms through Iobbies and internal corridors
a national or intei-�lational "flag" or other cornparable marketing affiliation or program which
will ensure support of the i•epositioni��g of Clean�vater Beach as a resort destination
require a legally enforceable co��enant to implei-nent a trip generation management program
WI11C�1 j�XO1110teS IlOIl_V�111CL1Ia1• access to and fi•om the resort �vhich shall include at least airport
shuttle provided as a part of tl�e basic room rate and resort_provided transpoi-tation to off site
amenities and attractions
require a legally enforceable mandatory evacuation/closure covenant that the resort will be
closed as soon as practicable after a Ilurricane �va�ch which includes Clearwater Beach is posted
by the National Hurricane Center
no more than �8�a � 25% of the rooms may have kitchen facilities (anything more than � small
refrigerator)
exceptional architectural design and high quality finislles and furnishings
the site must front on the Gulf of Mexico or be se�arated frorn the Gulf by beach and a single
pubiic road or l�e located on the Int�•acoastal Waterway.
the site must l�ave a minimum iand area of at least 1 acre
the resort is to be devel�ped on property, which in the e��ie� opinion of the City, is currently
irntiroved with subst�ndard. inefficient or obsolete improvements �k'��r���� °�*� .i�''��^k�e,:se
the development complies with these criteria is located in the Tourist .District *',��� r��
•�����' L""_""_"!-a� ���fn� _�or���f�.ir�in� .v� nr��� o�TOr�4 n��n�
n�tT�7t'n�•G�CG�cri 7 �� t����an ���a �IILC'I""CICi"��7j�'C��27Cf� '�'�'f'LYI .�t'CyCYI"I'�C't7'C'Jtr��.� n»� �r� rorrnrt�f�_t��"I7SITC�
II�i�L1C �C.7 Ci� `YI�'Tr7iLC-+1� +��n+ •»� n����+CiT1V1. V1 (A11U1`le.IlLil-ITiJVI'ti—ITV�C4I UlI14n n��n�� 1�a VVII.7i1.�ViVt.L "IlJ
«4r�.+nni�or•rn;a �-��������.�?�� and is elit;i�ie to increas� the height of structures up � to 1.50
feet: s-e� a�;,.;�,;�:+., +„ ;H�.,-�_��ti���a;o�,� „� �+,.,.,,+,.,.� �,.,,,,., � nn ,�,. � cn feefi
the resort provides demonstrable �ienefits to the City such as oppurtunitiPS for public o�f street
parking
subject to a legally enForceable COVEIlZili oLl�gating the resort to participate in a Clearwater
Beach operation and maintenance assessment program
Tlie allocation of additional hotel rooms fi•om the pool would be made by approv�l by the
CitvCommission. � r-zs °�-°�-?-^�,,.�...,�_,,,,,�o,. f�,2��0.,,..,,,,��� ���,,.,,,,.,;f,. T'�y.�i�r�,o„� r,,,a �. The
lands areas wllich are eligible f�r additio�lal hotcl rooms fi•om the additio�lal hotel room pool are
highlighted on the adjacent aerial photograph.
The Rules Concerning the Acimi��istration of thc Countywide Future Land Use Plan As
Ametlded establish a Plan Classificalion entitled `-`-z-^��=��-�������•=n,�r-, rnr-�m�a
�es�•r �� ^�- ;,�-�-" "Community Redevelopment District." According to the Countywide
Rules, the purpose of the classification is �e:
To-_r�or�in4 tl.�no nronc. c�� f�a (�n�»1f�� +:�
� �
nnr�nu»+�-nf�ar�- .�Y 1 �L itr�L•tL� %f�ilit�i�_ r� �� •�. � � p�� �P %nn� � n ^�
I��+J��T��i C+—ZI�lZ+i[—l7J�Z�Cii1'�LL ��[l�r��'.TVi
nn�r�tv�orno'� or�ir����sw�a»t n»�_j�c�iin»>n �� nniir�+�nsr�raa ;`..����.i�c�n� nr�� f2 r�r�Yr��o "n »�onti. '
. 1�71 �.at7
7 o.1�S.1_L�nr_�r�rntn ntn*�����+r�o r�r_c�or�n�+cr��r��Glnni+�t �t vc�v ro »���ra� n� nr�t 1.1
e�� v) —.s�rra�- .r�cmuuz-a�—rfvi—a�n-�rr�zrr�ti,rrsr ��i—u�-2h�nvT�u? v-����zxz-�4`i-�tl--�}�
�.°�;�' �„r„^n°, ^'�^�^^+°,. Ar�' ^„r^^;��� ^� �°��� To depict those areas of the County that are
now desi�nated, or -appro�riate to be desi�nafied, as corrununitvi ceiiters and nei hborhoods for
redevelopment in accord with a specificplan therefor.
Section 2.3.3.8.4, Countywide Rules, August 20, 1999. Cleat-�vater Beach is already developecl
with mixed uses and is a residential, economic and recreational focal point of the County. The
unique circumstances extant oi� Ciearwater neach require separate standards for density for
catalytic resort pt-ojects consistent with the special qtialities of tlle Beach; and the
implementation of Beach by Design's catalytic projects to re�osition the City of Clearwater's
resart economy is c�nsistent �v:th and fiirthers tl�e pur��ose of lhe �t-�-��e�� Communit,y
Redevelo�pment District Plan Classification.
IIl addition, Cleartivater Beach satisties the "locational" I"eC]tlll'EIIle21tS for a special
designation. The Countywide Rules provide tnat tlie ���-Ee�t� Communitv Redevelopment
District classif eations-a��e is appropriate for areas of ."^^��^°•,*r�*°�' ^-a��-��.a ,�,� '°�'_"�n
Cpy�pr�n +�� n 4.� r� 'PPGTl'�' J�CISCG'C�LG n m � ro �� r�+ot�tt i�n � n v� � i ��+i� mo�_� 7
VVLl�V � Ti
"desi�ned to serue local retail, financial, �ovemmental, re�identia.l, �nd emplo�nent focal oints
fo'r a cominunity;` and to specified tar �� t neighborhoQds desi�led to e�icoura�e redevelo�ment iri
one; or a combination of uses . " Clearwater Beach supports a high conceritration of
residential, commercial and hospitality uses and Beach by Design recomnlends an increase in
hotel density as a catalyst for transforming t}�e Beach iilto a more balanceci anii quality resort
comrnunity. Beach by Design demonstrate� that the lI1teI1SlfICdt1011 of hotel use to stimulate
reinvestment and revitalization on the Beach, paradoxically reduces travel demand anu the
number of �ersons who would have tQ l�e evacuated fram the barrier isl�lllC�S in the event a
hurricane wat-�ling is posted for Clearivater Beacl�. It is indisputable that Clearwater Beach is a
`-s.�t-t��e�-to�-s�...,�r� a � II��o,.., -a-�H�^�� n�ne-�et�����a�ie�" «focal point
for a communit�, Finally, Beach by DesiQn provides a strategic conte�t by which the special
designation accozilmodates the special needs of Ciear�vater Beach in concert with intra and
inter_area transportation. The land area �vhich constitutc;s the special area on Clean�ater F3each
is in excess o� �0 acres and already includes man}� uses «�hich are permitted in .�'m���•- ^�*����}T
�' .,,*,� Communitv Recievelopment Districts iilcluding �-e�x�e�;-�-je�em„'^•fm°„* ^°„+ r�
_ ,
�}.�.�+;o�� ,. ,,,,,,o..,.;.,� ,-o,...��,;,,,, �,.,�o..o� �,,,� �,:,��, ,��;7., ,.o�;aa.,f;.,� residential, of�fice.
commercial, and instihitional .
Beach by Desi�n recommends that the Comprehensive Plan of the City of Cleat-�vater be
arnended to designate central Clearwater Beach (fronl �-��. r�^�ne�na� �cacia Street to the Sand
Key Bridge, excludin� Devon Avenue and Bavside Drive) as a�•�-�T n��i ^*�•r;*���«
Communitv Redevelo�ment District and that this Chapter of Qeach by Desig�i be incorporated
into the Comprehensive Plan and submitted for approval to the Pine�las County Planning Council
and the Pinellas County Commissianers sitting as the County�vide Planning Authority. In
addition, Beach by Design recomtiletids that tlle use of TDRs under the provisions of the City's
land development regulations be encouraged �V11�1111 the • Com�nunity
Rede�Teloprnenfi District to achieve the objectives of Beach by Design 1I1C� the �—PPC
designation.
C. Beach Walk: The New South Gulfvie�v Drive
The 13each is Clear�vater Beach's principal asset — a wide, white sand beach of
remarkable character with spectacular sunsets. Outsta�lding in its o�vn ri�ht, the Beach is all the
more attractive because it is located within a major metropolitan area —�vithin an hour's drive of
more than 2,300,000 persons and is accessible by car. Tlie Beach, however, for all of its width
and beauty, is generally not visible froin the vaiitage p�int of the general publi� fi•om the roads.
To the north of the Beach Roundabout, the B�ach is obscured from the public realrn by private
development except for the parking lots at Bay Esplanacie and several street dead ends. At Pier
60 Parlc, t11e Beach and the �vater are sotilewhat visible through the impravenients in the park and
over and around the parked cars in the Pier �0 parking lot. To the south of Pi.er 60 Parlc, there is
no private development to the w�;st of South Gulfvie�t�. Nevertheless, the views from South
Gulfview are primarily of asphalt and parked cars.
Guli'view Drive south of the Pier 60 Park reflects the lack of cuherence in the City oi
Clearwater's stewardship of the City's most important resource. Indeed, the public realm along
South Gulfview is all but an embarrassment. The street itself is shabby, �vith poor definition,
substandard sidewalks and a median lane frequently used by large 18 wheel delivery trucks.
Street lights are staizdarci DOT issue and there arG no bicycte paths. To the west of South
Gulfview is a 586 space surface parking lot �vhich is literally on the b�ach — making the view
from South Gulfview — potentially oile of the great beachfront drives in the world — one of
asphal� and parked cars. The Clearwater Beach sunset — an �xperience that should overshadow
other popular sunset locales tike Key West — is all but �Uscured.
The private realm is not much better. The n�otels a1�d hotels along the "strip" are
showinb lheir age and obsolescence. T}le primary retail uses at street level are T_shirt sllops,
souvenirs and restaurants. The few opportunities Cor outside dining are in areas where the
sidcwalks are so narrow and so close pedestrians �lI1C� j�assing cars that crash barriers have been
insta](ed iil soc�ic areas to create some sense oFplace and sa�'ety foi• patroiis. Tlie cliaracter o%the
public realm wl�ich separates these oth�i-���ise beachfront properties severely impacts the
�COI1011lIC Vlt�llliy OCtll� 11I11�S ZIl(I 1S �l SllbStantial, if �lot absolute, deten•ent to reinvestment. Witll
.
the ex�eption of the Legends restaurat�t, a ft'.�V S111f1II �LIiICI111�5 and thc ne�v McDonalds, itselr a
indicator of the character and quality of South Gttlfview, the propecties between thc Pier GO
parking lot and the Adams 1�1ark Hotel are in need of revitalization or redevelopment.
Sti�te�T1eS fUC REV11a�IZ�IilOI1 11l(� BeACIl bj� ��S1�11 COI1t�11l�IZleS 1�1�11 l��C 1'eV1i1�1t�11:10I1 Oi
Clearwater Beach in general and the South Gulfvie�v area in particuiar requires a repositioning of
Cleatvvater Beach as a tourzst destination. Beach by Design proposes that one or more properties
along Solith Gulfview to tlle sotitll of Pier 60 Park be redeveloped as trlit destinatioil resorts witli
the expectation that the presence of such facilities �vould substantially enhance the market
position of Cleanvater Beach and would justify re_investn�ent in the smaller properties along
South Gulfview, Coronado and Haincien. In ardei• to attract tlle desired resort, Beach by Design
proposes that the City of Clear�vater designate Clear���ater Bcach as a�����;,�,�*`��.,�
Corntntuzity Redev�lopmei�t Disfrict in order to overcome the ciensity and economic constraints
on resart devel�prnent uilder• tlle existin� regulatory regirne for a lirnited number of true
destination resorts. Beach by Design, ho�vever, asstunes that addiiional res�rt density by itself is
not enough to overcome the existing conditions an Cleai-�vater Beach, a resort is proposed to be
located on property which fronts direct.ly UIl tlle Beacll. That me�t�s that tlle City 1111ISt eltllt',1'
close South Gulfvie«,T tu the south of Pier 60 Park and remove the public parking frorn the Beach
so that private praperties located on the east side of South Gulfview become beachFro1lt, or take
other steps to make South Gulfi�iew into an address of comparable arnenity value and character.
Beach by Design is grounded in the expectation that the relocaiion of South Gulfview
will transforrn the beachfront into a landrnark place which will be an attraction to residents of the
City and the region and an arnenity for the City's iourists. Beach by Design also contemplates
that the new Soutl� Gulfview will be a"great" address which will stirnulate revitalization and
renovation of the existing improvements.
beach by Design recogiiizes that closiilg Soutli Gulfview would be a s�ibstantial incentive
for redeveiopment. However, I3eacll Uy Design is grounded in the balance between tlle needs
and interests of residents and tourists. In this conte};t, Beach by Design proposes that South
Gulfvie�v be mainta�ined as a public road, but that South Gulfview, be transformed into a great
beachfront place �vhich would rival, indeed outdo, the other popular beacrifi-ont drives in Florida
including AlA in Fort Lauderdale Beach and South Ocean Drive in Miami Beach. The proposal
is to create a beachfront drive that is uniquely Clear�vater and is at the same time a great
"address" and a great "place."
Beach by Design proposes to create a great beachfront — to be known as "Beach Waik" —
by relocating South Gultview frotn the existing right of �vay lo the west where the existing
surface parking lots are located. The redevelopment and cevitalization of the properties that front
on South Gulfview is constrainecl by several factors including srnall pai•cel si•r.es and the Coastal
COIlSliLlCil011 Control Li�le. As a result, rnost af' tlle r�otels an� hotets along tlle east sid� of
Souih Gulfview have lirnited opportu�lities tor redevelopment evcn if Clearwater Beach is
repositioned in the tourism niarket place. Ti�e Beach by Desi��i proposal to relocate Soutll
Gulfview to the west of its current alignrnent achieves rnultiplc pui�oses. First, it creates a drive
with a 1•eai view of tl�e Beacil and tlle Gulf of Meaico. Secoiid, it �vould t�llo�v tl�� City to v��1te
the cast 35 feet of the e�isting right oi way in f'avor of the propcc-ties along the eastem frontage
of existing South Gulfview as an incentive for appropriate redevclop��icnt. Many of thc existin�
properties �vould substantially beneiit fi•om �lll 1C�C�il10I1�1 35 feet of de��th �vhich could be used
for the addition of facilities and amenities such as saCe and comfortal�le: areas f�r outdoor dii�in�.
Beacli by Desigtl iiicludes a pi-�posal t}Iat the par-king lots to tlle west of Soiith Gulfvic�v
be removed from the Beach as was I'CCGI11I11eI1CI�C� in Strategies for Revitalization. Beach by
Desig�l proposes 1�V0 altei-ilative 1�1�;11111�i1�S �Oi S011t�l Gt�lfvie�v — a SitltlUllS alljilll.ent a�1d 1
pc11'all�l al1P�,I1111�I1t. IIl e11�1CI' �lll�llllle'.Ill tI1G I'O�C� �voiild be co�li'igt�red �iS �. iW0 �V�ly, 1�V0 lane
seciion. Wllatever tlle aligniilent, Beacli by Desi;iz proposes that the realigiled Sotttll Gulfview
include a 30 foot ��vide pair of path�vays along the tivestern edge of the alignment -- one for
bicycles and roller 1�laders and tlie otllei• for pedestrians. Irl addition, Beach by Design
recornmetids that the westen� tlalf of tile existiilg 1-igllt of �vay be converted into a broad
pedestrian promenade ��>>th side�valk cafc seaiiilg at�d ot}ler traditional sidewalk scenery. Ili the
event that the �ity implements the Beach by Design recommendation for an intra Clearwater
Beach trailsit system, the trailsit �uide �vay would be located along t11e westem edge of the
promenade.
The sinuo�zs alternative iilvolves a cui•vilineat- ali�nllletlt tllat shifts between the �vestern
edge of the e�:isting right of way to the �ti�estern edge of the e�isting surface parking lot. A dri.ver
follo�ving the course of tll� aligil��ient �vould have direct views ot the Gulf of Mexico �vhen the
alignment moves toward the Beacli. 'rhe sinuotis alternative would allow tlle City to reconfi�tire
some of the parking on the Beach at discrete locations in the landward area to serve local
business neecls and provid� convenient handicap parking. If any of thz parking is retained, the
parking areas should be higllly Iandscaped and designed to have a distinct sense of place. The
parallel alig��ment could be located at atly point bet�veen the existing right of �vay and the
western edge of the surfacc parking lot. Vl�'liatever the alignment, Beacll by Desigii recommends
that it be heavily lands�aped ��vith parallel street trees aiong tLe entire course of the road arid the
Beach promenade.
The east side of the new South Gulfvie�v would be the transit guide way, assuming that
the intra_l�each transit proposal is ii�iplemented, wllich in ttirn would �e bouiideci by a 25 fo�t
wide proinenade sidewalk. The promenade is contemplated to primarily to serve loc�l pedestrian
access to businesses on ihe east side of' South Gulfview and serve as a corridor for pedesirians
who have destinations at or to the nortil of Pier GO Park. Ideall}�, the motels and hotels �vill have
taken advai-itage of the opportunity to revitalize their property so that the sidewalk ori the eastern
side of the road will be l�ounded by Ile�v ancl impi-oved gr�utlds witll pools, olitsid� ca.fes and
other "seaside" amenities. The sidcwalk �.uauld be separate� froin the travel lanes of the new
South G2zlfview by a four foot park�vay wit11 generously spaced street trees. Tlle t�vo travel lanes
— one north a�ld one south — woulci be 10 feet i�l �v�dth and �vould be separated fronl the bicycle
and pedestriai� walk by a second 4 foot �arkway with street trees. The bicycle/rollerblad� lane
would be 15 feet in width and �vould be separated from the pedestriaii walk by some sort of
visual cieniarcation. Tlle peciestriarl �valk would fi�orit directly on the dry sand w�ith sn�iall plazas
�vitll seating and steps to the beach located along the walk at strategic locations.
If� the sinuous aligilment is selected, the cross section �vould Ue practically the same as the
I70I1_S1I1tlOUS 1114jI1I11CJ.lt f;`CC���t t�l�ll: S111�11I ���1Cltillj arc;as WOLI�(.� CeI1lZ1Il 111 l�le "elbows�� Of t�l�
sinuou� align���e►it. Tl�e i�ldividtial parl:ing ai•eas �vould be landscaped �vith trc;es and would be
improved so ihat they practically operate as places of�assembly.
Beac�1 by Design stron�ly recommends the sinuous alignment for scveral reasons. First,
IIlaII1t�11I'tlll� SOIll� Qf tI1� SLII'f�C� p1I'k1I1� W1I� UCI10Elt CXIS11Il� ��1l5111CSSCS �l�O11� 1�1'� e\lSllfl� I'l��li
of way. Second, the curviliiiear alignn�ent �vill naturally calm traflic a(ong ils Iciz�th. 'I'hird, the
cur�Tilinear fornl llelps to brealc the beacllfi-ont ii�to a series of discrete laridscapes. F1I11�1y, tl�e
CUI"Vlllileai all�ll.illeilt tiVO111C� be d1Stt21Gi1VC �li1C� 111CI1101'��)1�, �ualities which �vo�ild support tl�e
Clty'S C�e51i•e to reposition the Beacll as a tourist destinatio�i.
VI. Economic Realit}� and Feasibility
"There is no free lunch."
Mi lton Friedc��an
In Strategies for Revitaiization, the community called out the problerns on Clearwater
Beach:
In recent years, residezits and business oti�ners in Clearwater Beach have becorne increasingiy
concemed about the pllysical conditions on the island and the potentially negative impact that
these conditions have on residents and businesses of Clearwater Beach. Among the primary
concems expr�ssed about the island are changing tourist and market perceptions of the island due
to the general lack of reinvestment in blisiness properties in the area, poor traffc and pedestrian
circulation, parking, and poor aesthetic conditians.
Beach by Design is Tlotlling if not arnbitious. Beach by Design proposes to re mediate the
concems identii�ed i1z Strategies and transfonn Clear�vater Beach an attractive and vital resort
cornrnunity that strikes a meaningfi�t balance bet��een the interests of Beach residents, business
owners, the citizens of the City of Clean�vater and the City's tourism economy. Seach by Design
is not, hc�wever, a picture book of ideas — it is a practical pu�lic and private i�lvestrnent strategy.
The history of public asset rnanagement on Clearwater Beach is a elassic example �f
dis_investment and if the City �,�ishes to address its citizens' concerns about Cieaiti�vater Beach
and to create a resort eommunity which is responsive to the �oncerns and intei•ests oF residents,
businesses and tourists, tlle City must commit tl�e investment resources necessary to improve
mobility and to create a place of distinction.
'I'he estimated cost of improvernents propos�d in Beach by Design are significant. The
ac�ompanying table identifies projected capital �osts on a generalized basis for t��e public
investment elernents of B�ac11 by Design. The cost estimates are for planning puiposes onty, but
l�ave beel� prepared on the basis of recent, actual cost data ,
B�ach hy L�esign proposes that the �11.9 lI"11��IOI1 i11VEStTllellt Ue finaf�ced by a mix of
existing City revenues, e.g. Pennies for Pinellas and a special assessment on nenefitted
properties. Assurning t11at 50°!� of the investment in Beach l�y Design ..^ $6,062,980 — is fi�i�ded
by the City out of ex�sting municipal revenues over time (Pennies, annual budget etc.), the
balancc would be allocaied, if approved by the City Commission, to propet-ty awtiers on
Clearwater Beach and Sand Key �vithin the corporate limits uf the City and levitd as a s�ecial
assessment to be paid ove
apportio�led to C0111111e1"C1
residential pi•oper�ies. Ba:
this apportionment metho
$55 per residential unit an
by Design reco�nizes that
for free; however, the rea
The annual cost to benefit
foi- examplP, the results c
just a 10% increase in
residential propei-ties, tlie�
cost when considered on
reasonable retum on i�
invest�nent.
Beach by Design r
the intra_beach a11d beacl
purs�zing federal funding i
which in teims of real �un
authorities. The question
direction. The co5t of tlle 4
is incorporated in the cc
assessment analysis. The
�2,800,OQ0 znd if added tc
assessment Uasis (if such �
appro�imately 23%, v�Thicr
VII. Beach by Design:
Design Guidelines
time. f3each by Design recommeiicls ti�at 75`% of the alloczted cost be
�l retail and hoeel/nlotel pi-opci•ties aild that 25% hc a��portioned to
�d on a prcliminary analysis based on �icrea�e and numbers ot' tmits,
lology would gei�erate �lIl �lllllllal spccial assessmc»t of approximately
i�92 per motel/hotel unit (or the commercial retail eyuivalent). Beach
no one is pleased to pay for something they bclieve they arc entitled to
ity is th�1t l�ck of ii�vestment is r�sponsible for the existing condition.
ed praperty o�Yners is modest itl cornpai•isoi� to the benefit received. If,
i llll�)ICI11EI1t1Ilg tlle BeaC�l bj� DCSI�Il lI1V(;StIl1eI1� StI'atC�y results in a
air market value of coiz�rnercial properties and 3.5% increase in
tl�e UeneFt received by assessed properties ���ill be 9 to 16 times the
an annualized or net present value basis. In other �vords, on atzy
�vestme7t basis, the special assessmeiit is a�vise and beneficial
cot�imends that the City seek federal fiinding for tt�e capita� �osts of
access trailsit svstems. Several Florida coastal cities are currently
>r greenway; transit projects and Beach by Design �roposes a systern
tion shouid be very well_received by state acid federal transportation
of fiinding availability rnay ultirnately be a matter of legislative
uideway, except for rails if the veliicle is a narrow gau�e rail vehicle,
�t of road/promenade irnprovements which were included in the
cost of acquiring the intra_beach trar�sit vellicles is estimated at
the Beach by I3esign capital budget and filnded on tne 50_50 special
i approach is adopted by the City) would increase the assessments by
would still translate into a return on investment of � to 14 %.
Implementation of Beach y Design involves more than community redevelopment initiatives, it
also iz�vol.ves private dev loprnent and redeveloprnent that confornls to design objectives and
principles established in each by Desigi�. These abjectives ail� pi-inciples will help the City
promote safety, encourage cleanliness, and provide a com%rtaUie enviroiiment.
I.
DESIGN OBJECTIVES
Bulk
l. To �;romote devel prnent and redevelop.nent which is in scale �vith the character and
function of Cleai-water Be ch
2. To ensure tllat the ross density and intensity of development on Clearwater Beach does
aot exceed the capacity of ublic inFrastructure
3. To ensure that new development is cornpatible �vith existing buildings
4. To rnaintain a distii ct character on Clearwater Beach
5. To avoid further " alling oFf' of the Gulf of Mexico and the Intracoastal Waterwav �vith
`Yo���s" ofhigh rise buildings
6. To proi�iotc diversity in thc sc�ilc, n�ass and hei�ht of buildings
7. To ensurc tizat side�valks are s��rr����,c�y �vide to allo�v �roups oi� pedestrians to pass
W1L�1011t �1�1V1114J l0 �1'�1�� Ill 1�1C SLl'Ctt
S. To ensure that the hei�ht of buildings is rclative to anci in scale �vith the width of puUlic
places
Desi�l
l. To ensure aesthetically pleasing arcllitectui•e i» a ti•opical verilactilar
2. To create inviting, hurnan scale "places" at the street level of all buildings
3. To prornote aii integration of far«1 aild fiinction
4. To create a sense of a"beach community neighborhood" throughout Clearwater Beach
5. To use landscape rnaterial to differentiate Clearwater Beach frocn other beach arcas and
intensely developed places ii� Pinellas Coutity
6. To landscape all stirface parking areas so that the view of such parking facilities from
public roads, sidev��alks and other places is c�etern�ined by landscape material instead of asphalt
7. To ensure that the street level of all buildings is pedestri�n friendly
II.
DESIGN GUIDELINES
A. Density
The gross density of residential development shall not e�:ceed � 30 dwelling units per
acre, unless additional density is transfeired from other locations on Sand ICey or Clearwater
Beach. Ordinarily, resoi-t density will be limited ta 40 11I11iS per acre. However, additional
density ca�l be added to a resort either by transferred development rights or if by way of the
provisions of ��x�}�- " " � the communitv redevelopment district (CRD)
desigtiation. Nonresidelltial density is lirnited by Pinellas County Planning Council intensity
standards.
B. Height
One hundred feet (IOU') is the rnaximum. permissible building height, except that the
heigl�it liinitation maybe increased to one hundred fift�J feet (150') if:
(1) additional density is allocated to th� development either by transf�rred
development xights or with bonu� hotel units pursuant to the PA designation;
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b
{�88'� �� portions of any structures which exceed one hundred feet (100') are spaced at least one
huridred feet �00'� apart (with no m�r� than #wo �2) structures which exceed one h�ndred feet
�100'� within fve ht�ndred feet (500') or four (4) st�lictures which exceed one hundred ieet
�100'Zwit,iin eight hundrea feet f800') so long as the ele�ations of ala. strtictui•es ��vhicln exceed
one�l�undred feet �,100') wlien such stivctures are viewed from the east do not occupy a total of
fort,�ercent�,40%) of a north south vertical plan which is �arallel to #he ali nment of Coronado
and North Mandalav of the buildin e� nvelope above one hundred feet (l00'); aizd
(3) the floorpiate of any portion of a building that excecds forty_two feet (42') in
heigl�t is limited as follows;
(a) between forty_two f;;et (42'� 1IlC� 011e l�llllCli"CCI ft'.CL � 1 OU'), the flooiplate
will be �io greater than 25,000 square fcet; and
(b) bct�veen one hundred feet (1 �)0') and one hundred r fty feet (150'), the
floor��lale will be no greater than 10,000 square feet.
C. Desig��, Scale a«d Mass of BLiildings
No particular architectural style is prescribed. Ho�vever, good �rchitecture, from a
commwiity charactei• p�rspe�tiv�, comes IIl all sllapes aild styles. There is, however, iil every
COI11I71L1Illtj1 all eSialillSllEd VOC3vUla1"y Of� the "good," the "bad," and the "ugly." New buildings
SIlOUId I'eSj7eCt 1111S Vl3CdULll�lij� �I1C� �I1�laI1G� the CO1T71�lUilltj� CIla1•actei• �vherever possible. The
more daring the desigi,, the nlore sensitive the particular architecture is to failure.
Quantifiable aspec�s of the architectural vocabulary are:
(1) Buildiil�s witl� a footprint �f greater thail 5,000 sqiiarc feet or a siilgle dirnension
of greater than one lnmdred {100) square f�et will be �onstructed so that no rnore than two (2) of
tl�e tlu•ee (3 j building dimensions in the �rertical ar horizonta( planes are equal in length. For this
purpose, ec�ual in lengtl� means t11at the ttivo lengtlis vary by less than forty p�rcent (40%) of the
shorter of the two (2) Iengths. The horizontal plane measuretllents relate to the footprint of the
building.
(2) No plane of a building may continue uninteriupted for greater than one hundred
linear feet {100'). For the purpose of this standard, intei-ru�ted rneans an offset oi greater than
five feet (S').
(3} At least sixty }�ercent (60%) of any elevation will �e covered �vith vUiildows or
architectural decoration. Far the purpose of this standard, an elevation is that portion of a
building that is visible from a particular point outside tlle parcel proposed for developine:�t.
(4) No more than sixty percent (60%} of the theoretical maxirnum building envelope
located above o�e-�te� fol-tY-two feet (42') will be occupied by a building. For the pur�aose of
this standard, theoretical maxirnum building eilvelope is the maxirnum pPirnitted building
volume that could be lheoretically occupied by a �uilding and occupieci by a building includes
any portion of the ma�irnum possible buildin; envelope that is not visible fi-om a public street.
(5) The height ar�d mass of buildings will be con•elated to: (1 j the dirnensional
aspects of the parcel pruposed for c�eveloprnent and (2) adjacent public spaces such as streets and
parks.
(6� Buildings may be designed for a vertical or horizontal mix of perniitted uses.
D. Setbacks a�-���1�
1. Righ��_of way
The area between the building and the--� __ the edge of �he pavement as
existing and planned� should be sufficiently wide to create a pedestrian_friendly environmEnt.
The distances from stn:ctu�•es to the edge of the right_of way shoulci be:
(1) fifteen Feet � I 5') along arterials, and
(2) twelve feet (12') �long ]ocal streets.
A ten foot (10') pedestrian path is key to establishing a pedestriail_friendly place in the
nonresid�ntial environrnent. Accordingly, arcades may be co�ISti•�i�ted i�l t11e ptiblic space, but
may not narrow the pedestrian palh to less than Lt',II feet ( i 0'}. Decorative a��mings and public
balconies may extend into the public space, ,ind even into the ri�ht_oF �va_y (provided they do
not obstruct vzhicular trafiic}. 4utdoor cafe tables are also �ermitteci in thc; public space, subject
to the rec�uirements in Section H, Side�valks, infra.
2. Side and Rear Setbacks
E�cept for the setbacks set Corth above, no sieie or rear sctback lines are recornrnended,
except as may be required to comply �vith the City's Fire Code.
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� E. Street_Level Facades
The human scale and aesthetic appeal of street_level facades, and their relationship t� the
sidewalk, are essential to a�edestrian_friendly environrnent. Accorciingly:
(1) at least sixty percent (60%) af the street level facades of buildings use�i for
nonresidential purposes (�c which abut a public street or pedestrian
access way, will be transparent. For the purpose of this standard:
(a) street level facade rneans that portion of a building facade frorn ground
level to a l�eight of tw�lve feet (12')
(b) transparent means windows or doors that allo�v pedestrians io see into:
(i� the building, or
(ii) landscaped or hardscaped courtyard or plazas, �vhere street level
facades are set back at least fifteen feet (15') from tlte edge of the
sidewalk and the area between the side�valk and the facade is a
landseaped or hardscaped c�urtyard or plaza
(c) parkin � stiuctures should utilize �.rchitectural details and . design:�elernents
such a false recessed windows, arches, planter boxes, metal �rillworkLPtc;
insfead of transparent alternatives. W�en a parking ara�e abuts a`public
road or other public place, it �uill be designed such that. the function of the
bu;ldin is not readily �pparent exce�t at points of ingress and e r� es5:
(2) �g� �Wind.ow coverings, and other opaque materials inay covcr no more than
10% of the area of any street_level windo�v in a nonresidential building that fronts on a public
right_of way.
(3) Building entrances should be aesthetically invitin� and easily idet�tified.
(4) Goods for sale will not be displayed �utside oi' a btiildin�, �xcept as a permitted
tem�orary use. Tliis starzdard does not apply to outdoor food service est�lbIlSlltlleIltS.
A�vnings and otl�er strtictures that �t'fei• pe�icstrians cover Crom tl�e elements �re
recornmended. f�.W11111�S help define entryways anci provide storefi•ont identity ta both
pedestria�is and driver�.
l
�F. Parking Areas
To create a well_defined and aestlletically appealing sti-eet boLindary, all pat-king areas
will be separated from public rights �f �vay by a landscaped decorative �vall, fence or other
opac�u� landscape treatment of not less tll�lll }"'^ �°°* r?'` three feet (3'�and not more than three
and one_half feet (3 %2') in height. Sut-face pai•kiiig areas that are visible fro�n public streets or
other public places will be landscapPd such that tl��e parking areas are defi►ied more by thcir
landscaping materials than their paved areas �vhen vie�ved fro�n adjacent properly. The use of
sl�ade trees is encauraged i,i ��arking lots. However, care should be taken to choose trees that do
not di-op excessive arnounts of leaves, flo�vei•s, or seeds on tlle vehicles below.
Entrances to parking areas should be clearly marked in order to avoid confusion and
minimize automobile_pedestri�n confli�ts. Attractive si�nage and clianges to tl�e texture of the
road (such as pavers) are recornrn�ndec�.
When a parking garage abUts a pub�ic road or other �ublic pl�ce, it will be designed such
that the function of the lauilding is not readily apparent except at points uf ingress and egress.
� G. Signage
Signage is an important contl-ibutor to tlle overall charactei- oF a place. However, few
general rules apply to signage. Generally, si��age should be creative, unique, simple, and
discrete. Blade si��s, banners and sand�vich boards should not be dis�ouraged, but signs placed
on the sidewalk should not obstruct pedestrian traffic.
�'H. Sidewalks
^ Sidewalks along arterials and retail streets should be at least ten feet (10') in width.
,�'A:,,;�i�:��:z�,,.;;: ro��i,a��;,;� �t.-ao+�_�i,�,.�,a_�,o .,+ �n.,�+ o;b�,+ �aot �Q�� ;;,_.�;;�a�. All sidewalks along
arterials anci retail streets will be landscaped with palm trees, spaced to a maximum of thirty_five
feet (35') on centers, with "�lear grey" of not less tlian eight feet (8'). Acceptable palm trees
include sabal palrns (sabal palmetto), �a ' �{".���#a�r�•-��); medjool palms
(phoer�ix dac�ylifera `medjool'), and canary island date palms (phoeni;c canariensis). Sidewalks
along side streets will be landscaped with palms (clear �e3� �runk of not less than eight fi;et (8'))
or shade trees, spaced at rnaximum intervals of thirty_five feet (35') on centers.
Portions of required sidewalks rnay be improved for non�edestrian purposes including
outdoar dinir�g and landscape rnaterial, provided tllat:
(1) niovernent of pedestrians along the sidewalk is not obstr-ucted; and
(2) no�l�edestrian inlprovernents and uses are located on the street side of the
sidewalk.
Distinctive paving patte►-ns shoul_d be used to separate pertnanent sidewalk cafe
improvelrients from the pedestrian space on the side�valk. To enhance pedestrian safety and
calin traffic, dastinctive paving should also be used to mark crosswalks.
� I. Street Furnittire �nd Bicycie Racks
Street fumiture, including benches and trash receptacles should be liberally placed along
the sidewalks, at intervals no greater than thii-ty lincar feet (30') oF sidewalk. Bicycle racics
should also be provided, especially near popul��r destinations, to promote transportation
alternatives. Cornplicated bicycle rack systeills sllould be avoided. The placement oF street
furniture anci bicycle racks should not i�lten•upt pedestrian traffic on the sid.ewalk.
�i'J: Street Lighting
Street lighting should respond ta the pedestrian_oriented
In this context, it sllould balance the functional with the attractiv
vehicular traffic, while simultaneously creating intimate ;
Clearwater's historic lighting is an attractive, single_globe fixture
�,=K: Fountains
Fountains provide attractive focal points to public spaces
urban environments. They should be interesting, engaging and uni
to overburden architectural creativity regarding fountains, they sho
standards in order to be a fiinctional and attractive component of th
(1) they should be supplernented with street furnitur
receptacles, and
(2) they should have rims that are:
(a) tall enough to limit u�isupervised acce�s by s
(b) wide enotzgh to permit seating.
Fountains should be encouraged in landscaped and hardscaX
�4.�.L: Materials and Colors
1. Facades
Finish materials and building colors will reflect Florida or c
a�vnings should contain at least tlu•ee {3) distiiict colors. Bright c
and other accents.
Glass curtain wails are prohibited.
2. Sidewalks
Sidewalks will be constructed of:
(1) p avers;
(2) patterned, distressed, or special aggregate con�rete; �
(3) other finished treatment tliat distinguishes the side
cancrete side•,��alks.
Materials should be chosen to minirnize the cost and complexity of
3. Street Furniture
Street furniture will be constructed of low maintenance in<
that is compatiblE with its surroundings.
4. Color Pallette
A recommended p�llette for building colors is presented on
iature of a tourist destination.
— providing adec�uate light to
�aces along the sidewalks.
top a cast_iron pole.
and add natural elements to
ue. While it is iitiportant not
ld meet at least the following
public space:
such as benches and trash
all chiidren, and
ed courtyards and plazas.
astal vernacular themes. All
lors will be limited to trims
lks f'rom typical suburban
aintenance.
, and will be in a color
iollowing page.