6689-01
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ORDINANCE NO. 6689-01
AN ORDINANCE OF THE CITY OF CLEARWATER, FLORIDA
ADOPTING A COMMUNITY REDEVELOPMENT AREA PLAN FOR
CLEARWATER BEACH ENTITLED BEACH BY DESIGN: A
PRELIMINARY DESIGN FOR CLEARWATER BEACH AND DESIGN
GUIDELINES; AND PROVIDING AN EFFECTIVE DATE.
WHEREAS, the economic vitality of Clearwater Beach is a major contributor to the
economic health of the City overall; and
WHEREAS, the public infrastructure and private improvements of Clearwater Beach are a
critical part contributing to the economic vitality of the Beach; and
WHEREAS, substantial improvements and upgrades to both the public infrastructure and
private improvements are necessary to improve the tourist appeal and citizen enjoyment of the
Beach; and
WHEREAS, Policy 2.1.1 ofthe Future Land Use Element of the Clearwater Comprehensive
Plan calls for the renewal of the beach tourist district to be encouraged through the establishment
of a community redevelopment area; and
WHEREAS, the City of Clearwater contracted with the consulting firm of Siemon and Larson
for the purpose of preparing a redevelopment strategy for Clearwater Beach; and
WHEREAS, the City of Clearwater has invested significant time and resources in studying
Clearwater Beach; and
WHEREAS, the City of Clearwater has conducted numerous public meetings regarding
Beach by Design and has considered the public testimony in the development of the plan; and
WHEREAS, Beach by Design represents the consultant's recommendation, based upon its
professional expertise and research, and input from Clearwater residents, property owners,
business owners, and City staff; and
WHEREAS, Beach by Design contains specific development standards and design
guidelines for areas of Clearwater Beach that are in addition to and supplement the Community
Development Code; and
WHEREAS, the City of Clearwater has the authority pursuant to Rules Governing the
Administration of the Countywide Future Land Use Plan, as amended, Section 2.3.3.8.4, to adopt
and enforce a specific plan for redevelopment in accordance with the Community Redevelopment
District plan category, and said Section requires that a special area plan therefore be approved by
the local government; and
WHEREAS, Beach by Design provides a limited density pool that can only be used for hotel
resort development which will aid in the renewal of the beach tourism industry; and
Ordinance No. 6689-01
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WHEREAS, Beach by Design establishes Clearwater Beach as an area where transfer of
development rights may be used pursuant to the Pinellas Planning Council Rules Governing the
Administration of the Countywide Future Land Use Plan, as amended; and
WHEREAS, Beach by Design has been submitted to the Community Development Board
acting as the Local Planning Authority (LPA) for the City of Clearwater; and
WHEREAS, the Local Planning Agency (LPA) for the City of Clearwater held a duly noticed
public hearing and found that Beach by Design is consistent with the Clearwater Comprehensive
Plan; and
WHEREAS, on February 1, 2001 and February 15, 2001, the City Commission of the City of
Clearwater reviewed and approved Beach by Design; now therefore,
BE IT ORDAINED BY THE CITY COMMISSION OF THE CITY OF
CLEARWATER, FLORIDA:
Section 1. Beach by Design: A Preliminary Design for Clearwater Beach and Design
Guidelines attached hereto as Exhibit "A" is hereby adopted.
Section 2. The boundaries of the special area plan governed by Beach by Design are
shown on the map attached hereto as Exhibit "B."
Section 3. Beach by Design is hereby approved and adopted as the special area plan and
prescribes long range planning strategies for the area.
Section 4. Beach by Design contains specific development standards and design
guidelines for areas of Clearwater Beach that are in addition to and supplement the Community
Development Code; and
Section 5. Beach by Design establishes a limited density pool for hotel resort
development that can be used in a specified area pursuant to the specific requirements
established in Beach by Design.
Section 6. Beach by Design establishes an area where the transfer of development
rights may be used pursuant to the specific requirements established in Beach by Design.
Section 7. The City Manager or designee shall forward said plan to any agency required
by law or rule to review or approve same.
Section 8. It is the intention of the City Commission that this ordinance and plan and
every provision thereof, shall be considered separable; and the invalidity of any section or
provision of this ordinance shall not affect the validity of any other provision of this ordinance
and plan.
Section 9. This ordinance shall take effect immediately upon adoption.
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Ordinance No. 6689-01
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PASSED ON FIRST READING
PASSED ON SECOND AND FINAL
READING AND ADOPTED
Approved as to form:
Leslie K. Dougall-Si e
Assistant City Attorney
February 1, 2001
February 15, 2000
Briat;~\ -
Mayor-Commissioner
Attest:
3
Ordinance No. 6689-01
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.~ ~llf 1. ~~ .=eSl~n...... .....
A Preliminary Design for {slearWiater ~e~h and
~ 'Il-esign Guidelines.
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ADOPTED
Februar~ I5! 2.001
Prepared for:
Cit~ of clearwater
F[oriDa
Prepared by:
SIEMON & LARSEN
Strategic Land Planning & Management
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TABLE OF CONTENTS
I. Introduction/Summary ................................................................................... 1
II. Future Land Use ........................................................................................ 5
A. Old Florida District ................................................................................. 7
B. Destination Resort District. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
C. Marina Residential District .......................................................................... 11
D. Retail and Restaurant District ........................................................................ 13
E. Pier 60 District . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
F. Small Motel District. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
G. Beach Vi alk District . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
H. Clearwater Pass District . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
III. Mobility. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
A. Arrival and Distribution. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
1. Entry.........................................,............................................ 22
2. North Beach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
3. South Beach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
B. Alternative Modes of Transportation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .29
1. Pedestrian......................,........................................................... 29
2. Bicycles ................................................................................... 30
3. Intra-Beach Transit. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
C. Access Rationing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
1. Residential and Guest Priority .................................................................. 33
2. Access Rationing by Controlled Access Lanes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
D. Transit from Downtown to Beach .........................................................,........... 35
E. Transit between the Barrier Islands .................................................................... 35
IV. Off-Street Parking. . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . , . . . . . . . . . . . . . . . . . . . 36
A. Pier 60 Garage .................................................................................... 38
B. Pelican Walk Garage ............................................................................... 39
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TABLE OF CONTENTS (cont.)
C. Rockaway Garage ......................,.......................................................... 40
D. Clearwater Pass District Garage ...................................................................... 40
E. Clearwater Marina Garage . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40
V. Catalytic Projects. . . . . . . . . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .41
A. North Mandalay Resort Development. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .41
B. Community Redevelopment District Designation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
C. Beach Walk - New South Gulfview Drive .............................................................. 48
VI. Economic Reality and Feasibility . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53
VII. Design Guidelines. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . , . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55
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Exhibit B
BEACH BY DESIGN
Special Area Plan Boundaries
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D~;''',;Jl~ "l..' , ft-
n etl.e" d'" lle~lgH:.
A Preliminary Design for Clearwater Beach
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Beach by Design
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I.
INTRODUCTION/SUMMARY
'The City of Clearwater is committed to the revitalization of Clearwater Beach as a "great" place to live and visit.
Clearwater Beach is both a worldfamous tourist destination but also home to more than 8,OOOfamilies.
Clearwater Beach is comprised of two elements: the
natural environment and the built environment. The natural
environment - the beach, the bay and near shore waters - are
remarkable resources where residents and visitors can recreate
and relax. Clearwater Beach is recognized as one ofthe truly great
beaches in the United States, if not the world. In contrast, the built
environment on central Clearwater Beach - the traditional tourist
area - suffers from obsolescence and age. Most of the buildings in
Clearwater were built at a time when the tourism business was
very different than it is today and the strength of the City's tourism
is not sufficient to support modernization and redevelopment.
Beach by Design aSSUllles that there is considerable market
support for residential, hotel, time share and retail uses on a
revitalized Clearwater Beach if the negative aspects of character
and quality of the public realm, including traffic circulation and
traffic, are improved.
In 1997 and 1998, a Plan was prepared for Clearwater
Beach entitled "Clearwater Beach: Strategies for
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 to
implement the recommendations of that Plan in light of fiscal and
legal constraints, analysis of the economy and the market, as well
as changed conditions.
Beach by Design: A Preliminary Designfor Clearwater Beach
Clearwater Beach: Strategies for Revitalization
presented a number of strategies which if implemented would
lead to the redevelopment of the Beach. These strategies can be
grouped in the following generalized topics:
.:. transportation and parking
.:. redevelopment of the superblocks between Clearwater
Beach and the Hilton and redevelopment of the Mandalay
retail district
.:. upgrading of the Beach
.:. Gulfview/Coronado hotel/retail redevelopment
.:. East Shore entertainment district and marina
.:. Bayside multi-family redevelopment
.:. Brightwater Finger redevelopment
Inherent to "Strategies for Revitalization" is the
recognition of need to find a balance between
residents and tourists.
Transportation and Parking
Clearwater Beach: Strategies for Revitalization
contained a number of transportation and parking projects. Some
of the significant transportation improvements included
modifications to the overall arrival and distribution system,
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City of Clearwater, Florida
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Beach by Design
including the narrowing of Manda lay from four lanes to two with
parallel parking, the expansion of one or both of the streets to the
east and parallel to Mandalay, and modifications to Gulfview
Boulevard. In addition, Strategies for Revitalization
recommended the development of a coordinated streetscaping
program, the expansion of sidewalks and significant parking
garage projects. The amount of parking which these parking
projects would add ifimpJemented is up to 1,110 spaces.
Upgrading the Beach
Strategies for Revitalization contains a number of
strategies for upgrading the Beach itself. Two of the most
significant strategies include the removal of parking from the
Beach to create an enlarged beach activity zone from South
Gulfview west to the water and the creation of a "beach
promenade" building on the "success of Pier 60 Park as a place of
significant pedestrian, bicycling and skating activity." These
enhancements were viewed as significantly enhancing the
viability of the commercial properties on the east side of South
Gulfview. More specific projects included within this overall
strategy include: a promenade of colored concrete, undulating in
form, with appropriate beach landscaping, conversation areas,
matching trash receptacles, benches and lighting, and the
incorporation oftournament quality volleyball courts.
Redevelopment of the Superblocks between Clearwater Beach
Hotel and the Hilton and the Mandalay Retail District
Strategies for Revitalization characterizes the area
between the Clearwater Beach Hotel and the Hilton as "the best
opportunity for additional high-rise, mixed use hotel
development." Strategies for Revitalization calls for a
concentrated three-bluck strip of upscale beachfront hotels. This
critical mass of development is necessary to support the
Beach by Design: A Preliminary Design/or Clearwater Beach
redevelopment of Mandalay as a "Main Street Retail Street" and
to generate and support a diversity of up-scale restaurants, clubs
and other forms of entertainment in short supply on the Beach.
Strategies for Revitalization recognized that the height limitation
of 92' might present a real hindrance in attracting desirable
development and in that event, height limitations should be
relaxed in consideration of "trade-off demands."
Gulfview/Coronado Hotel/Retail Redevelopment
Strategies for Revitalization recognizes the
redevelopment of Gulfview/Coronado as "key to the long term
success of Clearwater Beach." Strategies for Revitalization
provides for specific parking/transportation improvements to this
area in order to "optimize project densities" in the area. The
design of buildings in this area should allow greater height while
maintaining human scale at pedestrian level and maintaining
light, air and view corridors.
East Shore Entertainment District and Marina
Strategies for Revitalization views the East Shore
Entertainment District and Marina as an opportunity to expand
available commercial opportunities that can take advantage of
immediate water side development. It also suggests a two-level
waterfront retail and restaurant activity area linked to the
Mandalay retail district and a marina with a boardwalk which
would allow linkage to the City's marina.
Bayside Multi-family Redevelopment
Strategies for Revitalization proposes that some of the
small hotel and motels be converted to true residential uses of
comparable densities, thereby strengthening any remaining
viable small hotels. Between Baymont and Papaya there should
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City o.fClearwater, Florida
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Beach by Design
be mid-rise, multifamily residential units or condominiums as well as
high quality time share. Augmentation of quality housing stock will
better support the consolidated retail districts on Mandalay and the
proposed East Shore Entertainment District. Strategies for
Revitalization also called for the vacation of East Shore for one block and
combining the waterfront property with the property between East Shore
and Mandalay.
Brightwater Finger Redevelopment
Strategies for Revitalization
calls for the conversion of this area to
three and four level townhouses and
time shares. Regulations should
encourage development that is
consistent with redevelopment that
occurs across the waterway,
", Beach by Design is a
(~.~ ) preliminary design for the
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revitalization of Clearwater
Beach which implements Strategies
for Revitalization. Beach by Design
focuses on the land area between
Acacia Street and the Sand Key
bridge, but will have a direct and
immediate impact on lands to the
north and south of this area.
Beach by Design Focus Area
Beach by Design: A Preliminary Designfor Clearwater Beach
3
Beach by Design IS based on a senes of
strategies:
.:. creation of an attractive and efficient
"arrival and distribution" system at the
intersection of State Road 60 and North
Mandalay and Coronado;
.:. transformation of North Mandalay into an
attractive, pedestrian-friendly street which
provides a high quality address for retail
and restaurant uses;
.:. renovation of South Gulfview to the west to
create a unique two-way, local street as part
of a destination quality beachfront place;
.:. 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 support the North
Mandalay retail/restaurant corridor;
.:. promoting a small number of catalytic
redevelopment projects; and
.:. the adoption of design guidelines which are
necessary to achieve the objectives of
Beach by Design.
City of Clearwater, Florida
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Beach by Design
Clearwater Beach s natural and built environment
4
Beach by Design: A Preliminary Designfor Clearwater Beach
City of Clearwater, Florida
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Beach by Design
II.
FUTURE LAND USE
The existing pattern of land use is a mix of primarily
commercial uses -- hotels, 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
number 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
between the Pier 60 district and Rockaway;
.:. a marina district to the east of Poinsettia and North
Mandalay to the north ofBaymont between Rockaway and
State Road 60;
.:. a retail/restaurant district between State Road 60 and
Baymont and North Mandalay and Poinsettia;
.:. a Pier 60 district comprised of the beachfront land between
the Hilton Hotel and the Days Inn and the City Marina;
.:. a small motel district between Coronado, Harnden and on
Brightwaterto the south ofthe Pier 60 district;
.:. a unique beach walk district to the west of Coronado
between the Pier 60 Park and the Adams Mark Hotel; and
.:. a south beach/Clearwater Pass district including all land
between south and east of the Adams Mark Hotel between
Clearwater Pass and the Bay and west and north of the
Sand Key bridge.
Beach by Design: A Preliminary Designfor Clearwater Beach
Functional
Land Use Districts
~..................'..,......... OLD
FLORIDA
............... DESTINATION
RESORT
...................... MARINA
... ... ......... ...... I' RETAILI
RESTAURANT
...................... PIER 60
...................... SMALL
5
MOTEL
BEACH
WALK
........ SOUTH
BEACHI
CLEARWATER
PASS
City of Clearwater, Florida
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. Beach by Design
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. Each ofthese districts represent Redevelopment and
a distinct condition and have common Revitalization Opportunities
. opportunities for revitalization and
. redevelopment.
. Old Florida
(Residential)
. Priority Preservation and Renovation
. Redevelopment Limited Densities
. Areas
. Restaurant/Retail Marina District
. District (Residential)
. Resort District
. Roundabout
. Pier 60 Plaza
.
. Streetscaping
. Mixed Use/Entertainment
Opportunity
. Gulf Front
. Redevelopment/
. Realignment Mixed use/Parking
(vehicular and pedestrian Opportunity
. promenade)
.
. Strateg ic
. revitalization and
. renovation
.
. Figure 3:
Opportunities for
. Redevelopment and Revitalization
. 6
. Beach by Design: A Preliminary Design for Clearwater Beach City o.fClearwater, Florida
.
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Beach by Design
A. The "Old Florida"
District
The area between Acacia
and Rockaway is an area of
transition between resort uses in
Central Beach to the low intensity
residential neighborhoods to the
north of Acacia. Existing uses are
generally the same as the balance
of the Beach. However, the scale
and intensity of the area, with
relatively few exceptions, is
substantially less than
comparable areas to the south.
The mix of uses in the District favors residential more
than other parts of Clearwater Beach and retail uses
are primarily neighborhood-serving uses. Given the
area's location and existing conditions, Beach by
Design contemplates the renovation and revitalization
of existing improvements with limited new
construction where renovation is not practical. New
single family dwellings and townhouses are the
preferred form of development. Densities in the area
should be generally limited to the density of existing
improvements and building height should be low to
mid-rise in accordance with the Community
Development Code. Lack of parking in this area may
hinder revitalization of existing improvements,
particularly on Bay Esplanade. A shared parking
strategy should be pursued in order to assist
revitalization efforts.
Beach by Design: A Preliminary Designfor Clearwater Beach
7
City of Clearwater, Florida
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Beach by Design
B. Destination Resort District
The Destination Resort District represents a unique opportunity for quality beachfront
redevelopment which would serve as a catalyst for the revitalization and redevelopment of
Clearwater Beach to the north of the Pier 60 Park. Two of the stronger destinations on Clearwater
Beach -- the Hilton and the Clearwater Beach Hotel -- are located at opposite ends of the District,
bracketing the blocks between Papaya and Baymont. This area is currently improved with modest
one and two story motels and retail shops which clearly show their age, with frequent tenant turnovers
and frequent vacancies. Sidewalks within the area are dilapidated or non-existent and road pavement
is broken and uneven.
North Mandalay is a visible reminder of the challenges facing Clearwater Beach.
Notwithstanding the presence of the Hilton Hotel, the Clearwater Beach Hotel, Pelican Walk and
Heilmans, North Mandalay is little more than 80 feet of concrete bordered by narrow sidewalks,
tourism retail and restaurant uses. However, North Mandalay is more than a marginal retail street; it is
also the entry way to some of Clearwater's best neighborhoods to the north. For many years, the City
has contemplated the beautification of North Mandalay in the hope of creating a more vibrant
tourism-based speciality retail district like that found in other tourist destinations like Sarasota and
Naples. Conflicts over North Mandalay's traffic function have stalled efforts to beautify the street
into a desirable street which provides visitors and residents a good qualitative level of service.
Notwithstanding the
existing conditions within North
Mandalay and the Destination
Resort District, the District
represents the primary opportunity
for near-term redevelopment on
Clearwater Beach because of the
relative strength of the Hilton and
the Clearwater Beach Hotel and the
opportunity for beachfront resort
development with direct beach
access. Unlike the area to the south
of Pier 60 Park, private ownership
extends to the beachfront in the
8
Beach by Design: A Preliminary Design for Clearwater Beach
City of Clearwater, Florida
81
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Beach by Design
Beach by Design: A Preliminary Designfor Clearwater Beach
Destination Resort District, creating an opportunity for the
assembly of land with frontage on the Beach. The assembly of
these lands into redevelopment parcels of sufficient size to
accommodate contemporary resort residential and hotel/time
share development can be facilitated by the vacation of the right
of way of North Gulfview between Baymont and Papaya which
exists only to provide local access to properties within the
District.
Ideally, lands within the District would be assembled on a
block by block basis with the land between North Mandalay,
Papaya, San Marco and the Gulf as one parcel and the land
between North Mandalay, San Marco, Baymont 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
Mandalay as an attractive and desirable street. The success of
Pelican Walk, a bold and pioneering redevelopment effort, has
been negatively impacted by the unattractiveness and economic
weakness of retail uses along the west side of North Mandalay.
The preferred form of redevelopment for this area is mixed use
with resort residential and hospitality uses fronting on the Beach
and retail, restaurant and residential uses fronting on North
Mandalay.
Currently, more than half of the frontage on North
Mandalay does not have an active retail facade on both sides of
the street. This lack of "closure" diminishes the potential of
North Mandalay as a retail street. Ideally, North Mandalay would
be redeveloped as a two-sided retail street with retail uses on both
sides of a street which is sufficiently pedestrian-friendly that
shoppers could easily cross from one side to the other. Pedestrian
friendliness requires a functional barrier between moving
vehicles and pedestrians on the sidewalk in the form of parked
9
City of Clearwater, Florida
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Beach by Design
cars, closely-spaced street trees or some other kind of physical
barrier. Pedestrian friendliness also requires well-marked cross
walks and, in the case of a four lane street, a safe "haven" in the
median so that pedestrians can make the crossing in two stages.
North Mandalay sidewalks should be designed so that
pedestrians can walk along building facades and the curbside
portion of the sidewalk is dedicated to landscaping and street
amenities including cafe seating and casual setting of street
furniture. Property owners should provide arcades or awnings to
provide cover for pedestrians during inclement weather.
Sidewalks should be surfaced with pavers or composed of other
specialty materials like the colored coquina pavement used in the
sidewalks at the Beach Roundabout. North Mandalay should be
lined with palm trees, spaced no wider than 30 foot on centers.
While Majool Date Palms would be a very desirable street tree for
North Mandalay, matched Washingtonian or Sabal Palms would
be an acceptable cost compromise. Low landscaping planters
should be included in the non-walking portion of the sidewalks
with colorful foliage plants or annuals. Flowering annuals
should be located in pots along the building side of the sidewalk
to identify individual uses and to introduce color into the
streetscape. The median should be landscaped with ground cover
and specimen street trees.
The political rhetoric in regard to North Mandalay has
framed the issue of traffic convenience and safety versus
aesthetics. In truth, the issue is far more complex and involves
the natural tension and the interrelationship between quantitative
and qualitative measures of quality oflife. This issue is discussed
in further detail in the Mobility section ofthis Plan.
Beach by Design: A Preliminary Design for Clearwater Beach
10
~
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~_.-
City of Clearwater, Florida
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Beach by Design
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C. Marina Residential
District
The area to the east of
Poinsettia and North Mandalay
to the north of Baymont is
primarily a residential district
with a few motel and restaurant
uses. The parcels of land to the
east of East Shore front on
Clearwater Bay. However,
those parcels are relatively
shallow, limiting the utility of
the existing parcelization.
Beach by Design anticipates
the redevelopment of the
Marina District as a waterfront
residential neighborhood with
parcels to the east of Poinsettia
consolidated with parcels to
the east of East Shore in favor
ofland assembly. Four distinct
blocks should be created from
this consolidated land
between the Causeway and
Baymont Street consistent
with existing area street
patterns. Pedestrian access
should be provided through
each block to the Intracoastal
Waterway and terminate at a
public boardwalk located
along the shoreline from the
Causeway to Mandalay
Avenue. Retail and restaurant
Beach by Design: A Preliminary Design for Clearwater Beach
. f '*, .. t.' '
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11
City of Clearwater, Florida
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Beach by Design
uses are appropriate in the north and south block only and residential uses located between.
The Yacht Basin Apartment site, which is located on the north side of Baymont, should be
considered an integral part of this neighborhood. It must be included in any consolidation
effort and is an appropriate site for a marina based hotel and other residential uses.
If all of this land is consolidated under single ownership and developed according to
the Marina Residential District framework as a unified plan, the City should do the
following: vacate East Shore; create an assessment district to finance the boardwalk
construction; participate in a garage at Pelican Walk; and make available the density pool for
a marina-based hotel meeting the requirements of Beach by Design on the Yacht Basin
Apartment site, including the potential allowance of 150 feet in building height. All other
building heights within this district would be permitted between 2-4 stories above parking.
In the event that lot consolidation under one owner does not occur, Beach by Design
contemplates the City working with District property owners to issue a request for proposals
to redevelop the District in the consolidated manner identified above. If this approach does
not generate the desired consolidation and redevelopment, Beach by Design calls for the
City to initiate a City Marina DR! in order to facilitate development of a marina based
neighborhood subject to property owner support. Iflot consolidation does not occur within
the entire District, the maximum permitted height of development east of East Shore will be
restricted to two (2) stories above parking and between Poinsettia and East Shore could
extend to four (4) stories above parking. An additional story could be gained in this area if
the property was developed as a live/work product. The maximum permitted height of
development on the Yacht Basin Apartment site will be restricted to mid-rise development
consistent with the height limitations imposed by the
Community Development Code.
Beach by Design: A Preliminary Designfor Clearwater Beach
12
City of Clearwater, Florida
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Beach by Design
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D. Retail and Restaurant District
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A key element of any successful resort
destination is a vital retail and restaurant
district. Given traffic considerations for North
Mandalay, Beach by Design contemplates that
North Mandalay will be an attractive street, but
will have limited function as a two-sided "retail
street." As a result, Beach by Design
contemplates that the land area between North
Mandalay and Poinsettia will become a
retail/restaurant district in contrast to North
Mandalay becoming a great retail street.
Several uses including Pelican Walk,
Heilemans and Eckerds front on both North
Mandalay and Poinsettia, providing for an
efficient and functional land use pattern. A key
element of the Retail and Restaurant District
strategy is the construction of a parking garage
which will provide convenient parking to the
District.
Beach by Design: A Preliminary Designfor Clearwater Beach
13
City of Clearwater, Florida
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Beach by Design
E. Pier 60 District
The Pier 60 District is composed of the lands
which surround the Beach Roundabout at the
intersection of Memorial Causeway, Poinsettia, North
Mandalay and Coronado. Most 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 Design calls for the beautification of
this entire District in conjunction with the
construction of the Roundabout and for the
development of a Pier 60 Plaza as a place of assembly
on the Beach
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aerial view prior to construction of public improvements
14
City of Clearwater, Florida
Beach by Design: A Preliminary Design for Clearwater Beach
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Beach by Design
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F. Small Motel District
The area to the east of
the Beach Walk District is an
area of small motels, many of
which have established
clientele. The Small Motel
District reflects a common
paradox of beachfront
communities -- improvements
which were constructed in a
different time before jet travel
and air conditioning -- with
limited on-site amenities and
off-street parking. In many
parts of the country, these
kinds of units have evolved
into residential uses.
However, the relative
intensity of adjacent land uses
and the volumes of north
south traffic have maintained
the current condition between
Harnden and Coronado.
Beach by Design
contemplates that the existing
improvements in the Small
Motel District will be
sustained over time. Although
the existing improvements
may not represent the
theoretical "highest and best"
use of this area, the relatively
good condition of most
Beach by Design: A Preliminary Design/or Clearwater Beach
buildings and the economic value of the existing improvements
make it difficult, if not impossible, to anticipate significant land
assembly, demolition and new development.
Brightwater Drive is also developed with small motel
uses with building conditions and transient populations similar to
those found along Harnden and Coronado. Brightwater's
location on the Intracoastal Waterway, in between two other
stable residential "fingers", makes it riper for redevelopment.
Beach by Design calls for the redevelopment of Bright water with
land uses and building mass which are compatible with the
residential cul-de-sacs to the north and south. Mid-rise
townhouses and timeshares between 2 - 4 stories above parking
are contemplated. Additionally, consideration should be given to
the development of a shared parking facility along the street to
provide some of the required parking that will be associated with
redevelopment.
15
City o/Clearwater, Florida
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Beach by Design
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G. The Beach Walk District
The area to the west of Coronado between the Adams Mark and the Pier 60 Park is the primary
"beachfront" destination on Clearwater Beach. There are more than 800 public parking spaces located
on or near the Beach. These parking lots encompass approximately 52 acres of land. While these
parking lots are extremely convenient for beach patrons, the lots have a significant adverse impact on
the character of South Gulfview as a "beachfront" district and as a resort development area. The
parking areas range in width from 275 to 900 feet and constitute a visual and physical barrier between
pedestrians and drivers along Gulfview and patrons of the retail/resort uses on the east side of
Gulfview. The modest state of motels and hotels along the Gulfview strip, in comparison to motels and
hotels to the north and south of the "strip", is a reflection of the fact that those uses are separated from
the Beach proper by two lanes of traffic, a single lane of parallel parking and either 2 or 4 bays of
parking - a distance ofl50 to 275 feet.
Looking north toward beachfront area
16
City of Clearwater, Florida
Beach by Design: A Preliminary Design for Clearwater Beach
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Beach by Design
The future of the Beach Walk District may be limited by pending
changes to the Coastal Construction Control Line ("CCCL"). The
Department of Environmental Protection is currently considering a revision
to the CCCL which would move the line landward. Even though the CCCL
is a line of control, not setback, it is unlikely that significant new structures
will be permitted to the west ofthe relocated CCCL. In that the CCCL does
not prevent revitalization of existing structures, it is likely that
redevelopment in the Beach Walk District will primarily take the form of
renovation of existing structures,
Beach by Design contemplates the renovation of South Gulfview
into a great beachfront place. The planned renovation involves removal of
some or all of the existing surface parking to the west of Gulfview. The
construction of a new parking structure south of the Pier 60 park will allow
for the replacement of spaces which are removed from the beach proper.
Gulfview would then be relocated to the west of the existing road right of
way to the area currently improved as surface parking lots. The new
Gulfview, however, would be in the form of a vehicular and pedestrian
promenade which would constitute both a means of transportation and an
attractive place for residents and visitors. Depending on the alignment of
the relocated South Gulfview, Beach Walk could potentially create at least
one development site with a dry sand beach. This would greatly enhance
the chances of attracting the quality resort development contemplated by
Beach by Design on South Beach.
Beach by Design contemplates that the existing road right of way
which is not limited by charter restriction would be declared excess
property and made available to the owners of properties to the east of South
Gulfview if those owners propose to undertake renovation or
redevelopment ofthose properties in a way which will advance the City's
beach revitalization objectives. This strategy supports revitalization in two
ways - creating a "world class" address for the revitalized properties and
providing additional land area for the construction of additional amenities.
Both the promenade and the road issues are discussed in greater detail later
in this Plan.
17
Beach by Design: A Preliminary Design for Clearwater Beach
City of Clearwater, Florida
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Beach by Design
quickest way home. At the same time, a local on the way to the
hardware store is more interested in finding a convenient parking
space. And, the visitor or tourist may be more interested in sitting
in traffic and enjoying the Clearwater Beach "street theater."
However, each of these users - with their different and conflicting
needs - are trying to use the same road network at the same time.
Barrier Island residents have dV(erent expectations
and tolerancefor traffic and parking delays.
Resort bea~hes on barrier islands are unique places and it
is not practical to expect them to function like other suburban
landscapes. Indeed, throughout the nation traffic congestion is
the norm for attractive accessible beaches - Cape Cod, Rehobeth
Beach, the Outer Banks, Myrtle Beach - to name just a few. In
other words, in most parts ofthe country, the special character of
the amenity is generally accepted as outweighing the
inconvenience of congestion. As a simple matter of fact, the
same is evidently true in Clearwater Beach. People wait in traffic
to get to the Beach because the value of the amenity, apparently
outweighs the inconvenience of congestion and delay. The
difficulty which arises is that those who live on the Barrier Islands
have a different set of expectations and tolerance for delay.
Second, mobility on Clearwater Beach is not just a matter
of traffic volume versus road capacity. Clearwater Beach is
blessed or cursed, depending on one's perspective, with a
practically infinite demand for beach access. Clearwater Beach is
one of the finest beaches located in a major metropolitan area in
The City s ability to provide additional parking spaces
on the Beach isjinite.
Beach by Design: A Preliminary Designfor Clearwater Beach
the world. The blessing relates to the economic benefits of this
demand/supply in balance. The curse derives from the City's
finite capacity to provide parking spaces on Clearwater Beach. In
other words, all the road capacity in the world is not going to
provide an acceptable level of service if a significant amount of
traffic has no place to go and is forced to search or wait on Beach
roads, hoping for a parking space. While it is technically feasible
to provide additional parking on Clearwater Beach, the reality is
that large surface parking lots and parking structures are
generally incompatible with the desired character of a quality
resort beach community. South Gulfview - with almost 500
surface parking spaces actually constructed on the Beach -- is, in
fact, a classic example of how the demand for parking at a highly
attractive community amenity can diminish the character of the
amenity itself.
Parking in the area is generally incompatible with the
desired character of a quality resort beach community.
Third, Clearwater Beach is largely built out and there is
no room for additional road laneage, even if it made sense to
provide additional capacity.
In reality, the future of Clearwater Beach will be
determined by how the City chooses to deal with the mobility
issues on the Beach. If the City continues to rely upon the private
automobile as the primary mode of transportation to and from
and along Clearwater Beach, the City will be confronted with the
Hobson's choice of unimaginable peak season, peak day, peak
hour traffic congestion or acres and acres of Clearwater Beach
paved over to provide additional road capacity and off-street
parking. Alternatively, if the City takes steps to promote or
require the use of alternative modes of transportation, the City
will confront America's "love affair" with the private
20
City of Clearwater, Florida
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Beach by Design
automobile, a confrontation which is almost always resolved
in favor of Henry Ford's legacy, a circumstance which calls to
mind one modem philosopher's perspectives on mankind's
ability to confront its challenges.
More than any time in history
mankindfaces a crossroads. One path
leads to despair and utter
hopelessness, the other to total
extinction. Let us pray that we have
the wisdom to choose correctly.
Woody Allen
There are four elements of improved mobility on
Clearwater Beach: I) an efficient and attractive "arrival and
distribution" system for traffic coming to the Beach; 2) a
functional north-south road system; 3) the use of non-
automobile forms of transportation, particularly for intra-
Clearwater Beach trips; and 4) demand controlled by and
limited by capacity.
Beach by Design contemplates that the City of
Clearwater will: I) improve the function of the road network
on Clearwater Beach to the extent that is possible without
diminishing the character of the Beach; 2) expand the use of
alternative modes of transportation for intra-Clearwater
Beach trips; and 3) ration automobile access to Clearwater
Beach, at least during periods of peak demand. Beach by
Design projects that the City will implement road network
improvements, alternative modes of transportation and
access rationing on the basis of the following principles:
.:. the City should improve the function of the north-
south roads on Clearwater Beach as traffic ways and
21
City of Clearwater, Florida
Beach by Design: A Preliminary Designfor Clearwater Beach
as commercial and residential addresses
.:.
the City should establish a greenway/sidewalks/bike
path/transit program for Clearwater Beach to provide
pedestrian and transit access along South Gulfview and
North Mandalay
.:.
individuals who live on the Barrier Islands and guests at
resort units on Clearwater Beach should be given
priority access to Clearwater Beach by private
automobile during periods of peak demand
.:.
guests at resort units on Clearwater Beach should be
encouraged to use a means of transportation other than
the private automobile
.:.
during periods of peak demand, the City should provide
alternative means of access in the form of preferentially
priced parking in downtown Clearwater and convenient
transportation to the Beach
.:.
the City should impose congestion pricing for off-street
parking on Clearwater Beach during periods of peak
demand
.:.
when parking facilities on Clearwater Beach are fully
occupied, the City should limit access to the Beach to
individuals who live on the Barrier Islands or are guests
at resort units on Clearwater Beach or Sand Key
.:.
the City should design and construct road and parking
improvements in the context of access rationing and to
ensure that any such improvements do not adversely
impact the resources of Clearwater Beach
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Beach by Design
A.
Arrival and Distribution
The intersection of Memorial Causeway and the North
Mandalay/Poinsettia/Coronado north-south network on
Clearwater Beach is the quintessence of the conflicts inherent in
Clearwater Beach's multiple personality. At once, the
intersection is the arrival and departure point for the economic
lifeblood ofthe City's tourism economy -- a tourist's first and last
impression of Clearwater Beach -- and Clearwater Beach's
lifeline to the mainland. Historically, the intersection has been a
choke point of epic proportions with peak day, peak season
backups extending many miles to the east. The Clearwater
Beach: Strategies for Revitalization identified the intersection as
one of the five most important problems on the Beach:
1. Clearwater Beach Entry Sequence
This subarea serves as the approach and entry to Clearwater
Beach. It allows the visitor and the resident to sense arrival to a
unique, urbanized barrier island and offers first glimpses of the
architectural character and social values of the community.
Views to the major assets of this sub-area (namely the Clearwater
Municipal Marina, Pier 60 and its newly constructed family park,
and the Gulf itself) were congested by visual clutter (in the form
of signage and utilities), an outdated Civic Center, a small
commercial venture, numerous surface parking lots, and
unattractive commercial areas to the north of Pier 60 Drive. Non-
coordinated signage and a complex system of right of way also
confused traffic.
In response to these conditions, Strategies for
Revitalization recommended that the intersection be redeveloped
in a way which would ensure a balance between traffic movement
and creating a positive "entry experience." In response to a City
Commission direction to accelerate the improvements to the
Beach by Design: A Preliminary Designfor Clearwater Beach
t.:.5"Bj
1
illllm
IILil
Strategies for
Revitalization
Proposed
Improvements
intersection in advance of the new Causeway Bridge, the
preliminary design for the intersection was prepared and
submitted to the City Commission in the fall of 1998.
The central element of the recommendation of Beach by
Design for the intersection was a large, attractive Roundabout.
Although the desirability of a roundabout like "St. Annands" was
identified as an opportunity for Clearwater Beach during the
Strategies' planning process, the graphics which accompanied
the Plan indicated a "T" intersection with commercial/retail
development along the north and south sides of the road. When
the Strategies concept was evaluated, it became apparent that the
capacity of a "T"intersection and the viability of street retail along
Causeway Boulevard did not satisfy the objectives set out in
Strategies. Various alternatives were examined and a large
roundabout was identified as the most efficient intersection for
22
City ofClearwatel; Florida
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Beach by Design
the site which also could achieve the objective of creating a
landmark entry experience. Although relatively rare on the west
coast of Florida, traffic circles and roundabouts have been
successfully used in many parts of the world to strike a balance
between demands for traffic efficiency in areas which are
aesthetically important to a community. St. Armand's Circle in
Sarasota and a roundabout on Camino Real at the entrance to the
Boca Raton Hotel and Club are familiar examples of the use ofthe
roundabout to strike a balance between the demand 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 significant negative impact on retail uses along North
Mandalay and the attractiveness of the entrance to Clearwater
Beach.
The Clearwater Beach Roundabout, which was completed in December of
1999, reflects the imperative that the intersection of Memorial Causeway, Coronado
and North Mandalay be both functional and attractive -- carry high volumes of traffic
and still be an attractive landmark welcoming a resident or visitor to the Beach -- an
icon to be remembered, to be used in marketing the Beach as a quality place to live and
visit.
The Roundabout is not, however, a "silver bullet" which will solve all of the
City's mobility problems on Clearwater Beach. The Roundabout was designed to
improve the function of the intersection by approximately 25% over the existing
condition. However, the Roundabout will not, alone, be able to solve all of the traffic
problems which occur on the Beach, particularly during peak hours, peak days and
peak season. All intersections have capacity limits and no intersection, short of
multiple lane, grade separated interchanges can handle the volume of conflicting
23
The roundabout was designed to improved the function
of the intersection by approximately 25%.
Beach by Design: A Preliminary Design for Clearwater Beach
Existing Roundabout
City ofClearwatel; Florida
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Beach by Design
turning movements experienced on Clearwater Beach during
peak periods. Thousands of vehicles try to get to the Beach at the
same time that residents are trying to get to the mainland on the
few peak season, peak days when Clearwater Beach plays host to
international, national and regional overnight and day visitors.
The existing intersection, whatever its character, is the
"governor" on traffic movement to and from the Beach and
contrary to popular opinion, is the primary cause of peak traffic
congestion. By definition, an intersection with a capacity of
4,200 vehicles per hour can not provide an acceptable level of
service when service demand exceeds capacity.
2. North ofthe Roundabout: North Beach
The primary north south street t6 the north of the Beach
Roundabout is North Mandalay Boulevard which is the principal
retail address on Clearwater Beach and is the only continuous
north south collector which connects all of the areas to the north
of the Beach Roundabout to the regional transportation system.
Poinsettia and East Shore accommodate a modest amount of
north south traffic as far as Baymont, but primarily serve as a
diversion route in the event of afternoon congestion at the Beach
Roundabout. Beach by Design contemplates that North
Mandalay between Baymont and the new Roundabout should be
redeveloped to make the street into a good if not great beach
community, retail address. Ideally, North Mandalay, between the
new Roundabout and Baymont, would be transformed into a
retail street with wide sidewalks and parallel on street parking
with the same character as Fifth Avenue in Naples, Atlantic
Avenue in Delray or Worth Avenue in Palm Beach. The residents
of Clearwater Beach, particularly those to the north of Acacia,
however, are extremely concerned that a reduction in the number
oflanes on North Mandalay will exacerbate what they believe is
already intolerable traffic congestion.
Beach by Design: A Preliminary Designfor Clearwater Beach
Objective measures of traffic demand and capacity
indicate that the service capacity for the residents is limited not by
laneage of North Mandalay, but by the capacity of the intersection
of Memorial Causeway, North Mandalay and Coronado. In other
words, no matter how much capacity and no matter what the level
of service which exists on North Mandalay, congestion,
particularly peak hour, peak season, is the result of the capacity
of the intersection. It does not matter whether North Mandalay
has the capacity to carry 15,000 vehicles per day or 32,000
vehicles per day, traffic congestion will result if the capacity of
the intersection with the Causeway is exceeded.
24
City ofClearwatel; Florida
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Beach by Design
The Roundabout has a capacity of approximately 4,200
vehicles per hour (up by 25% from the intersection it replaced).
At the current time, traffic on North Mandalay has a peak of
approximately 1,200 vehicles per hour. So long as traffic
entering the Roundabout from Coronado and Memorial
Causeway does not exceed 3,000 vehicles per hour, then traffic
going to and from the residential area to the north of Acacia
should not experience congestion. If, however, traffic to the
Beach were to add more than 2,500 vehicles during a peak
hour, congestion will occur, regardless of how many lanes exist
on North Mandalay.
The City Commission has considered a series of
alternatives for North Mandalay between the Roundabout and
Baymont including 2, 3 and 4 lane configurations and
including a changeable lane option where the parallel parking
lanes would be used for travel during peak periods. The
alternatives represented an array of balances between the
character and the capacity of the street. The 2 lane
configurations would allow for wide sidewalks, on-street
parallel parking on both sides of the road and a generous,
landscaped median. In the 3 lane version, a bi-directional center
lane replaced the median. Each of the 4 lane alternatives
involved a compromise of the width of sidewalks, on-street
parking or the median in order to accommodate two travel lanes
in each direction. After extensive consideration of the
alternatives, the Commission selected a 2 way, 4 lane cross-
section with parallel parking on the western side.
Option of parallel parking (option peak period travel lane)
Proposed Improvement to North Mandalay
Beach by Design: A Preliminary Designfor Clearwater Beach
25
City of Clearwater, Florida
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Beach by Design
3. South ofthe Beach Roundabout: South Beach
Mobility south of the Beach Roundabout is
complicated by several factors including narrow roads,
"back out" parking (much of it on public rights-of-way),
access to beach parking facilities, through traffic to Sand
Key, limited sidewalks, conflicts between through traffic
and local traffic and conflicts between vehicles and
pedestrians on South Gulfview. According to multiple
traffic studies prepared for the City of Clearwater, adequate
traffic capacity for the areas south of the Beach Roundabout,
including Sand Key, means two relatively free-flowing lanes
of capacity southbound and two free-flowing lanes
northbound. At least two recent traffic studies have
recommended that the area to the south of the Beach
Roundabout be served by a set of one way pairs -- two lane,
one way streets, either Coronado and Gulfview or Coronado
and Harnden.
A key element of Beach by Design is the
transformation of South Gulfview into a local access street as
a part of a great resort street/place. Unfortunately, the
transformation of South Gulfview into such a place would
further constrain the capacity of the road and would not be
appropriate for non-local traffic. Consequently, Beach by
Design focuses on improvements to Coronado and Harnden
in order to improve traffic conditions south of the Beach
Roundabout. There are several options, including the one
way pairs recommended in the traffic studies, with Coronado
one way south and Harnden one way north. One study
evaluated Coronado and Harnden as unbalanced pairs with
two lanes south and one lane north on Coronado and two
lanes north and one lane south on Harnden. Alternatively
Coronado could be widened to a three or four lane
configuration. Each of these alternatives is problematic.
Beach by Design: A Preliminary Designfor Clearwater Beach
Perpendicular parking along streets conflict with through traffic movements
One way pairs are generally not popular with the public
because of the perceived inconvenience of indirect access and
because they tend to operate at higher speeds than two way
facilities (making one way pairs more efficient). Speed is
particularly problematic because of the extensive "back out"
parking along Coronado and Harnden. Practically all of the
motels and other businesses along the east side of Coronado
between First Street and Harnden currently have perpendicular
parking which requires a driver to "back out" into the travel lane
in order to depart, a movement which conflicts with through
traffic movements. On the other hand the widening of Coronado
to 3 or 4 lanes requires the removal of more than 153 parking
spaces from public rights of way and eliminating parking for
more than 23 motels on the east side of Coronado. In this context,
Beach by Design is sensitive to several factors. First, while traffic
congestion on Clearwater Beach is, at times, horrific, the reality is
that serious and unmitigated congestion is episodic. Observations
vary, but most studies conclude that unmitigated congestion
occurs on approximately 40 days of the year and that during those
periods, there are no engineering solutions. In addition, there are
100 to 160 days on which traffic congestion is more than an
inconvenience, though it is not clear that traffic flows are
26
City of Clearwater, Florida
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Beach by Design
substantially worse than those experienced in the vicinity of
significant traffic generators and attractors like major shopping
centers. In other words, Beach by Design is wary of a design
standard which is calibrated to provide a high level of service for
seasonal demands when road improvements diminish the
character of a special resource like Clearwater Beach. That is
particularly so because of the natural human tendency to fill
whatever capacity is made available. The reality is that if roads
are un-congested, trip making increases and vice versa.
Beach by Design favors community character
definition improvements over pure engineering
solutions to traffic and parking congestion.
Beach by Design resists a purely engineering solution to
capacity demands to the south of the Beach Roundabout in favor
of the community character defining importance of South
Gulfview as a local street and place of special quality. In that
context, any of the alternatives which have been suggested -- one
way pairs and unbalanced pairs on Coronado and Harnden and
widening of Coronado -- are preferable to the subordination of the
character of Clearwater Beach to traffic needs.
In his book "In The Wake of the Tourist", noted planner
Fred Bosselman observed the natural human tendency to over use
special places until the speciality which was so attractive in the
first place is destroyed, Miami Beach, still a lush barrier island in
the early 1940s, is a classic example of Bosselman's lament and
warning to others -- all the rage in the 50s and 60s and declared
slum and blight in the late 70s. The City of Clearwater would do
well to heed Bosselman's warning and avoid what the noted
conservationist and political cartoonist Ding Darling so cleverly
described as the "Outline of History." For the City of Clearwater
and its citizens, there are no more utopias and the vision of Beach
Beach by Design: A Preliminary Design for Clearwater Beach
by Design is to strike a meaningful balance between the
competing interests which are served by Clearwater Beach. That
means hard choices and real financial commitments -- legacy
,1\
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The Outline of History
27
City of Clearwater, Florida
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Beach by Design
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decisions which will define the character of Clearwater Beach
and its quality oflife for generations to come. In the final analysis
Beach by Design follows Strategies for Revitalization and seeks a
balance between competing interests and values.
History shows that people tend to over use special
places until the specialty which was so attractive in the
first place is destroyed.
Ultimately, Beach by Design looks to Coronado to
improve vehicular movement south of the Beach Roundabout.
While the existing public right of way for Coronado is 60 feet,
only 30 feet is currently paved and used for travel. The balance of
the right of way is used for intermittent parkways and sidewalks
and for off-street parking. Beach by Design proposes that
Coronado be improved as a three lane road in one of the following
configurations: 1) two lanes south and one lane north, or 2) one
lane south, one lane north and one lane for median, turn lanes or to
be reversible according to peak directional demand. Beach by
Design proposes that the City improve Coronado by recapturing a
portion of the public right of way which is currently used for
parkways, sidewalk and off-street parking. To the extent
practicable, the right of way should be reclaimed in a manner that
minimizes the impact of the loss of off-street parking on those
properties with no off-street parking other than the spaces located
in the public right of way. Beach by Design proposes a 45 foot
wide cross-section with three travel lanes, direction to be decided,
and a 9 foot sidewalk on one side of the new cross section. It
should be noted that the existing constraints at the intersection of
Coronado and Harnden likely require 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 which are
diverted to new parking facilities in the area. In the event the City
Beach by Design: A Preliminary Design for Clearwater Beach
participates in any redevelopment along Coronado, the City
should make every effort to obtain additional right-of-way in
conjunction with redevelopment. This initiative could even help
secure sufficient right-of-way for a four lane cross-section.
Although Beach by Design recognizes the demand for
additional road capacity to the south of the Beach Roundabout,
Beach by Design does not recommend that Harnden be improved
to three lanes for several reasons. First, the utility of Harnden as a
through traffic route will be affected by the extensive back out
parking all along its length of the western side. Second, increase
traffic speeds and volumes will further stress the small motels
which line Harnden. Third, Harnden currently serves as primarily
a local street and the quality of the small motels -- some of which
have established a boutique following -- and the residential
neighborhoods to the east are likely to be diminished by the
conversion of Harnden into a through street. Finally, Harnden is a
great, ifunrealized address. More than a third of the road fronts on
Clearwater Bay and if anything, Beach by Design recommends
that Harnden be improved as a unique address which will justify
reinvestment in the existing improvements along Harnden.
Proposed Improvement to Coronado
28
City of Clearwater, Florida
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Beach by Design
B. Alternative Modes of Transportation
Unless the City of Clearwater opts to subordinate the
character of Clearwater Beach to provide additional road
capacity, e.g. one way pairs, widening two lane roads to four lanes
and massive parking structures, the City has no choice but to
induce a significant share of intra-barrier island trips to use
alternative modes of transportation. There are three modes of
transportation which are technically feasible for Clearwater
Beach: pedestrian, bicycle, and transit.
1. Pedestrian
Clearwater Beach is a generally hostile pedestrian
environment. Sidewalks are discontinuous or absent altogether
throughout the Beach, and the few sidewalks that do exist are too
narrow for a typical family to walk in any formation other than
single file. The adjacent aerial photograph shows the sporadic
location of sidewalks to the south of the Beach Roundabout and
shows that there are many missing links in the system. Worse still,
the sidewalks which exist are narrow, poorly maintained, rough
concrete and largely unshaded -- all attributes of good sidewalks.
Most urban designers believe that sidewalks must be of sufficient
width to allow groups of2-3 people to walk abreast and to allow
some persons to walk leisurely while others walk more quickly, a
total of 1 0 feet or more. None of the sidewalks shown on the aerial
photograph are ten feet wide, If the City of Clearwater wishes to
promote pedestrianism as an alternative mode of transportation
for intra-island trips, the City must create an attractive,
comfortable and continuous network of sidewalks. It is not
The City has no choice but to introduce alternative
modes o.ftransportation to deal with mobility issues.
Beach by Design: A Preliminary Designfor Clearwater Beach
necessary that sidewalks be provided on both sides of every road,
but it is necessary that all portions of Clearwater Beach be served.
Beach by Design recommends that the City of Clearwater
make a serious commitment to improving the pedestrian
environment on Clearwater Beach. A central element of that
commitment is the creation of Beach Walk, the proposed
realignment and configuration of South Gulfview which contains
a promenade, a bicycle/roller blade trail and a gulfront sidewalk.
29
Existing Side Walks South of the Roundabout
City ofCleartvater, Florida
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Beach by Design
In addition, the recommended improvements to Coronado
include a continuous sidewalk from Harnden to Pier 60. In the
vicinity of Pier 60 Park, Beach 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 Pavilion from the
northern terminus of South Gulfview. To the north of the
Roundabout, the opportunity for significant pedestrianism is
dependent on the width and character of the sidewalks which are
included in the improvements to North Mandalay. Assuming that
North Mandalay is a four lane facility, there are very limited
opportunities for improved sidewalks. To the extent the City
participates in any redevelopment in the area between the Beach
Roundabout and Rockaway, the City should make every effort to
obtain additional right-of-way in conjunction with
redevelopment so that at least one sidewalk of at least 14 feet in
width can be constructed between North Beach and the Pier 60
Park. The sidewalk system in the Clearwater Pass District should
also be enhanced and connected with Beach Walk.
In addition to improving the pedestrian environment on
Clearwater Beach, it is critical that the beach pedestrian network
be fully linked to Downtown. The potential for connecting the
Pinellas Trail to the Memorial Causeway and linking it to the
beach network should be pursued.
2. Bicycles
Bicycling is a natural transportation alternative in a resort
community. In many resorts, visitors rent bicycles as a means of
touring and transportation and consider cycling as a part of the
vacation experience. Unfortunately, there are no meaningful
paths for bicycles on Clearwater Beach. Along Coronado, for
example, a bicyclist has no choice but to compete with cars for
what are relatively narrow travel lanes. If the City of Clearwater
wishes to promote bicycling as an alternative mode of
Beach by Design: A Preliminary Designfor Clearwater Beach
transportation, the City needs to install convenient and safe
pathways and racks for secure storage at key locations. Many
communities in much less comfortable environments have
substantially increased use of bicycling for entertainment,
shopping and recreation trips by providing generous facilities for
cyclists.
3. Intra-Beach Transit
Transit is yet another option for intra-barrier island
movements. Technically, the Jolly Trolley qualifies as transit,
however, its operations are more akin to an amenity, than a form
of transportation. Transit is generally unpopular in the United
States and perceived to be ineffective and unaffordable.
Nevertheless, transit could be a meaningful alternative means of
transportation if: 1) the movement of transit vehicles is not
affected by traffic congestion; 2) the facilities have relatively
short head ways (delays between vehicles); 3) the vehicles are
attractive and comfortable; 4) grants-in-aid can be obtained for
30
City of Clearwater, Florida
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Beach by Design
capital costs; and 5) the cost of operation IS funded on a
comprehensive basis.
Beach by Design recommends an intra-island transit
system to carry passengers between the public parking lot at
Rockaway and the parking lot immediately to the north of the
Adams Mark. The proposed transit system would be relatively
slow moving vehicles, moving at 6-10 miles per hour - rubber
wheeled or narrow gauge trolley -- along a fixed guideway. The
adjacent aerial photograph shows the general location of the
proposed guideway and the location of existing or proposed
parking facilities.
There are three reasons for a fixed guideway. Most
importantly, if the transit vehicle uses the public roads which are
clogged with traffic, the vehicles will not be a meaningful
alternative to the car. Second, pedestrians and vehicles, even
slow-moving vehicles, do not
mix well unless they operate in
a defined area which is
specially designed -- urban
plazas pavers and pedestrians with the right of way force vehicles
to accommodate pedestrians. In addition, fixed guideways alert
pedestrians to the presence of transit vehicles, even when they
approach from the rear of a pedestrian -- when the vehicle honks
its horn, the pedestrian knows where the vehicle will be when he
looks around. Moreover, the proposed transit system is
contemplated to operate in tandem with increased pedestrian
activity. In other words, a family staying at the Adams Mark
might decide to go to Pier 60 Park or City Marina. They could, if
they prefer, wait at the Adams Mark parking lot until the next
transit vehicle arrives, or in the alternative, they could start to
walk to the Park or Marina along the fixed guideway, expecting to
get on the next north bound vehicle. If the vehicle is delayed or
they stop along the way, they have nevertheless been converted
from a potential car trip into an alternative mode of
transportation.
Beach by Design: A Preliminary Design for Clearwater Beach
Location of Proposed Guideway and Parking Facilities
31
City o.fClearwater, Florida
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Beach by Design
To the south of the Beach Roundabout, it would be
relatively easy to accommodate a transit guideway in the
proposed South Gulfview re-alignment. Assuming two way
movements along a single lane, i.e. use oflay by areas for passing
vehicles, a guideway of approximately 10 feet in width is all that
would be required.
Near the Beach Roundabout, the guideway could easily
be located between the Beach Roundabout and Pier 60 Park.
To the north of the Beach Roundabout, the alignment is
far more difficult. The following shows one alignment which is
theoretically popular with four travel lands. This alternative
assumes that the Pelican Walk garage is constructed prior to or
contemporaneously with the implementation of transit. The
guideway could be located on the west side of North Mandalay
where parallel parking is currently contemplated. Depending on
the number oflanes which were provided, the introduction of the
guideway along North Mandalay would restrict the width of the
sidewalks which could be included. Beach by Design
recommends that North Mandalay should be narrowed to two
~WEST
Proposed South Gulfview Guideway Alignment (South of the Beach Roundabout)
i:
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Proposed North Mandalay Guideway Alignment (North of the Beach Roundabout)
32
Beach by Design: A Preliminary Designfor Cleanvater Beach
City ofCleanvater, Florida
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Beach by Design
wide travel lanes which would accommodate generous sidewalks
on both sides, one lane of parallel parking, a 6 foot landscaped
median and a fixed guideway. To the north of the signal at
Baymont, there is substantial right of way which could be used to
accommodate the guideway.
Headways are critical to the effectiveness of transit. If the
wait for a vehicle is too long, the user will not rely upon the
service and will use other means of travel. This is particularly
true where the trip (here intra-barrier island) is relatively short.
There are no studies of required headways for a resort setting;
however, the general rule of thumb for transit systems indicates
that a headway of no longer than 10 minutes is desirable if the user
is to be able to rely upon the service in making a mode choice.
Beach by .uesign recommends that the transit system be designed
with 5 minute head ways during peak periods of demand.
Assuming an average effective speed of five miles per hour
(taking into consideration frequent stops), the trip from the
Adams Mark would take approximately 12 minutes. In order to
provide 5 minute headways, assuming a 5 minute turn around at
each end of the trip, the system would require 5 vehicles to be
operating during peak periods. At this level of operation,
assuming 20 passengers per vehicle and an average trip of 2,500
feet, the system could service in excess of 10,000 passengers a
day.
c. Access Rationing
Beach by Design recommends that the City confront the
reality that as long as Clearwater Beach is easily accessible, it will
The City needs to cOY1;front the reality that Clearwater
Beach is accessed by far more persons and vehicles
that the current mobility system can handle.
Beach by Design: A Preliminary Design .for Clearwater Beach
The City needs to assure that the residentiall(festyle in
the Barrier Islands is preserved and enhanced.
be accessed by far more persons and vehicles than the system can
handle, no matter how many lanes of travel are created or how
many parking garages are constructed. Beach by Design
recommends the City implement relatively radical access
rationing measures during the 40 or so peak days when the
volume of cars seeking to gain access to the Beach overwhelms
the system, resulting in mile plus long traffic queues. Beach by
Design also recommends that the City consider less radical
measures during the additional 100+ days where congestion is
substantial.
Resort guests are the l(feblood of the City s tourism
industry.
1. Residential and Guest Priority
Access to Clearwater Beach implicates a number of
interests which should be served by the City's beach access
system. Assuming that the City wishes to strike the balance
between the Beach as a tourist destination and residential area as
prescribed in Strategies for Revitalization, Beach by Design
recommends that the City ration access to the Beach during
periods of peak demand. First, those who live on the Barrier
Islands represent a fiscal benefit to the City; that is, they pay more
in taxes than they demand in services. Equally important,
Clearwater's attractiveness as a business location is, as is every
other city in Florida, directly related to the availability of
accessible, high quality housing with a premier quality oflife. As
a result, the City has a fiscal interest in ensuring that the quality of
the Barrier Island residential lifestyle is preserved and enhanced,
33
City o.fClearwater, Florida
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Beach by Design
if possible. Second, resort guests are the lifeblood of the City's
tourism economy. They contribute indirectly through the
property taxes the resorts pay and directly through bed taxes and
the millions of dollars which are spent in the City during their
stay. The care and comfort of these visitors must be a priority if
the City is to continue to be successful in what is an increasingly
tourism economy. Concurrently, those who provide services to
the City's tourism 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
should be rewarded with priority access to the Beach.
Beach access during 40 peak days should be rationed.
Barrier Island residents and hotel guests should have
an express lane to the Beach.
2. Access Rationing By Controlled Access Lanes
Beach by Design recommends that access be rationed
during the 40 peak days by essentially dividing the Memorial
Bridge and Causeway into two roads -- one for residents, hotel
patrons, business owners and employees and transit and one for
all other vehicles. The northernmost east bound lane on the
Causeway would be restricted to priority drivers and the
southernmost would be available for all other vehicles. The
substance of the proposed rationing is relatively simple -- those
who live or work on the Beach and those willing to park
downtown and take transit to the Beach should have an express
lane to the Beach. Those who prefer to go to the Beach in their
private automobiles may continue to do so by doing what they do
now -- waiting in traffic for their turn. The difference, of course, is
that those who live and work on the Beach and those who opt to
access the Beach by transit are no longer held captive by those
Beach by Design: A Preliminary Designfor Cleanvater Beach
who prefer to go to the Beach on their own terms. And if non-
resident, non-owner, non-employee, non-hotel guest persons
wish to get to the Beach without standing in line, they have the
option of using transit.
While rationing generally constitutes an intervention in
the market, the rationing system proposed by Beach by Design,
reinforces the market because it puts all users on equal footing
given their interest in the Beach and tolerance for congestion and
makes the choice of transportation mode a practical and
meaningful choice.
Priority access should not be given to commercial
vehicles. Commercial trade and deliveries should be
made at times which do not conflict with peak traffic
congestion.
Beach by Design does not recommend that commercial
vehicles be given priority access for two reasons. First and
foremost, a barrier island is a unique place and the commercial
trade needs to make deliveries at times which do not conflict with
peak traffic congestion. That is how commerce is practiced in
tourism markets all over the world and there is no reason why
commercial practices can not be conformed to the reality of
access to Clearwater Beach. Second, delivery trucks are least
nimble in stop and go traffic and their presence during peak
demand periods is nothing more than an invitation for accidents
and frustration.
During the 100+ additional days when traffic congestion
is significant, Beach by Design recommends that the City either
implement controlled lane access (similar in concept to a high
occupancy vehicle lane) or impose congestion pricing on access
to the Beach road network. Congestion pricing has come into
34
City ofCleanvater, Florida
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Beach by Design
vogue in recent years as transportation service agencies have
sought to balance the competing demands for travel capacity.
Controlled lane access or traffic congestion pricing
should be implemented during the 100+ additional
significant traffic congestion days.
Some congestion pricing systems are relatively simple, like those
islands where frequent users pay a steeply discounted toll
(usually in the form of commuter passes or discount books) and in
frequent users -- those who contribute to peak period demands)
who are required to pay a toll that may be 10 to 20 times the
commuter rate. Other congestion pricing programs involve
differential tolls for all vehicles as a means of encouraging drivers
to make trips at times other than peak periods of demand. Where
afternoon congestion is predictable, tolls are higher during the
afternoon than in the morning. Many communities practice
congestion pricing indirectly through parking fees, though this
method of fee collection is somewhat inefficient because it does
not capture those drivers who go to the Beach to just look around.
D. Transit from Downtown to the Beach
Beach by Design recommends that the City implement a
transit program to carry visitors to and from Clearwater Beach
and, 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 is very likely
that transit will become a viable alternative for beach access,
whether by ferry, trolley, light rail or rubber-wheeled vehicle.
The City needs to implement a transit program to carry
visitors form downtown to the Beach.
Beach by Design: A Preliminary Design/or Clearwater Beach
There are manifest reasons why transit makes sense for
Clearwater. First, accommodating cars on Clearwater Beach is
problematic -- asphalt and parking garages diminish the character
and quality of the beach experience for residents and visitors
alike. Second, making downtown an embarkation point for
Clearwater Beach would be a tremendous benefit to downtown
businesses. Moreover, it would allow the City to justify support
of downtown parking garages as being of multiple benefit to the
community at large. Third, transit makes more efficient use of
public facilities. Finally, implementation 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 Between the Barrier Islands
Recently the Pine lIas Suncoast Transit Authority (PSTA)
established Trolley service between Sand Key and Pass-A-Grill.
Beach by Design recommends that the City work with PSTA to
extend the route to Clearwater Beach. This link could
accommodate transportation needs of visitors and residents alike
from other Pinellas County beach communities and potentially
connect with the proposed intra-beach transit system.
35
City a/Clearwater, Florida
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IV.
OFF -STREET PARKING
The extraordinary character of the Beach is
both a blessing and a curse to the City and its residents.
As one of the "best" beaches in the world, Clearwater
Beach is a popular destination for tourists and day
visitors. As one of the "best" beaches in the world,
Clearwater Beach attracts tens of thousands of tourists
and day visitors who want to park as close to the Beach
as possible. On peak days when preferred parking
facilities are filled, drivers searching for a parking
space queue up in the street and exacerbate an already
congested road network. At the same time, other
drivers cruise from location to location in the hope of
finding a parking space, adding to congestion, already
intolerable to residents and visitors alike.
Off-street parking was identified as a key issue
in Strategies for Revitalization for several reasons.
First and foremost, Strategies for Revitalization
recognized the need for additional parking spaces to
serve peak day, peak season demand. Second,
Strategies for Revitalization identified the cost of
structured parking as a substantial disincentive for
community redevelopment and additional off-street
parking as a key to revitalization. Third, many of the
existing improvements on Clearwater Beach are non-
conforming in terms of off-street parking, a fact that
limits the potential revitalization of existing
properties. Finally, Strategies for Revitalization
called for the removal of the surface parking lots to the
west of South Gulfview as a part of a strategy to
transform South Gulfview into an attractive
beachfront address.
Beach by Design
FUTURE PARKING FACILITY
On property located at
Rockaway Street
NEAR TERM PARKING FACILITY
On property located behind
The Pelican Walk
FUTURE PARKING FACILITY
On property located at
the Clearwater Marina
NEAR TERM PARKING FACILITY
on property located south of
Pier 60 Park
FUTURE PARKING FACILITY
South Beach/
Clearwater Pass
Proposed Near and Future
Parking Facilities
Beach by Design: A Preliminary Designfor Clearwater Beach
36
City ofClearwatel; Florida
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Beach by Design
Clearwater Beach is currently served by 3,535 public
parking spaces. On peak days during the season and on holidays,
literally tens ofthousands of cars come to the Beach and there is
insufficient parking to accommodate all of the visitors to the
Beach. The provision of additional parking is, however,
complicated by a number of factors. A primary concern is the
ability of new garages to generate sufficient revenues to service
debt incurred to construct a garage when projected parking
demand shows that additional spaces will generate no revenue on
approximately one half of the days of every year. While there is
obvious demand for as many additional parking spaces as
possible on the 40 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 from only 180 revenue days must be sufficient to
service the debt incurred to construct the garage. Moreover,
occupancy data collected by the City for its parking facilities on
Clearwater Beach shows that the further a parking space is from
the Beach, the less likely the space will be occupied, even during
periods of peak demand. Equally important, parking garages are
large, massive structures which are not naturally compatible with
the special character of a resort beach. That is particularly true
where land has previously been subdivided by a fine grain
network oflocal roads.
Strategies for Revitalization proposed removal of the
surface parking spaces to the west of South Gulfview, with the
exception of the surface lot immediately north of the Adams
Mark, and the construction of parking garages in the blocks
between South Gulfview and Coronado and Coronado and
Harnden. However, the cost of land assembly -- acquiring
existing income producing hotel rooms -- increases the cost per
parking space to a level which is not reasonably supportable by
parking revenues, particularly where the parking spaces are
Beach by Design: A Preliminary Design for Clearwater Beach
relatively remote from the
Beach as was proposed in
Strategies for Revitalization.
t':"'~':<" .
51~'.'.;J;.'..,.i ;D:~f:;~f.",;~;~.'.,
. . .
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i-
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r ~,~~.-
Approximately 400
parking spaces are to be
relocated. In addition,
available data and a parking
study conducted for the City
indicates that at least 400
additional parking spaces
are needed to meet existing
parking demand during the
200+ days ofhighest parking
demand on the Beach. If the
North Mandalay corridor is
upgraded and the uses along
the corridor flourish,
additional parking of 200 to
400 additional spaces would
be required. The timing of
the North Mandalay garage
will be influenced by the extent to which on-street parking is
available after North Mandalay is improved.
.j
~\""f"~-'
.. , ",,-
", ,
......
Relocation of
Beach Parking
Beach by Design contemplates at least two additional
parking facilities on Clearwater Beach and additional garages if
and when additional demand arises in the form of community
revitalization. The first two garages -- one to the south of Pier 60
Park and a second on the surface parking area behind the Pelican
Walk specialty retail center -- are programmed to be constructed
as soon as practicable. Beach by Design recommends that the
additional parking garages be constructed on a self-financing
basis -- that is debt service is covered by net parking revenues.
37
City of Clearwater, Florida
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Beach by Design
Subsequent to the Commission's action, an alternative
parking garage proposal has been advanced by the private sector.
The alternative involves the construction of a parking garage on
an assembly of land on both sides of 3rd Street between South
Gulfview and Coronado. The proposed garage would be a part of
a vertically mixed use project and would make at least 500
parking spaces available to the City. Beach by Design is
relatively indifferent as to the precise location of the garage so
long as the parking spaces are located within a reasonable walk
from the dry sand Beach, The alternative parking garage proposal
is explicitly contingent on a municipal commitment to transform
South Gulfview into a great beachfront place by improving South
Gulfview as a great street or simply closing the road 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. The
principal disadvantage ofthe alternative garage is that it may not
provide sufficient parking spaces to accommodate the relocation
of spaces east of South Gulfview and increase the inventory of
beach parking by 400 additional spaces.
Additional garages, e.g. a garage on the underutilized land at
Rockaway and the other between South Gulfview and Bayway in
the Clearwater Pass District -- would be constructed when
economically feasible, as demonstrated by occupancy rates in
existing facilities or where a garage is required to support a
significant redevelopment/revitalization initiative.
A. South of Pier 60 Park Parking Garage
The exact location ofthe additional parking garage to the
south of Pier 60 Park is dependent on a number of variables
including the willingness of private property owners to cooperate
with the City. The City Commission has previously 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 ofthe Days Inn property, the closure ofthe east-west
leg of South Gulfview and the possibility of 150+ hospitality
units to be constructed as a part of the project. The primary
justification for the inclusion of the Pier 60 parking lot in the
project was the cost advantage, because the land is currently
owned by the City and used for parking
purposes, outweighed the visual
impact of a parking garage on the
Beach. Moreover, the cost
implications of land already owned by
the City avoided the question of
whether a hospitality component was
economically feasible. In contrast,
other sites where the City would have
to acquire all of the land was either
contingent on a hospitality component
to help defray the cost of assembly or
infeasible.
Proposed Improvements -- South of Pier 60 Park Garage
38
City of Clearwater, Florida
Beach by Design: A Preliminary Designfor Clearwater Beach
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Beach by Design
Another possible
location for a garage
south of Pier 60 exists in
the vicinity between
Coronado and Harnden
and between Third Street
and Brightwater. This
location presents an
opportunity for a garage
with a residential
component. A portion of
Harnden could be vacated in order to consolidate land and create a
waterfront parcel in conjunction with the four laning of
Coronado. Vacating a portion of Hamden may not impede traffic
flow and calm the traffic of this area of South Beach which would
enhance the residential character of the Devon and Bayside cul-
de-sacs. Prior to any vacation, an analysis ofthe traffic impact of
this alternative would need to be conducted. In the event the
analysis does not support the vacation, this is still an appropriate
location for a parking garage.
B. Pelican Walk Garage
The Pelican Walk Garage, to be constructed on the
existing surface parking lot on the Poinsettia side of the property,
is conceived to provide additional convenient 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
the improvement of North Mandalay. In addition, the garage is
anticipated to be a catalyst for the revitalization and expansion of
existing improvements in the District.
The size and the timing of the Pelican Walk garage will be
dictated by the ability of the garage to pay for itself and the extent
to which individual property owners are willing to participate in
Beach by Design: A Preliminary Design for Clearwater Beach
some sort of public/private
partnership. While several properties
. like Heilemans and the Clearwater
Beach Hotel have an apparent need for
additional parking, particularly during
the season, total demand for additional
spaces is not, at this time, sufficient to
support the debt necessary to construct
the garage. A recent parking demand
study indicates that the garage might
actually generate sufficient revenues
to support debt service if the garage is
successful in attracting beach patrons
to the garage, but that even then, the
net revenues would be insufficient to
meet bond coverage requirements that
projected revenue equal to 140% of
debt service. Additional development
or revitalization along North
Mandalay or property owner
participation in the garage would be
necessary if the garage is to be
financed exclusively on a revenue
basis.
PROPOSED LOCATION
Proposed
Improvements
Pelican Walk Garage
ELEVATION STUDY
City ofClearwate/; Florida
39
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Beach by Design
There are two alternative conceptual designs. The first is a four level garage which would be
limited 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. This garage would require that the Eckerd's surface parking lot between the
Eckerd's building and Poinsettia be acquired for the garage project. The first alternative is a simpler
project involving a single property owner who has already indicated a willingness to work with the City.
The second alternative involves two property owners, one of which mayor may not be cooperative. The
first alternative, however, is isolated from North Mandalay and would be accessible only from Poinsettia.
In contrast, the second alternative could be accessible from both North Mandalay and Poinsettia,
enhancing use by visitors to North Mandalay and in peak period, beach goers.
C. Rockaway Garage
An additional parking garage site has been identified on underutilized land on the west side of
North Mandalay to the south of the fire station between Rockaway and Bay Esplanade. The site is owned
by the City so that only the cost of the structure would have to be paid for by parking revenues. The site,
however, is relatively remote from the center of beach activity and is oflittle value in relocating parking
from the South Gulfview beachfront. As a result, the Rockaway garage is considered a long term option
in the event that a garage south of Memorial Causeway and the Pelican Walk garage are insufficient to
meet future parking demand on the northern part of the Beach,
D. Clearwater Pass District Garage
The revitalization and expansion ofthe hospitality uses in the Clearwater Pass District is limited
by the availability of off-street parking. In the event that sufficient demand for additional off-street
parking justifies a garage with at least 400 spaces, the City should participate in land assembly and
revenue financing, provided that the principal beneficiaries provide economic assurances that the
proposed garage will operate on a break -even or better basis.
E. Clearwater Marina Garage
In the event that additional surface parking is displaced from Clearwater Beach and no other
public or private land is available, an alternative site for a garage is the existing Clearwater Marina
surface parking lot. Alternatively, this site could accommodate a garage in the event some portion of the
Pier 60 surface parking is utilized to enhance recreational opportunities.
40
Beach by Design: A Preliminary Design for Clearwater Beach
City of Cleanvater, Florida
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Beach by Design
V.
CATALYTIC PROJECTS
In community redevelopment momentum is everything.
The economic and aesthetic trajectory for Clearwater Beach has
been insistently downwards for many years, notwithstanding the
individual efforts of many property owners and businesses. That
trajectory has momentum which needs to be overcome in order to
achieve the objectives of Strategies for Revitalization. The
Beach Roundabout has started the reversal of the Beach's
prospects, as will the new parking garages and the improvements
to North Mandalay and Coronado. More is needed, however, if
the City is to be truly successful in transforming Clearwater
Beach into a beach community which strikes a meaningful
balance between the Beach as a place of residence and as a
successful tourism destination. In many redevelopment areas,
one or more development projects -- often public/private
partnerships -- are the pioneering projects that reverse the general
economic trend of the area and serve as catalysts for reinvestment
and revitalization. Beach by Design includes several catalytic
initiatives in addition to the Beach Roundabout to create a
positive sense of momentum for Clearwater Beach.
A. North Mandalay Resort Development
Strategies for Revitalization identified the land between
the Hilton Hotel and the Clearwater Beach Hotel as a priority
redevelopment opportunity. The land is unique in that it is located
between two of the major hotel properties on Clearwater Beach
and fronts on North Mandalay, the closest thing to a retail street
that exists on the Island. Strategies for Revitalization anticipated
that redevelopment in this area, together with the existing hotels,
would create a critical mass of economic activity that would be
able to generate support for businesses and restaurants on the
Beach.
Beach by Design: A Preliminary Designfor Clearwater Beach
During the preparation of Beach by Design, a well-known
Pinellas County residential developer approached the City in
regard to a possible redevelopment project on Clearwater Beach.
The developer indicated that he was impressed with the City's
new land development regulations, and the City's commitment to
the revitalization of Clearwater Beach as evidenced 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 and San Marcos to the west of
North Mandalay,. The proposed site was in an area identified in
Strategies for Revitalization as a primary redevelopment
opportunity area. The City worked with the developer in an
unsuccessful effort to complete assembly of the land along North
Mandalay and entered into an agreement in regard to certain
improvements to North Mandalay.
Construction of Mandalay Beach Club was recently
commenced. The project is comprised of two towers of 13 and 14
stories which are oriented towards the Gulf of Mexico. Off-street
parking is provided in a garage which serves as the building
pedestal. By all apparent measures, the project has been very
Mandalay Beach Club
41
City ofClearwatel; Florida
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Beach by Design
successful and has stimulated substantial investor/developer
interest in Clearwater Beach as a desirable redevelopment
location.
B. Community Redevelopment District Designation
While improving the function and character of the public
realm -- streets, sidewalks, public facilities and off-street parking
-- on Clearwater Beach will substantially improve its apparent
economic vitality, experience demonstrates that private
investment does not necessarily follow public investment. In
most successful redevelopment/revitalization efforts, one or
more catalytic projects have been used to accelerate the pace of
investment in redevelopment and revitalization, usually large
scale public investments like aquaria. In part, the need for
catalytic projects is a result of many years of market dis-interest
because of declining fortunes. Most importantly, however, is the
added economic risk of being the pioneer in recognizing an
emerging market. It is always easy to attract investors after the
pioneer has demonstrated the viability of the market.
The situation on Clearwater Beach is complicated by a
number of additional factors. The existing regulatory regime
limits density on the Beach to 40 hotel units per acre. In order to
justify the cost of demolishing income producing improvements
(no matter how modest), new resort development would require a
significant increase in density above 40 hotel units per acre.
Depending on the discount rate and the current economic
performance of the existing product, the gross cost of acquisition
and demolition of existing units ranges from 2 to 4 times the per
room cost which a quality resort hotel developer could afford to
pay, Finally, much of the obsolescence of Clearwater Beach is
attributable to the lack of resort facilities with a full range of on-
site amenities. Several of the better hotels on Sand Key and
Clearwater Beach operate as "destination resorts," however, even
Beach by Design: A Preliminary Design for Clearwater Beach
Proposed
Community
Redevelopment
District
Designation
Area
42
City of Clearwater, Florida
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Beach by Design
those resorts lack many of the amenities that are available at better
hotels in other markets with which Clearwater Beach competes.
The economics of destination resorts are such that, except
in very exotic destinations, they require a certain critical mass of
rooms in order to support the high cost of quality improvements
and amenities. Industry sources indicate that 200 to 250 rooms is a
practical minimum for the number of rooms which are required to
create a successful, highly-amenitized destination resort. For
Clearwater Beach, that means an assembly of 6.25 acres ofland
is required under the existing regulatory regime of 40 rooms to the
acre, a land area which is all but impossible in the
redevelopment/revitalization context.
To overcome these constraints Beach by Design
contemplates the development of a small number of catalytic
resort projects which would reposition Clearwater Beach and
serve to re-establish Clearwater Beach as a quality, family resort
community. The concept involves at least one additional resort to
the south of Pier 60 Park to serve as a catalyst for the revitalization
of South Gulfview and, possibly, an additional resort facility in
the North Mandalay resort district. These resorts would be
designed to serve as highly-competitive, fully-amenitized resorts
which would effectively reposition Clearwater Beach in terms of
the quality of the Beach as a tourist a destination. Once
Clearwater Beach is re-positioned as a destination, Beach by
Design anticipates that the general strengthening of the market
will make it economically feasible to revitalize and upgrade the
smaller tourist units on the Beach as a more affordable option for
what will then be a significantly upgraded tourism destination.
In order to stimulate the desired catalytic resort projects,
Beach by Design establishes a limited pool of 600 additional hotel
rooms which would be available for use at one or more sites
within designated priority redevelopment areas for a period of
Beach by Design: A Preliminary Designfor Clearwater Beach
five (5) years. This period would run from the date that the
Community Redevelopment District is approved by the County
and accepted by the State. In the event that the units were not
allocated pursuant to Beach by Design within five (5) years, the
pool of units would cease to exist.
Although Beach by Design creates a pool of additional
hotel rooms which are not currently authorized under the existing
planning and regulatory regime, Beach by Design foresees that
the additional units will not in fact have any adverse impact on
Clearwater Beach, the City of Clearwater, Pinellas County, the
Tampa Bay Region or the State of Florida. That is so because the
way in which the units would be made available ensures that the
nominal externalities of additional barrier island development
will be eliminated or mitigated. For example, the reason d'etre of
a destination resort is to have guests travel to the resort and spend
most of their time (and money) at the resort. This fact is reflected
in the Institute of Traffic Engineer's 6th Edition of the Trip
Generation Manual which shows that destination resorts generate
somewhere between 50% and 12% of the number of trips
generated by traditional motels and hotels. Experience from
around the State of Florida -- from Sanibel to Miami to Boca
Raton to the Florida Keys -- demonstrates that guests at
destination resorts generate a fraction ofthe number of daily trips
which are projected by the Institute of Traffic Engineers for the
occupants of an ordinary hotel room. Equally important, the
availability of on-site amenities means that when guests leave the
resort, their trips are highly discretionary and unlikely to occur
during peak travel periods.
A critical concern under Florida law involves increased
residential densities on the State's barrier islands. Although the
primary concern relates to hurricane evacuation, environmental
issues are also implicated in undeveloped areas. Historically,
Florida planning and zoning has treated hotel units as a type of
43
City of Clearwater, Florida
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Beach by Design
residential dwelling, even though hotels are commercial
operations and hotel guests do not generate school children or
regularly require social and health services. As a result, an
increase in hotel units on a barrier island, as a matter of law,
constituted an increase in residential intensities -- directly, where
hotel units are defined as a residential use, or indirectly, as in the
case of the Pinellas County Planning Rules and the City's land
development regulations where hotel and residential units are
interchangeable subject only to a density ratio. For the purposes
of the additional hotel units pool, Beach by Design provides that
such units are not interchangeable with residential units and that
hotel rooms will be limited to tenancies of 30 days or less. In
addition, Beach by Design provides that any hotel room which is
allocated from the additional hotel room pool will be subject to a
legally enforceable deed restriction that the hotel which contains
any additional hotel rooms will be closed as soon as practicable
after the National Hurricane Center posts a hurricane watch for an
area which includes Clearwater Beach. As a result, no occupants
of destination resorts would remain to be evacuated when and if a
hurricane warning is posted. Recent experience reveals that most
hotel reservations are cancelled when a hurricane watch is posted
and that most hotel 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 until the
last minute or until they are ordered to evacuate. For Clearwater
Beach, resort hotel units are an obvious advantage over
residential units, that is, 0 persons required to evacuate from one
acre of land improved with a destination resort hotel when a
hurricane warning is posted, as opposed to 69 persons from one
acre ofland developed at current residential densities.
Resort hotels are advantageous to the public in other
ways. On average such facilities generate very few public service
demands -- most guest needs are provided by the resort. Such
facilities pay better than average wages to their employees, have
Beach by Design: A Preliminary Designfor Clearwater Beach
relatively high assessed valuations and their patrons pay sales and
bed taxes ensuring that such uses are fiscally beneficial.
Moreover, the very nature of destination resorts - diverse, higher
income tourist, would provide much needed support for local
businesses and restaurants, directly through patronage and
indirectly through the provision of goods and services to the
resort itself. Finally, the amenities provided by destination resorts
supplement local resources to local residents, enriching the
community's quality oflife.
The allocation of units from the pool to a particular project
would be strictly controlled and would require that the proposed
resort be of a character that it will serve as a catalyst for the
revitalization of Clearwater Beach. In order to be eligible for
additional resort hotel units, a project would have to have the
following characteristics:
. a minimum of200 hotel rooms or 150 marina based hotel
rooms, unless a particular proposal of fewer units has such
a distinctive character and quality that the resort will be a
landmark destination
. a full range of on and off-site amenities including full
service restaurant, room service, concierge, valet parking,
exercise club, boating, fishing, golf, at least 20,000 square
feet of meeting space, or comparable amenities
. access to hotel rooms through lobbies and internal
corridors
. a national or international "flag" or other comparable
marketing affiliation or program which will ensure
support of the repositioning of Clearwater Beach as a
resort destination
44
City of Clearwater, Florida
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Beach by Design
+ require a legally enforceable covenant to implement a trip +
generation management program which promotes non-
vehicular access to and from the resort which shall +
include at least airport shuttle provided as a part of the
basic room rate and resort-provided transportation 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 hurricane watch which
includes Clearwater Beach is posted by the National +
Hurricane Center
+ no more than 25% of the rooms may have kitchen +
facilities
+ exceptional architectural design and high quality finishes
and furnishings
+ the site must front on the Gulf of Mexico or be separated
from the Gulf by beach and a single public road or be
located on the Intracoastal Waterway
Beach by Design: A Preliminary Designfor Clearwater Beach
45
the site must have a minimum land area of at least 1 acre
the resort is to be developed on property, which in the
opinion of the City, is currently improved with
substandard, inefficient or obsolete improvements
+
the development complies with these criteria, is located in
the Tourist District and is eligible to increase the height of
structures up to 150 feet
the resort provides demonstrable benefits to the City such
as opportunities for public off-street parking
subject to a legally enforceable covenant obligating the
resort to participate in a Clearwater Beach operation and
maintenance assessment program
City afClearwater, Florida
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Beach by Design
The allocation of additional hotel rooms from the pool
would be made by City Commission approval. The land areas
which are eligible for additional hotel rooms from the additional
hotel room pool are highlighted on the adjacent aerial
photograph.
Areas
Eligible for
Additional
Hotel Rooms
The Rules Concerning the Administration of the
Countywide Future Land Use Plan As Amended establish a Plan
Classification entitled "Community Redevelopment District."
According to the Countywide Rules, the purpose of the
classification is:
To depict those areas of the County that are now
designated, or appropriate to be designated, as
community centers and neighborhoods for
redevelopment in accord with a specific plan
therefor.
Section 2.3.3.8.4, Countywide Rules, August 20, 1999.
Clearwater Beach is already developed with mixed uses and is a
residential, economic and recreational focal point ofthe County.
The unique circumstances extant on Clearwater Beach require
separate standards for density for catalytic resort projects
consistent with the special qualities of the Beach; and the
implementation of Beach by Design's catalytic projects to
reposition the City of Clearwater's resort economy is consistent
with and furthers the purpose ofthe Community Redevelopment
District Plan Classification.
In addition, Clearwater Beach satisfies the "locational"
requirements for a special designation. The Countywide Rules
provide that the Community Redevelopment District
classification is appropriate for areas "designed to serve local
retail, financial, governmental, residential, and employment
Note: aerial view prior to construction ofroundabout and associated public improvements
46
City ofClearwate/; Florida
Beach by Design: A Preliminary Design for Clearwater Beach
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Beach by Design
focal points for a community; and to specified target
neighborhoods designed to encourage redevelopment in one or a
combination of uses. .." Clearwater Beach supports a high
concentration of residential, commercial and hospitality uses and
Beach by Design recommends an increase in hotel density as a
catalyst for transforming the Beach into a more balanced and
quality resort community. Beach by Design demonstrates that the
intensification of hotel use to stimulate reinvestment and
revitalization on the Beach, paradoxically reduces travel demand
and the number of persons who would have to be evacuated from
the barrier islands in the event a hurricane warning is posted for
Clearwater Beach. It is indisputable that Clearwater Beach is a
"focal point for a community". Finally, Beach by Design
provides a strategic context by which the special designation
accommodates the special needs of Clearwater Beach in concert
with intra and inter-area transportation. The land area which
constitutes the special area on Clearwater Beach is approximately
Beach by Design: A Preliminary Design for Clearwater Beach
280 acres in area and already includes many uses which are
permitted in Community Redevelopment Districts including
residential, office, commercial, and institutional.
Beach by Design recommends that the Comprehensive
Plan of the City of Clearwater be amended to designate central
Clearwater Beach (from Acacia Street to the Sand Key Bridge,
excluding Devon Avenue and Bayside Drive) as a Community
Redevelopment District and that this Chapter of Beach by Design
be incorporated into the Comprehensive Plan and submitted for
approval to the Pinellas County Planning Council and the
Pinellas County Commissioners sitting as the Countywide
Planning Authority. In addition, Beach by Design recommends
that the use of TDRs under the provisions of the City's land
development regulations be encouraged within the Community
Redevelopment District to achieve the objectives of Beach by
Design and the PPC designation,
City of Clearwater, Florida
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~~~Et-!aSgo!a~!llgoPJ!a~
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Beach by Design
"great" address which will stimulate revitalization and
renovation of the existing improvements.
Beach by Design recognizes that closing South Gulfview
would be a substantial incentive for redevelopment. However,
Beach by Design is grounded in the balance between the needs
and interests of residents and tourists, In this context, Beach by
Design proposes that South
Gulfview be maintained as a
public road, but that South
Gulfview, be transformed
into a great beachfront place
which would rival, indeed
outdo, the other popular
beachfront 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 Clearwater and is
at the same time a great
"address" and a great
"place."
Beach is repositioned in the tourism market place. The Beach by
Design proposal to relocate South Gulfview to the west of its
current alignment achieves multiple purposes. First, it creates a
drive with a real view of the Beach and the Gulf of Mexico.
Second, it would allow the City to vacate the east 35 feet of the
existing right of way in favor of the properties along the eastern
frontage of existing South Gulfview as an incentive for
appropriate redevelopment.
Many of the existing
properties would
substantially benefit from an
additional 35 feet of depth
which could be used for the
addition of facilities and
amenities such as safe and
comfortable areas for
outdoor dining.
~..
Beach by Design
proposes to create a great
beachfront -- to be known as "Beach Walk" -- by relocating South
Gulfview from the existing right of way to the west where the
existing surface parking lots are located. The redevelopment and
revitalization of the properties that front on South Gulfview is
constrained by several factors including small parcel sizes and
the Coastal Construction Control Line. As a result, most of the
motels and hotels along the east side of South Gulfview have
limited opportunities for redevelopment even if Clearwater
Beach by Design: A Preliminary Design for Clearwater Beach
Beach by Design
includes a proposal that the
parking lots to the west of
South Gulfview be removed
from the Beach as was
recommended in Strategies
for Revitalization. Beach by
Design proposes two
alternative alignments for
South Gulfview -- a sinuous alignment and a parallel alignment.
In either alignment the road would be configured as a two way,
two lane section. Whatever the alignment, Beach by Design
proposes that the realigned South Gulfview include a 30 foot wide
pair of pathways along the western edge of the alignment -- one
for bicycles and roller bladers and the other for pedestrians. In
addition, Beach by Design recommends that the western half of
the existing right of way be converted into a broad pedestrian
50
City of Clearwatel; Florida
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Beach by Design
promenade with sidewalk cafe seating and other traditional
sidewalk scenery. In the event that the City implements the
Beach by Design recommendation for an intra-Clearwater Beach
transit system, the transit guide way would be located along the
western edge of the promenade.
The sinuous alternative involves a curvilinear alignment
that shifts between the western edge of the existing right of way to
the western edge of the existing surface parking lot. A driver
following the course ofthe alignment would have direct views of
the Gulf of Mexico when the alignment moves toward the Beach.
The sinuous alternative would allow the City to reconfigure some
of the parking on the Beach at discrete locations in the landward
area to serve local business needs and provide convenient
handicap parking. If any of the parking is retained, the parking
areas should be highly landscaped and designed to have a distinct
sense of place. The parallel alignment could be located at any
point between the existing right of way and the western edge of
the surface parking lot. Whatever the alignment, Beach by Design
.::-.....:.-."...,.
."If, ...,.,,"
. ... .......-.w -.......,_.
L n..~ .:>.:.~~ ",.:'_";"..:",.~....~. Il':.~",,,,\
Beach by Design: A Preliminary Design for Clearwater Beach
recommends that it be heavily landscaped with parallel street
trees along the entire course ofthe road and the Beach promenade.
The east side of the new South Gulfview would be the
transit guide way, assuming that the intra-beach transit proposal is
implemented, which in turn would be bounded by a 25 foot wide
promenade sidewalk. The promenade is contemplated to
primarily to serve local pedestrian access to businesses on the east
side of South Gulfview and serve as a corridor for pedestrians
who have destinations at or to the north of Pier 60 Park. Ideally,
the motels and hotels will have taken advantage of the
opportunity to revitalize their property so that the sidewalk on the
eastern side of the road will be bounded by new and improved
grounds with pools, outside cafes and other "seaside" amenities.
The sidewalk would be separated from the travel lanes of the new
South Gulfview by a four foot parkway with generously spaced
street trees. The two travel lanes -- one north and one south --
would be 10 feet in width and would be separated from the bicycle
and pedestrian walk by a second 4 foot parkway with street trees.
, ''('':::;:'_:1'~.. ~ '_~...., '" "
.c: -'... ~',^
,.,--t~"':'::+~~:"';::~"_t. ,'<~_~~
. ~~~~~:I;
i
l -, --
51
City ofClearwatel; Florida
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The bicycle/rollerblade lane would be 15 feet in
width and would be separated from the pedestrian
walk by some sort of visual demarcation. The
pedestrian walk would front directly on the dry sand
with small plazas with seating and steps to the beach
located along the walk at strategic locations.
If the sinuous alignment is selected, the
cross section would be practically the same as the
non-sinuous alignment except that small parking
areas would remain in the "elbows" of the sinuous
alignment. The individual parking areas would be
landscaped with trees and would be improved so
that they practically operate as places of assembly.
Beach by Design
Beach by Design strongly recommends the sinuous alignment for
several reasons. First, maintaining some of the surface parking will benefit
existing businesses along the existing right of way. Second, the curvilinear
alignment will naturally calm traffic along its length. Third, the curvilinear
form helps to break the beachfront into a series of discrete landscapes. Finally,
the curvilinear alignment would be distinctive and memorable, qualities which
would support the City's desire to reposition the Beach as a tourist destination.
Beach by Design: A Preliminary Design for Clearwater Beach
City of Clearwater, Florida
52
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Beach by Design
VI.
ECONOMIC REALITY AND FEASIBILITY
"There is nofree lunch. "
Milton Friedman
In Strategies for Revitalization, the community called out
the problems on Clearwater Beach:
In recent years, residents and business owners in
Clearwater Beach have become increasingly
concerned about the physical conditions on the
island and the potentially negative impact that
these conditions have on residents and businesses
of Clearwater Beach. Among the primary
concerns expressed about the island are changing
tourist and market perceptions of the island due to
the general lack of reinvestment in business
properties in the area, poor traffic and pedestrian
circulation, parking, and poor aesthetic
conditions.
Beach by Design is nothing if not ambitious. Beach by
Design proposes to re-mediate the concerns identified in
Strategies and transform Clearwater Beach an attractive and vital
resort community that strikes a meaningful balance between the
interests of Beach residents, business owners, the citizens of the
City of Clearwater and the City's tourism economy. Beach by
Design is not, however, a picture book of ideas -- it is a practical
public and private investment strategy. The history of public asset
management on Clearwater Beach is a classic example of dis-
investment and if the City wishes to address its citizens' concerns
about Clearwater Beach and to create a resort community which
is responsive to the concerns and interests of residents, businesses
Beach by Design: A Preliminary Designfor Clearwater Beach
and tourists, the City must commit the investment resources
necessary to improve mobility and to create a place of distinction.
The estimated cost of improvements proposed in Beach
by Design are significant. The table on the following page
identifies projected capital costs on a generalized basis for the
public investment elements of Beach by Design. The cost
estimates are for planning purposes only, but have been prepared
on the basis of recent, actual cost data.
Beach by Design proposes that the $11.1 million
investment could be paid for by a range of funding options such as
Pennies for Pinellas, the city capital improvement program,
increases in ad valorem taxes as a result of new development,
developer contributions, tax increment financing, grants and
special funding programs, state and federal highway programs,
and parking revenues.
Beach by Design recommends that the City seek federal
funding for the capital costs of the intra-beach and beach access
transit systems. Several Florida coastal cities are currently
pursuing federal funding for greenway/transit projects and Beach
by Design proposes a system which in terms of real function
should be very well-received by state and federal transportation
authorities. The question of funding availability may ultimately
be a matter of legislative direction. The cost of the guideway,
except for rails if the vehicle is a narrow gauge rail vehicle, is
incorporated in the cost of road/promenade improvements. The
cost of acquiring the intra-beach transit vehicles is estimated at
$2,800,000
53
City of Clearwater, Florida
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Beach by Design
The following table portrays the estimated cost of the public improvements
porposed in Beach By Design:
Beach by Design: Public Investment Costs
North Mandalay Improvement Estimated
Cost
Road 4 lanes wlllane parking $1,775,500
Sidewalks 3.000 reet $ 450.000
Street Trees 100 $ 300,000
Coronado 3 lanes w/sidewalk $1,562,000
Harnden 2 lanes $1.213 370
South Gul1View
Road, bike and ped ways 4 lanes $2,083,333
Promenade and plazas 117.000 sauare reet $1,462,500
Street trees 392 $1,100,000
Sub-total $9,726,703
Contiru!encv 15% $1,459.005
TOTAL $11,185,708
54
Beach by Design: A Preliminary Designfor Clearwater Beach City of Clearwater, Florida
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Beach by Design
A. Density
The gross density of residential development shall not
exceed 30 dwelling units per acre, unless additional density is
transferred from other locations on Clearwater Beach.
Ordinarily, resort density will be limited to 40 units per acre.
However, additional density can be added to a resort either by
transferred development rights or if by way of the provisions of
the community redevelopment district (CRD) designation.
Nonresidential density is limited by Pinellas County Planning
Council intensity standards.
B. Height
One hundred feet (100') is the maximum permissible
building height, except that the height limitation may be
increased to one hundred fifty feet (150') if:
1. additional density is allocated to the development either by
transferred development rights or with bonus hotel units
pursuant to the CRD designation;
2. portions of any structures which exceed one hundred feet
(100') are spaced at least one hundred feet (1 DO') apart (with
no more than two (2) structures which exceed one hundred
feet (100') within five hundred feet (500'); or four (4)
structures which exceed one hundred feet (100') within eight
hundred feet (800') so long as the elevations of all structures
which exceed one hundred feet (100') when such structures
are viewed from the east do not occupy a total of forty percent
(40%) of a north south vertical plane which is parallel to the
alignment of Coronado and North Mandalay of the building
envelope above one hundred feet (1 DO'); and
Beach by Design: Design Guidelines
/'-
~
30 UNITS
PER ACRE
,.""......"--.------........-------......-----1
. /'/ ,,~'f~<?'- !
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\!:..#" ~~ I
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....................-----......-.:
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CRD DENSITY
BONUS UNITS
(RESORTS ONLY)
/". ",'
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ONE ".
ACRE "'0> ",.""
~.......'
Toolsfor Increasing Residential and Hotel Development Densities
MAXIMUM HEIGHT MAY BE
INCREASED TO 150 ft,
(SEE REQUIREMENTS)
56
..,
'f50"'..,',...,'
~ 100
l-
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o
W
I
.. .. .. .. .. MAXIMUM
HEIGHT:
100ft,
Application of Building Height Standards
City of Clearwater, Florida
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Beach by Design
op-nON 1:
NO MORE THAN TWO
(2) BUILDINGS ABOVE
100 FEET IN HEIGHT
WITHIN 500 FEET
OPTION 2:
NO MORE THAN FOUR
(4) BUILDINGS ABOVE
100 FEET IN HEIGHT
WITHIN 800 FEET
(SEE B, HEIGHT, 2
FOR ELEVATION
REQUIREMENTS
FOR STRUCTURES
EXCEEDING 100 FEET)
'--
500
'-
i 500
.._.~
-
500
~
r--
500
-.!
r-.----------;.--------- 800
----.---'-----.....
800 ___~____L---..-
-
800
... ---_...-._...----_.._---_......_-~
...-,
800
-.-i
I
Required spacingfor buildings or portions of any structures which exceed one hundredfeet (JOO') in height,
57
City of Clearwater, Florida
Beach by Design: Design Guidelines
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Beach by Design
3. the floorplate of any portion of a building that exceeds forty-
five feet (45') in height is limited as follows:
a. between forty-five feet (45') and one hundred feet (100'),
the floorplate will be no greater than 25,000 square feet
except for parking structures open to the public;and
b. between one hundred feet (100') and one hundred fifty
feet (150'), the floorplate will be no greater than 10,000
square feet; and
c. deviations to the ab0ve floorplate requirements may be
approved provided the mass and scale of the design
creates a tiered effect and complies with the maximum
building envelop allowance above 45' as described in
section C. 1.4 below.
C. Design, Scale and Mass of Buildings
No particular architectural style is prescribed. However,
good architecture, from a community character perspective,
comes in all shapes and styles. There is, however, in every
community an established vocabulary of the "good," the "bad,"
and the "ugly." Neyv buildings should respect this vocabulary and
enhance the community character wherever possible. The more
daring the design, the more sensitive the particular architecture is
to failure.
Quantifiable aspects ofthe architectural vocabulary are:
1. Buildings with a footprint of greater than 5,000 square feet or
a single dimension of greater than one hundred (100) feet will
be constructed so that no more than two (2) of the three (3)
Beach by Design: Design Guidelines
building dimensions in the vertical or horizontal planes are
equal in length. For this purpose, equal in length means that
the two lengths vary by less than forty percent (40%) of the
shorter of the two (2) lengths. The horizontal plane
measurements relate to the footprint of the building.
2. No plane of a building may continue uninterrupted for greater
than one hundred linear feet (100'). For the purpose of this
standard, interrupted means an offset of greater than five feet
(5').
PERMITTED
PROHIBITED
""
100'
100'
110'
215'
DESIGN FEATURES:
DESIGN FLAWS:
. Building dimensions:
215'w x 75'd x 45'h
. Building dimensions:
100'w x 100'd x 45'h
. No one dimension is "equal" to
another
. Width and depth are "equal"
. Building face extends more
than 100' without interruption
. No horizontal plane extends
more than 100' without
interruption
Application of quantifiable architectural standards (1) and (2)
58
City of Clearwater, Florida
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Beach by Design
3. At least sixty percent (60%) of any elevation will be covered
with windows or architectural decoration. For the purpose of
this standard, an elevation is that portion of a building that is
visible from a particular point outside the parcel proposed for
development.
4. No more than sixty percent (60%) of the theoretical
maximum building envelope located above forty-five feet
(45') will be occupied by a building. For the purpose ofthis
standard, theoretical maximum building envelope is the
maximum permitted building volume that could be
theoretically occupied by a building and occupied by a
building includes any portion of the maximum possible
building envelope that is not visible from a public street.
5. The height and mass of buildings will be correlated to: (1) the
dimensional aspects of the parcel proposed for development
and (2) adjacent public spaces such as streets and parks.
6. Buildings may be designed for a vertical or horizontal mix of
permitted uses.
D. Setbacks
1. Rights-of-way.
The area between the building and the edge of the pavement
as existing and planned should be sufficiently wide to create a
pedestrian-friendly environment. The distances from
structures to the edge ofthe pavement should be:
a. fifteen feet (15') along arterials, and
b. Twelve feet (12') along local streets.
Beach by Design: Design Guidelines
THEORETICAL MAXIMUM
BUILDING ENVELOPE
MAXIMUM
HEIGHT ...
.",..., '-!~.."...."..... -. '7~.~~~~~~~~~~~~~~~~~<""'" ....",......."..
: / '\.
: // . ",,-
/ "-
"-,
/ 60% OF MAXIMUM "
// BUILDING ENVELOPE \.
MAY BE OCCUPIED '\
( BY A BUILDING ~
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... _~_~___, L ________ ___________ I
150"
Application of quantifiable architectural standard (4)
PROPERTY
LINE
PROPERTY
LINE
RESOIU
f PUBLIC REALM IS
! NOT SUFFICIENTLY WIDE,
, SETBACK REQUIRED:
15' ON ARTERIAL (MIN,)
12' ON LOCAL ST. (MIN,)
'A 10 FOOT WIDE ARCADE
MAY BE CONSTRUCTED
PUBLIC REALM IS
SUFFICIENTLY WIDE,
NO SETBACK REQUIRED.
DECORATIVE AWNINGS i'
MAY BE EXTENDE:D).&!,,'.
rill
! n i PUBLIC RIGHT-OF-WAY i'
__~"''''_~_ _" Il'lilllllllr'
Application of Setback Standards
59
/'
JL, ,
1 //1
! ./'
(~~~-
i45'
City of Clearwater, Florida
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Beach by Design
A ten foot (10') pedestrian path is key to establishing a
pedestrian-friendly place in the nonresidential environment.
Accordingly, arcades may be constructed in the public space, but
may not narrow the pedestrian path to less than ten feet (10').
Decorative awnings and arcades and public balconies may extend
into the public space, and even into the right-of-way (provided
they do not obstruct vehicular traffic). Outdoor cafe tables are
also permitted in the public space, subject to the requirements in
Section H, Sidewalks.
2. Side and Rear Setbacks.
Except for the setbacks set forth above, no side or rear setback
lines are recommended, except as may be required to comply
with the City's Fire Code.
E. Street-Level Facades
The human scale and aesthetic appeal of street-level
facades, and their relationship to the sidewalk, are essential to a
pedestrian-friendly environment. Accordingly:
1. at least sixty percent (60%) of the street level facades of
buildings used for nonresidential purposes which abut a
public street or pedestrian access way, will be transparent.
F or the purpose ofthis standard:
a. street level facade means that portion of a building facade
from ground level to a height of twelve feet (12');
b. transparent means windows or doors that allow
pedestrians to see into:
i. the building, or
ii, landscaped or hardscaped courtyard or plazas, where
street level facades are set back at least fifteen feet
(15') from the edge of the sidewalk and the area
between the sidewalk and the facade is a landscaped
or hardscaped courtyard or plaza.
Beach by Design: Design Guidelines
Illustrative Sample: Sidewalk Cafe Separatedfrom Pedestrian Area
60
City of Clearwater, Florida
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Beach by Design
c. parking structures should utilize architectural details and design
elements such as false recessed windows, arches, planter boxes,
metal grillwork, etc. instead of transparent alternatives. When a
parking garage abuts a public road or other public place, it will be
designed such that the function of the building is not readily
apparent except at points of ingress and egress.
2. Window coverings, and other opaque materials may cover no more
than 10% of the area of any street-level window in a nomesidential
building that fronts on a public right -of-way.
3. Building entrances should be aesthetically inviting and easily
identified.
4. Goods for sale will not be displayed outside of a building, except as a
permitted temporary use. This standard does not apply to outdoor
food service establishments.
5. Awnings and other structures that offer pedestrians cover from the
elements are recommended. Awnings help define entryways and
provide storefront identity to both pedestrians and drivers.
F. Parking Areas
To create a well-defined and aesthetically appealing street
boundary, all parking areas will be separated from public rights of way by
a landscaped decorative wall, fence or other opaque landscape treatment
of not less than three feet (3') and not more than three and one-half feet
(31'2') in height. Surface parking areas that are visible from public streets
or other public places will be landscaped such that the parking areas are
defined more by their landscaping materials than their paved areas when
viewed from adjacent property. The use of shade trees is encouraged in
parking lots. However, care should be taken to choose trees that do not
drop excessive amounts of leaves, flowers, or seeds on the vehicles
below.
61
Beach by Design: Design Guidelines
\,.
Illustrative Sample: Aesthetically Appealing Facade
City of Clearwater, Florida
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Beach by Design
Entrances to parking areas should be clearly marked in
order to avoid confusion and minimize automobile-pedestrian
conflicts. Attractive signage and changes to the texture of the
road (such as pavers) are recommended.
When a parking garage abuts a public road or other public
place, it will be designed such that the function of the building is
not readily apparent except at points of ingress and egress.
G. Signage
Signage is an important contributor to the overall
character of a place. However, few gener'al rules apply to
signage. Generally, signage should be creative, unique, simple,
and discrete, Blade signs, banners and sandwich boards should
not be discouraged, 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. All sidewalks along arterials and
retail streets will be landscaped with palm trees, spaced to a
maximum of thirty-five feet (35') on centers, with "clear grey" of
not less than eight feet (8'). Acceptable palm trees include sabal
palms (sabal palmetto), medjool palms (phoenix dactylifera
'medjool'), and canary island date palms (phoenix canariensis).
Sidewalks along side streets will be landscaped with palms (clear
trunk of not less than eight feet (8')) or shade trees, spaced at
maximum intervals of thirty-five feet (35') on centers.
Portions of required sidewalks may be improved for non-
pedestrian purposes including outdoor dining and landscape
material, provided that:
Beach by Design: Design Guidelines
GROUND COVER OR
OTHER VEGETATION
SHADE TREES AND
r MEDIUM ACCENT TREES
(OR PALM EQUIVALENTS)
PROPERTY
LINE
[
SHRUBS
c
STREET
Surface Parking Areas
PUBLIC
m ROAD
RESIDENTIAL
mUSE
PARKING
m GARAGE
Illustrative Sample: Facades of Parking Garages Abutting Public Roads
62
City a/Clearwater, Florida
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Beach by Design
1. movement of pedestrians along the sidewalk is not obstructed;
and
2. non-pedestrian improvements and uses are located on the
street side of the sidewalk.
Distinctive paving patterns should be used to separate
permanent sidewalk cafe improvements from the pedestrian
space on the sidewalk. To enhance pedestrian safety and calm
traffic, distinctive paving should also be used to mark crosswalks.
I. Street Furniture and Bicycle Racks
Street furniture, including benches and trash receptacles
should be liberally placed along the sidewalks, at intervals no
greater than thirty linear feet (30') of sidewalk. Bicycle racks
should also be provided, especially near popular destinations, to
promote transportation alternatives. Complicated bicycle rack
systems should be avoided. The placement of street furniture and
bicycle racks should not interrupt pedestrian traffic on the
sidewalk.
J. Street Lighting
Street lighting should respond to the pedestrian-oriented
nature of a tourist destination. In this context, it should balance
the functional with the attractive --' providing adequate light to
vehicular traffic, while simultaneously creating intimate spaces
along the sidewalks. Clearwater's historic lighting is an
attractive, single-globe fixture atop a cast-iron pole.
Beach by Design: Design Guidelines
Illustrative Sample: Wide Sidewalk Lined with Palms
63
City a/Clearwater, Florida
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Beach by Design
K. Fountains
Fountains provide attractive focal points to public spaces
and add natural elements to urban environments. They should be
interesting, engaging and unique. While it is important not to
overburden architectural creativity regarding fountains, they
should meet at least the following standards in order to be a
functional and attractive component of the public space:
1. they should be supplemented with street furniture such as
benches and trash receptacles, and
2. they should have rims that are:
a. tall enough to limit unsupervised access by small
children, and
b. wide enough to permit seating.
Fountains should be encouraged In landscaped and
hardscaped courtyards and plazas.
L. Materials and Colors
1. Facades
Finish materials and building colors will reflect Florida or
coastal vernacular themes, All awnings should contain at
least three (3) distinct colors. Bright colors will be limited to
trims and other accents.
Glass curtain walls are prohibited.
Beach by Design: Design Guidelines
Illustrative Sample: Fountain Located on Sidewalk with Decorative Pavers
64
City of Clearwater, Florida
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Beach by Design
2.
Sidewalks
Sidewalks will be constructed of:
1. pavers;
2. patterned, distressed, or special aggregate concrete; or
3. other finished treatment that distinguishes the sidewalks
from typical suburban concrete sidewalks.
Materials should be chosen to minimize the cost and complexity
of maintenance ,
3. Street Furniture
Street furniture will be constructed of low-maintenance
materials, and will be in a color that is compatible with its
surroundings.
Illustrative Samples: Durable, Functional Street Furniture
Beach by Design: Design Guidelines
4.
Color Pallette
A recommended pallette for building colors is presented
on the following page.
Illustrative Samples: Functional, Human-Scaled Street Lighting
65
City a/Clearwater, Florida
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Beach by Design
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