01-16-2001
Agenda/eRA
1-16-0 1
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AGENDA
Community Redevelopment Agency Meeting
Tuesday - January 16, 2001 - 9:00 A.M.
1 . Call to Order
2. Approval of Minutes: 11/13/00
3. (Cont. from 11/1 3/00) Consider & make recommendation to City Commission re
PST A request to amend the Clearwater Downtown Redevelopment Plan from Low
Density and Medium/High Residential Districts to Public/Government Category re 100
N. Greenwood Ave. to allow construction of a bus terminal
4. Executive Director (Assistant City Manager) Verbal Reports
5. Other Business
6. Adjourn
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Community Redevelopment
Agency
Agenda Cover Memorandum
eR.A Item # 3
Meeting Date: I. I (Q .01
SUBJECT/RECOMMENDATION:
Consider and make a recommendation to the City Commission on the request of the Pinellas Suncoast
Transit Authority to amend the Clearwater Downtown Redevelopment Plan from Low Density and
Medium/High Residential Districts to PublidGovernment Category at 100 North Greenwood Avenue to
allow the construction of a bus terminal.
o and that the appropriate officials be authorized to execute same.
SUMMARY:
Pi nellas Suncoast Transit Authority (PST A) has requested an amendment to the Clearwater Downtown
Redevelopment Plan to allow the construction of a bus terminal. The proposed location is on a city
block of approximately 3.4 acres bounded by Greenwood Avenue on the east, Booth Avenue on the
west, Grove Avenue on the north and Laura Street on the south. PST A proposes this bus terminal to
replace the existing terminal located at the northwest corner of Pierce Street and Garden Avenue. A bus
terminal is defined as a public transportation facility which requires a PublidGovernmental use category
in the Redevelopment Plan. The Greenwood Avenue site is currently designated as Low and Medium/
High residential categories and, therefore, does not permit the development of a bus terminal.
The Redevelopment Plan was adopted in 1995 and it established five districts of the redevelopment area,
designated land use categories for all property within the redevelopment area, proposed catalyst projects
to leverage private investment and prescribed five general goals for downtown redevelopment. The
proposed bus terminal location is inconsistent with all of these major elements of the Redevelopment
Plan (refer to the attached staff analysis).
In summary, the Planning Department finds that the proposed amendment is inconsistent with the
Redevelopment Plan for the following major reasons:
. The proposed location is central to an existing and planned residential neighborhood and a bus
terminal will intrude into this neighborhood with its traffic, noise, pollution and expected
secondary impacts such as crime.
. Should a bus terminal be located on the proposed site, the characteristics of the terminal will
discourage new residential development and eliminate a major residential block from
redevelopment. There is a townhouse project under construction within a block from the proposed
site and the proposed Balk townhouse development around town pond is located two blocks to the
south. Introducing a commercial use with negative operational characteristics is inconsistent with
. Reviewed by: Originating Dept: V
Legal y!_l' Police Dept. NA Community Redeve~~en
" 1 Agency
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Budget . . User Dept. ~~
Public Works NA
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Purchasing NA DCM/ACM Community Rl>de e opment
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Risk Mgrnt NA Other N,\
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Costs N/A
Total
Funding Source:
Capilallmprt1\'emen'
Current Fiscal Year
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Appropriation Code:
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th is residential area.
· The proposed location is not conveniently located for major employers and their customers and
will likely result in a longer walk for passengers or additional transfers. In addition, the distant
peripheral location does not promote the expanded use of transit for new customers nor does it
encourage the linkages between downtown, the beach and other parts of the City. The ability to
link downtown activities and downtown parking for transfer to the beach is eliminated through this
distant location.
. The Redevelopment Plan anticipates public investment to leverage private investment. While
PST A does propose a new terminal and a co-location with Greyhound Bus Lines, the choice of
location creates more disincentives than the positive circumstances of the new facility.
The Community Development Board heard this request at their public hearing of October 17, 2000.
There was substantial public testimony by residents and property owners in opposition to the proposed
amendment. There were no speakers in favor of the proposal. Reasons for the opposition to the terminal
included the potential decline in property values, a decline in the quality of life for residents, the noise
and pollution and their effect on the children at a nearby school, the potential crime associated with the
terminal in close proximity to residents and inconsistency of the proposed use with the Redevelopment
Plan. The Community Development Board unanimously recommended denial of the proposed
amendment.
In a related action at the same meeting, the Community Development Board reviewed the flexible site
plan for the terminal and denied the site plan application. The Board's decision on the site plan is final
unless the PST A requests an appeal which would be heard by a hearing officer hired through the
Department of Administrative Hearings.
2
COB Meeting Date:
Case Number:
Agenda Item:
October 17. 2000
CRA 00-09-01
06
CITY OF CLEAR\V A TER
PLANNING AND DEVELOPMENT SERVICES ADMINISTRATION
STAFF REPORT
BACKGROUND INFORl\tIATION:
OWNERS:
LOCATION:
REQUEST:
PLANS REVIEWED:
SITE INFORMATION:
PROPERTY SIZE:
DIMENSIONS OF SITE:
PROPERTY USE:
Current uses:
Proposed use:
ZONING DISTRlCT:
PLAN CATEGORY:
Trust for Rehabilitation and Nurturing Youth and Families, Inc.
100 North Greenwood Avenue
An amendment to the Clearwater Downtown Redevelopment Plan
from Low Density Residential and Medium/High Density
Residential Categories to Public/Government Category.
Site plan submitted by Florida Design Consultants, Inc.
3.48 acres
594 feet deep by 255 feet wide
. Vacant
Public Transportation Facility
D, Downtown District
CBD, Central Business District Category
Page I
AD.JACENT LAND USES: North: Otlice and single-family residential
South: Office, retail and multi-family residential
East: Office, retail and residential
West: Vacant lot and residential development under constmction
CHARACTER OF THE
IMMEDIA TE VICINITY: The immediate vicinity is a mixture of residential, office and retail
lIses.
ANALYSIS:
The purpose of this request is to amend the Clearwater Downtown Redevelopment Plan to allow
the development of a bus terminal at 100 North Greenwood Avenue for the use of Pinellas
Suncoast Transit Authority (PST A). A bus terminal is defined as a public transportation facility by
the Community Development Code, A public transpol1ation facility requires the site to be
designated with the Public/Governmental use category of the Clearwater Downtown
Redevelopment Plan, The site proposed as a bus terminal by PST A is currently designated as Low
and 1\'1edium/High Residential land use categories by the Redevelopment Plan and, therefore, does
not permit the development of a bus terminal. PST A proposes a bus terminal on Greenwood
A venue to replace the existing terminal located at the northwest corner of Pierce Street and South
Garden Avenue, There is a companion case which requests site plan approval of a proposed
Flexible Development application as a Comprehensive Infill Redevelopment Project (Case FL 00-
08-34). Accordingly, this staff report evaluates the amendment to the Redevelopment Plan and
the site plan issues are evaluated fhlly in the companion Comprehensive Infill Redevelopment
Project staff report.
The Countywide Plan Rules establish a plan categOl)' of "Central Business District" which allows
cities to designate the boundaries of their urban center, prepare a specific CSO plan and allow
downtown development with mixed uses at densities and intensities greater than in other parts of
the City. Since at least 1976 when the first downtown plan was created, the City of Clearwater
has identified the downtown as an urban center and the City's principal activity center. Over the
years, there have been many downtown plans created with the most recent plan adopted in 1995
entitled "Clearwater Downtown Redevelopment Plan." This Redevelopment Plan is the plan
currently in effect and the plan for which an amendment is sought by PST A.
The Redevelopment Plan establishes five general goals for the redevelopment of downtown,
Within each goal, the Plan also establishes objectives and policies as detailed in Section VI. The
proposal is evaluated against each goal, as follows:
Page 2
1. People Goal: To redevelop downtown Cleanvater into a successful "people place" that
attr"acts, retains, and inspires those of all ages and incomes to use and enjoy the
community town center.
Analysis: The objectives and policies of this goal highlight the need to encourage new
residents to downtown, to encourage employment downtown through convenient transportation
and parking, and to become the link among downtown, the City at large and the beach. The
proposed PST A bus terminal location is in the middle of an area with existing and planned
residential homes and the terminal will intrude into this residential neighborhood by using three
local residential streets. The sccondary impacts related to the proposed use (e.g, crime, noise,
pollution, etc.) will detract from the rcsidential redevelopment potential of the site and
surrounding area. This is evidenced, in particular, by police reports for the existing downtown
bus terminal which include an averagc of 27 calls for service per momh (this year) for criminal
activity (9-1-1, dnll1kenness, theft, battery, domestic violence, trespassing, fighting, etc.),
The proposed bus terminal is located a substantial distance from thc major downtown
employers, thereby incrcasing the travel distance for most bus passengers or requiring a transfer at
the terminal. The proposed location is a substantial distance from the center of downtown and
available parking garages which could facilitate linkages between the City at large and other
destinations such as the beach.
In summary, the proposed amendment wiII allow a bus terminal in a location that wiII
negatively affect existing residential owners and discourage new residential development.
Further, the amcndment will allow a terminal in a location that is not convenient for its passengers
and will create a disincentive for bus travel due to its substantial distance from major employers.
The pr\ 'lJosed amendment is inconsistent with the People Goal of the Redevelopment Plan,
2. Movement Goal: To redevelop downtown Cleanvater with an efficient, high quality,
multi-modal movement system with supportive and visually positive terminal and
tr~Hlsition facilities for all modes.
Analysis: The objectives and policies of this goal establish the need for expanding the role
of transit in the downtown, Specifically, objective 2 and its related policy is stated as follows on
pagc VI-3 of the Redevelopment Plan:
"Expand the role of transit downtown by linking the regional and local serving system as a
means of reducing total reliance on the automobile.
Improve the urban design qualities of the PST A facility to more positively relate to
downtown, "
The proposed amendment to relocate the PST A facility to this site is not consistent with
the goal of expanding the use of transit by new passengers, The proposed location is not central
to downtown and will require a longer walk by passengers from their employment to the terminal
or require a transfer at the facility. The proposed location is physically unconnected with the
Pa~c 1
balance of downtown and will not contribute to the positive synergistic benefits of a downtown
activity center. f\Jthough the proposal introduces a linkage with the Greyhound Bus Service and
would create a new transit facility, the choice of location creates relatively larger disincentives for
the general downtown area when balanced against the positive circumstances of a new facility and
transit partner. The proposed amendment is inconsistent with the Movement Goal of tl~e
Redevelopment Plan.
3, Activity Goal: To redevelop downtown Clearwater to provide a broad and diverse set of
activity centers that accommodate, stimulate and reinforce residing, wor'king, visiting
and purchasing in a great waterfront town setting.
Analysis: The objectives and policies of this goal establish the need for diverse activities
encouraging a 24-hour downtown. With new residential development located immediately to the
west of this property and new townhouses planned two blocks to the south around town pond,
this site's location and size of approximately 3.4 acres make it a prime location for additional
residential uses, This site is in the center of several potential residential parcels and could be a
part of the northern residential anchor of the downtown. This amendment would eliminate a
major potential site for residential development and replace it with a bus terminal. The proposed
amendment would introduce a commercial use with negative impacts into the center of a
residential redevelopment area thereby discouraging other residential development from locating
on the adjacent parcels. In addition to losing the residential potential, the proposed amendment
would introduce a commercial use with external impacts into the center of a residential area: The
use, design, operational characteristics and secondary impacts of the bus terminal are inconsistent
with the residential character of the area and inconsistent with the Activity Goal of the
Redevelopment Plan.
4. Amenity Goal: To redevelop downtown Clearwater to create and enhance a small town
center "quality of life" that attracts and sustains a diversity of visual and use elements
for cultural, entertainment, recreation and envil'onmental eXIJeriences.
Analysis: The objectives and policies of this goal establish the need to create the town
pond to function both as a stormwater retention facility and as a park and to specifically act as a
catalyst for residential development in its vicinity, As described above, the proposed amendment
would remove a prime development parcel from residential development at a location that is
within walking distance of the town pond with its proposed passive park features. The proposed
amendment is inconsistent with the Amenity Goal of the Redevelopment Plan.
5. Opportunity Goal: To redevelop downtown Clenn\'ater to attract and continue a
process of value cre:ltion action that invests time, dollars, resources and cl'eativity to
enhance the value, tnx base, image nud quality of life for Clean\'nter,
Analysis: The objectives and policies of this goal establish the need for key development
parcels through the private market system while also encouraging public investments in
amenities for the downtown. As described above, the proposed amendment would remove
from the market a key residential development parcel. In addition. the public investments
p;]~C 4
proposed by PST A do not encourage an active vibrant downtown and do not add value to
the downtown amenities, The secondary impacts relatcd to this use (crime, loitering, etc.)
will negatively impact the quality of life for residents and business owners. The proposed
amendment is inconsistent with the Opportunity Goal of the Redevelopment Plan.
SUMMARY AND RECOl\/IMENDA TION:
An amendment to the Clearwater Downtown Redevelopment Plan is a significant issue and has
impacts beyond the borders of the proposed amendment site. In particular, the location of a bus
terminal can have a positive effect on a downtown given a location that is integrated with the
downtown land uses, is close to its passengers, minimizes the off-site impacts and minimizes noise
and air pollution, However, the proposed location is not related to the downtown land use
pattern and does not provide the synergistic effects that a transit facility can provide for major
downtown employers. In addition, the proposed location is internal to an cxisting and planned
residential neighborhood and utilizes three residential streets for access, The proposed location
removes from developmcnt potential a primc residential development parcel in close proximity to
the town pond and its park amenity, When evaluated with the five goals of the Redevelopment
Plan, the proposed amendment is inconsistent with all five goals of the Plan.
The application and supporting materials were reviewed by thc Development Review Committee
on September 7,2000, Planning Statfrecommends DENIAL of the request for an amendment to
the Clearwater Redevelopment Plan from Low Density Residential and Medium/High Density
Residential Categories to Public/Government Category, for the property located at 100 North
Greenwood Avenue.
Prepared by: Cyndi Hardin, Assistant Planning Director:
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ATTACHMENTS:
Aerial Photograph of Site and Vicinity
Location Map
Future Land Use Map
Zoning Atlas Map
Application
1\\'.'\!'J'[ISV'f.HlIllllg {.J~1'<l"1"'~11I\l' D liV'1E.\iP"lldl"1: App/lca1/(",.I,(j"~(',,,.~}()d N I 00 PSTAI (i"'Cl/li'O"d N 100 STA/07,'R1:'l'tJRT
CRl'A,doc
P:l!!C 5
,€.. eRA 3
~ Clearwater
u
(f P LD 3)
From:
Bill Horne, Interim City Manager ~
Ralph Stone. Planning Director f1P
January 8, 200 I
To:
Date:
RE:
Pinellas Suncoast Transit Authority Request
At the November 13 meeting. the Community Redevelopment Agency (CRA) deferred action on
the Pinellas Suncoast Transit Authority (PST A) request to amend the Clear\vater Downtown
Redevelopment Plan in order to constnlct a new ternlinal. The CRA dcferred action on the
request in order for staff to identify potential alternative sites for a new PSTA tenninal.
Planning Department staff identified four potential sites for a new terminal. Attached please find
information and maps of those four sites. Staff also met with representatives of PST A and
provided them the attached infomlation. On December 14, 2000 a letter from the Executive
Director of PST A was sent to the City stating that the sites identificd do not meet PSTA criteria.
Attached also plcase find a copy of that letter.
Staff will be prepared to discuss these alternatives with the City Commission at the January
meeting.
Attachments
POTENTIAL PSTA SITES
1. Existing PST A Site with Count)' Parking Lot
Land Area: 2.06mol
Zoning: Downtown
Downtown Redevclopment Plan Land Use: Public/Government
Ownership:
a. ] 6/29/15/32292/005/0070 - PST A
b. ] 6/29/15/32292/005/0060 - PineIlas County - Watcr/Scwcr
c. ] 6/29/15/32292/005/0] 10 - PineIlas County - Water/Scwer
d. 16/29/15/32292/005/0040 - Pinellas County - Water/Scwer
c. 16/29/15/32292/005/0010 - PineIlas County - Water/Scwer
2. Site located on Cleveland St. between N. Evergreen Ave. and Hillcrest Ave.
Land Area: 1.357 mol
Zoning: Commercial
Ownership:
a. ] 364 Clevcland St., 15/29/15/64890/001/0080 - Jamil Salhab
b. 15/29/15/64890/001/0070 - Petcr Gianlilippo
c. 15/29/15/64890/001/0060 - Petcr Gianlilippo
d. 1370 Clevcland St., 15/29/15/64890/001/0050 - Peter Gianfilippo
e. 10 N. Hillcrest, 15/29/14/64890/00110010 - Pcter Gianfilippo
3. Site located between Cleveland St. & Park St. & San Remo Ave. & Hillcrest
Ave.
Land Area: 1.817 mol
Zoning: Commercial and Mcdium Dcnsity Rcsidential
Ownership:
a. 1417 Cleveland St., 14/29/15/47016/002/0010- Helen C. Arfaras & Mary
G. F,~ardo Tmstcc
b. 1390 Gul to Bay Blvd, 14/2915/47016/002/0190- William 1. and Mary A.
Moran
c. 1410 Park St., 14/29/] 5/47016/002/0170 - Pecoraro Consult. Inc.
d. 14] 6 Park St., 14/29/] 5/47016/002/016 - Pecoraro Consult. fnc.
c. 1420 Park St., ]4/29/15/47016/002/0]50 -Jolly Rodgcr fnvcst Corp.
4. Site located on Gulf to Bay, Highland Ave. and De Leon St.
land Area: 2.055 mol
Zoning: Commercial and Medium Density Residentia]
Ownership:
a, ]498 Gulf to Bay Blvd., 14/29/15/]0476/007/0060 - Richard P. Levy
b, ]488 Gulf to Bay Blvd., 14/29/15110476/007/0090 - Ercole & Rosa Volpe
c. 1472 Cleveland St., 14/29/15/10476/007/0]50- Sclim Vinca
d. 1489 Dc Leon St., 14/29/15/10476/007/0010 - Merwyn and Merilyn
Hassell Trustees
e. 330 S. High]and Ave., 14/29/15/1 0476/007/0020 - Merwyn and Merilyn
Hassell Trustees
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December 14, 2000
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Mr. Bill Home, City Manager
City of Clearwater
P. O. Box 4748
Clearwater, FL 33758
RE: PSTA Park Street Terminal Alternate Sites'
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Dear Mr. Horne,
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Thank you and your staff for assistance in trying to identify additional possible sites forthe.ll?cation of
PSTA's new downtown terminal. We have reviewed the three sites in great detail. Unfortunat~IY, as
our search over the last few years showed us. the sites your staff identified do not meet the criteria
far the new terminal. We had outlined the basic criteria in a letter to Cyndi Hardin, of your staff. The
three sites that your staff identified do not meet the size requirements, are outsid~ the downtown
area, and would likely not be approved by the federal government, which is teQuired under the
federal grant for this project. We would provide the following specific comments on each site:
,
Site #2: Cleveland Street between Evergreen and Hillcrest
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This site is smaller than our two-acre minimum requirement and would severely restrict the
amount of bus bays as well as the size of the tennina!.
There are several viable businesses as well as single~fam~y residences that would need to
be purchased, condemned, or relocated. Federal regulations prohibit the condemnation of
any property for this project.
Access to the traffft'light at Hillcrest and Gulf-to-Bay is limited and would restrict our ability to
enter and exit ~~e site easily.
The existing residential neighborhood to the north would likely prevent this site from bein"g
approved by the federal government.
Site '3: Gulf-to-Bay and ~iIIcrest bet'ween Cleveland and Park
This site is smaller than our two-acre minimum requirement which would restrict the size of
our bus terminal. ,
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DE~-27-2000 16:06
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Mr. Bill Home, City Manager
PST A Alternate Terminal Sites
December 14, 2000
Page 3
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This site has approximately ten viable businesses, several single-family homes, and a multi-
unit apartment complex. which would have to be condemned and relocated. Again PST A
cannot condemn any property for this project.
This block sits on a hill, which presents severe grade problems (for Florida). Buses must be
near level for wheelchair ramps to function and for wheelchair patrons to use them easily.
This would necessitate somehow terracing or leveling the block to make it usable.
The remainder of this block is occupied by seven existing single-family residences, which
would likely prevent the federal govemment from approving this site.
Site #4: Gulf-te-Bay between Highland and DeLeon Street
This site has several viable businesses including a large classicrauto business, a
convenience store, and a Laundromat. These businesses, the latter two of Which seem to
serve the neighborhood, would need to be purchased, condemned, or relocated.
Gulf-to-Bay fronts the property, and would provide good access to the east and west.
However, the other two streets (Highland and DeLeon) would likely cause problems if used
to access Drew Street and points north.
The site is directly abutted to the north by existing single.family residences, which again
would most likely prevent approval for this site from the federal government.
Summary:
The three sites each have multiple property owners which would make it very time
consuming and expensive for land acqUisition I if all of the properties for anyone of these
sites could be purchased vOluntarily~
None of the three sites offers the advantages that the proposed Laura Street site offers. The
closest of the three, Site #4, is approximately one mile from the current terminal and the
furthest, Site #2, is approximately 1 ~ miles from the current terminal. These other sites
would result in additional costs as well as cause substantial routing and scheduling
revisions.
By comparison, the proposed Laura Street site is 3/8 of a mile from the Park Street Tenninal.
Laura Street offers enough property to accommodate PST A's current needs as well as room
for future growth. Additional, this property allows for on-site stormwater retention, which
placed at the west end of the site as proposed, will provide a landscaped and fenced buffer.
This buffer will provide a physical and visual separation of the tetminal activity as well as the
bus movements at that end of the property from the day-care center and apartment complex
at the west end of this site.
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DE(-27-2000 16:07
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Mr. Bill Home, City Manager
PSTA Altemate Terminal Sites
December 14, 2000
Page 3
As was brought out in the presentation to the Community Redevelopment Agency meeting in
November, the representative of the owner of the property testified that in eleven years no
less than six potential buyers have investigated developing this property in various residential
projects, including as low-income housing. Each potential developer came to the
conclusion that the market would not support residential use on this parcel.
With regard to the Park Street Terminal, as you know, this site would not allow for the construdion of
the new terminal, unless the adjacent County property is available to be utilized for the terminal. The
use of the County property as part of this project is problematic because of conflicts between the
federal requirements related to the grant to PST A and the County's restrictions on the property. At
this time, this issue is still unresolved. We have contacted representatives of the Federal Transit
Administration to discuss further the federal restrictions on PST A' 5 participation in a joint project with
the City and the County. We were advised that PSTA would not be allowed to IJse the federal
funding for this project, except for costs directly associated with the terminal. They advised us that
they would review the allocation of the construction costs, even to the extent to ensure that PST A
was not contributing to costs of constructing the foundation beyond what is necessary for the
tenninal. In order for this project to be considered, the City would have to take the lead in resolving
the land issue and in managing the construction and maintenance of the parking garage,
In consideration of the preceding review and the great amount of time and money that we have
expended trying to find a suitable location, we hope that you and your staff will agree with us that the
laura Street site is the logical place for PST A to locate the new downtown passenger terminal.
Sincerely,
PINELLAS SUNCOAST TRANSIT AUTHORITY
R~eyb~or
MJS/dmt
cc:
Alan S. Zimmet. General Counsel
Michael J. Siebel, Director of Planning
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