03/18/1981
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Additionally, two property owners adjacent to Petitioner, Robere'
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,J. Furr and >>~rt JaoKson, tostificd in opposition to the
application while a third simply desired clarification of tho
application from the Ci.ty Planning Official. Finally, pursuant
to Section 35.10(3), Code of Ordinances, the record of the
Board's meeti~gs on October 9 and 23, 1980, and its decision,
and the exhibits submitted at said meetings were received
into evidence.
The Petitioner has submitted propoBed findings of
fact and conclusions of law, and the same have ben considered
by the undersigned in the preparation of this order.
The issue presented for consideration is whether
Petitioner is entitled to a special exception to operate as
a Type C Marina.
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Based on the evidence, the following facts are .
determined:
FINDINGS OF FACT
1. Petitioner is a private yacht club located on
Lots 5-11 inclusive, Block 0, Bayside No.6, Unit A, 830
South Bayway Boulevard, Clearwater, Florida. Founded some
five years ago, the club provides a wide array of boating
and social functions for its membershi.p. It sits on the
north side of Bayway Boulevard and is approximately 50 feet
east of Clearwater PasB Avenue. The property is rectangular
-'0, shaped and has dimensions of approximately 420 feet by 120
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feet. The widest portion of the property fronts Clearwater
Harbor to the north and Bayway Boulevard on the south.
2. The yacht club is Bituated within an area
currently zoned by the City as CTF-28 (high density comrnercial-
tourist). This District provides for a complete range of
motel-hotel developments with a major emphasis on tourism.
.\:i;;';' .,~.. ',; ,.T~e,primary permitted 'uses and structures within th~ 'CTF-
~!~:/:::::.;"/'r<" \'.'2~"Dist~i6~' '~re combination hotel, motel, apartment and
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and restaurants.
3. A number: of Ilpeaial Gxoeptions "to the pernd,tted
u.ea .r~ authorized within a CTF-28 Diatrict. Th~.e include,
inter !!!!, three typos of marina facilitioa, namely, Type A
(pleasure craft docking), Type D (lAunching ramp site,
commercial) Dnd Type C (private marina). Tho City has never
. classified Petitioner under any of these categories.
4. Upon obtaining D Type C classification, a
property owner may engage in 12 separate uses of the, property
as a matter of right, and a thirteenth upon obtaining apecific
Board approval. These include: (u) sales and service facilities,
(b) boat slips (excluding covered boat slips or dry storage,
unles8 specific Board approval is obtained), (c) boat handling
equipment, (d) boat and gear storage, (e) launching facilities',
(f) fuel station, (9) lockers and sanitary facilities, (h)
restaurant facilities (not advertised), (1) club house, (j)
motel or boatel, (k) recreational facilities (not commercial},
(1) park or picnic area, and (m) automobile parking. Petitioner
now engages in all permitted activities except items (a), (f)
and (j). It does not wish to engage in the latter three uses
even if the application is granted. All activities presently
conducted are done so in a manner consistent with the require-
ments of the Zoning Ordinance.
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5. .On the east side of Petitioner's property is
a mUlti-story restaurant and lounge while to the west lies a
'4-story. condominium complex (Bayside 17). Directly across
Bayway Boulevard and to the south are two high-rise condominum
complexes, one of which is still under construction. neat
dOCking facilities are located on the waterfront throughout
. the area,. including that of Petitioner and adjacent property
owners.
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The proposed reclaBoifioation is compstiblB with the 8urroundinq
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4It properties and the oharacter of the land. It. u.es fit within
tho qeneral Boheme of zonin~ far a CTF-28 Diotrict, ~nd a~e
oonsistont with the Land Usa Plan.
7. The chief concern of the adjacent property
owners who testified i8 a fear that reclassification of the
property will diminish the view of the water now enjoyed across
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the olear space on tho west side of Petitioner's property.
However, since no change in the use of the property will be
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'not be impaired.
CONCLUSIONS OF LAW
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1.
The Division of Administrative Hearings has
" jurisdiction of the cause and the parties thereto pursuant'to
~. Section 120.65(6), Florida Statutes, and Section 35.10, Code
of Ordinances.
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2. Section 35.10{D) (1), ~ of Ordinances,
prescribes the pertinent guidelines to be followed by a Zoning
Appeal llearing Officer in rendering a decision:
(1) The Hearing Officer will review
the record and testimony presented
at plililic hearing relative to the
established guidelines for con-
sideration of variance or special
exception. as set forth in Appendix
A, Zoning, Cede of Ordinances,
Section 35.09 (S), (6), (7) and
(~), as is applicable.
Subsection 35.10 (D) (2) specifies additional guidelines to be
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((2) The Hearing Officer shall further be
guided by the City Comprehensive Plan,
related portions of the City Code of
Ordinances and established case law.
Accordingly, the decision of a Zoning Appeal Hearing Officer
~ust rest upon the record adduced at the public hearing, the
:,.~'.,;.;.,: :.,>.>,.J.}.'.,Cit:y:Compreherisive Plan, applicable lIoctions of the :Zoning
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:Y;:~":~':"~~/i,:,\::(;:.Ordi:'nanQe::.and,.where 'pertinent, statutory and established
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3. ' Section 163.170(6), Florida Statl1tes, (Supp.
e 1990) defines a special exception a81
... a use that would not be appropriate
generally or without rostriction throughout
the particular zoning district or classifi-
cation, but which, if controlled as to
number, area, location, or relation to the'
he1ghborhood, would not adversely Affect
the public health, safety, comfort, good
order, appearance, convenionce, morals and
the general welfare.
Stated differently, a special exception is an exception from
the general provisions of'a zoning ordinance contained in the
ordinance. itself that is permissible unless shown to be con- '
'trary to the public interest.
4. Under the above statutory authority, the City
of Clearwater has established special exceptions within
~
particular zoning districts. As is pertinent here, a number
of special exceptions are permitted within the CTF-28'District,
in which Petitioner's property is located, and are enumerated
in Section 17.03, ~ ~ Ordinances. Subsection 17.03(4)
therein specifically authorizes "Marina ,facilities, Types A,
B, and C". At issue here is whether Petitioner is entitled
to a Type C Marina classification.
5. In determining whether an applicant is entitled
to a spacial exception, it is necessary only to ascertain
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whether the applicant factually qualifies for the legislatively
established exception. Unlike a variance, it is unnecessary to
prove hardship, unique circumstances or any of the other elements
entitling a person. to a variance; rather;.one'mus~ only show
that certain facts or circumstances specified in the ordinance
are found to exist. Mayflower Property, Inc. v. City of
Fort Lauderdale, 137 So.2d 849, 852 (Fla. 3d DCA 1962).
The general rule is that once a showing of compliance with
~~;,'. ..:, ' ,conditions of the zoning ord~nance is 'made, 'an applicant 1s
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t",:~,~~~~l:~~\t,}!o:r::':?;>:entitl:ed/to ,~he 'exception '. unless' the zoning authori ty ~or others
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the ordinanO~1 .neh UIO would adversely afflbt the public
intereat. ~ral New ~wn, Ino. v. Palm Beaoh County, 315
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O. So.24 478, .eo (Pla. 4th DCA 1975), City of Nap1.. v..
Central Plaza of Naple., tnc., 303 80.24 423, 425 (Fla. 24
DCA 1974).
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6. Consistent with the above standard., it follows
that the burdon of proof is on the applicant to show that all
conditions set forth in the ordinance have been met. Having
done so, the burden then shifts to those in opposition to
'demonstrate by competent substantial evidence that the
special exception is adverse to the public interest. Rural
New Town at 480, ~upra.
7. Section 35.09(6), go de 2f Ordinances, requires
the Board of Adjustment and Appeal on Zoning to grant a
Bpecial exception only upon malting a finding of fact tha t . the
proposed use is conBistent with the intent of the Land Use
Plan and Zoning Ordinance, and with the public interest.
Further, in considering requests for special exceptions,
, .
Section 35.09 (7), ~de of Ordinances, requires that the
Board give consideration to the fOllowing factors, where
applicable:
(a) Ingress and egress to property and
proposed structures thereon with
particular reference to automotive
and pedestrian safety and convenience,
traffic flow and control, and access
in case of fire or catastrophe.
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(b) Off~street parking and loading areas
where required, with particular
attention to the items in A above,
and economic, noise, glare, or odor
effects of the special exception on
adjoining properties and properties
generally in the district.
(c) Refuse and service areas, with parti-
cular reference to the items in (a)
and (b) above.
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(d) Utilities with reference to. locations,
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traffic safety, economic effect, and
compatibility and harmony with pro-
perties in the district. I
(9) Rcquired yards and 41ther open space..
'h) Height.
(i) Landscaping.
(j) Renewal and/or termination dates.
(k) That the use will be reasonably
compatible with surrounding uses in
its function, its hours of operRtion,
the type and amount of traffic to be
generated, and building size and
setbacks, its relationship to land
valueB, and other factors that may
be used to measure compatibility.
The Zoning Ordinance mandateB the use of the same
factors by the Zoning Appeal Hearing Officer, where applicable,
when rendering his decision. See Subsections 35.10 (D) (1)
~, and (2), supra.
. r
In reviewing the decision of the Board below, which
has been made a part of this record, it is apparen~ that no
discernible consideration was given to the above factors in
denying the application. Neither \'las any visible consideration
given to the Land Use Plan as required by the Ordinance, or
e
whether the applicati.on was contrary to or consistent,with the
public interest.!/ By the same token, other'thanobiique
references to the public' interest, the parties herein have made
no specific reference to these considerations or the Land Use
Plan in either their evidentiary presentations or argument.
6. Nothwithstanding the above deficiencies, it is
concluded Petitioner has met its'burden, of showing comPliance
with the conditions set forth in the ordinance. In reaching
this conclusion, it is noted that Petitioner is functioning
as a private, non-commercial type marina in a manner compatible
.' ,.1 " I
<\i~~~~~~;0:;.;:;.'::;?;':,>'., ':""':;',,/:, .j.. :"" .:~ "I. ,~ .:' 'f. ' , ,', ' .
"\;~,'-,;:~.~~:)'i::;~i~~;'....J::>.<,::'.:':::,:.',."" ,.!J.;,After "a .limited 'discu'ssion at its me'eting 'on
("~i.:;~:~~::i,~.:':::>:Octol?'er:,23; - ,19~O',.. which dealt mainly. with 'procedural aspects ': ': '
\~1i;>;'::::C,,:'~f;~t~~"'app~~cati~n;,: the ,Bo~r~ approved a motion to ,deny the.", ' ,. .'
'~',:~\'~~~~:{,;r~,q.~l':'st;:'1?Yi"~:,.'3~2, vo~e without .,ora~ly, debating or, conside;ing ':', . ',;,
,? M'~!!~.~~~:;:~9.~+~~r,i~:..~s:~a~~J.,~h.~:d ~y,.the, or~inance. " .. ;,\ ': '\' ,'.
':~'q~I~{i~!:~;,~:';;:';~Y:)/~..~.~:;~~';:\~:::~.:<\::;:~),":';";>.::.,' ',:"'.' ..,', ',.' ,'< ...:' -:,~..' ,:.,:
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with the useD specified for a ~fP. C Marina in Sub..ctions 3S.09(8)
(h)(3) (a)w(m), ~ 2! Ordinances. Of the thirteen enumerated'
uses, Petitioner engages in no less than ten. This was
undisputed. Moreover, classification a8 an'A or a Marina is
inappropriate bec~u8e (1) the operations of Petitioner clearly
exceed the scope and purpose establiahed for Type ~, and (2)
the Type U Marina contemplates a commercial type oper.ation.
The eleven considerations Bet forth in Section
35.09(7), supra, must obviously come into play when An ex-
ception permits a property owner to engage in a new or different
use, and one not previously enjoyed. Under these circumstances,
the intended use should be evaluated in conjunction with the
..
o
factors, and a determination made as to how, if any, the use
~
is affected by these considerations. In the instant case,
which is perhaps unusual} no change in the use of the property
will be authorized or made if the application is granted.
Rather, we have a continuation of the status quo, with no
change ,in the relationship of the subject property to the
other gover.nmental and private uses.
Finally, the evi.dence of record discloses'that the
club's facilities are aesthetically pleasing, in good taste,
and in harmony with the character of the surrounding land.
The uses contemplated by a C Marina, as restricted below,
ensure the preservation of the neighborhood integrity, are
consistent with the general pattern of land development in the
area, and are compatible with the intent of the Land Use Plan.
From the foregoing, it is concluded that Petitioner
~ has met its burden of showing that it factually qualifies for
the legislatively established exception.
9. The Petitioner having demonstrated its entitlc-
ment to the permitted use, the burden of proof must then shift
", .
~;:~::;i~.\c.- '-',":'~:":~,.:.to ~hose, opposing the' application, to, show that the special
1.J.~' r~t~'.,l~~:':(~~",: ~~,:'/:~?:::, :, .": -. ,:;. . <, '. ".,' ': " .
"~:);/}t',~'::):~,.:,:'exception' 'is . adverse .to' the public interest. Rural, New'. Town
~~'~;~~>'f,::~\(?<~:~ .::.:.;:'~:..., I".;,>:::. . <': ;: ~ .': ' , .', '
?>::':;.':~':',;':/'at '480',' 'aupra.
..
The objection 'of, th~ City, an~.the t~o pr.operty
:,
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.',
.
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owner. who testified, focused upon & pot&ntinl deterioration
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of the view of the water if the application vere qranted.
The objection ia based upon their belief that Petitioner may
~tore boat. on the we.t end of ita property, which is now
aubject to clear space requir~ment.. This arqument is
deemed speculative, however, because 4my .torage~autho~ity
.. I
i. obtained only by variance, and then only after specific
approval of the Board. See Section 35.09 (8) (h) (3) (b), .Cod!
of Ordinances. Moreover, this concern is beyond the scope
of this proceeding. Because no competent and substantial
evidence has been presented to show the public interest is
adversely affected by the granting of the appli.cation, or
that the exception is inconsistent with the intent of the
~
Land Use Plan, it should be approved. Rural New Town, ~upra;
City of Naples, supra.
10. Section 35.09(7), supra, provides in pertinent
part:
In granting any special exception,
the board of adjustment may pr.escribe
appropriate conditions and safeguards
in conformity with this ordinance.
Therefore, such restrictions or. other safeguards as are
appropriate and necessary may be incorporated into any grant
of a special exception.
Here the Petitioner expressed no interest in conduct-
ing the following pe~itted uses on its property:
(1) sales
fi)
and service facilities, (2) fuel station and (3) motel or hoatel.
,
In view of its express waiver of these uses, and the failure
to adduce any evidence in support of activities other than
those now engaged in, the grant of a special exception should
contain restrictions against petitioner providing those
functions.
~t;:'< '. . l' ti'" ..ollt. heHaadn\Viniqss' ciboniBliidt' yer.eodf tReh8epOanrd9'~net~ts oExfhcibouintBe41, the
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f.~!y:;,;.'~",.'. "', aame is hereby received in evidence.
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~ ~i1 ~ ;~'l'J'\.;r",'.';"'o"")""t'~';~"{/~P~~1T" "..+.~:.,.' ~,,~',f .~+,.,,~ ~'.I.~,~I,~'. :"~' ."~'i:r".." .....'.,~;<...~~,'..,'..o.,,(' ~'f'''' " "".1~'
:t \ ~:' l~~(1..k~ltJi.\".'r~".'di.'l "..,,''':: t,;~'".~" ,( t'.,'. ~'r'\\' I.,. ,'" " J~'I-~ r..\,., "f.. ';~~i';r:1-lI'J'_+.'''-.':f''~'+ ~
f.-;.\.1.;'~)~!1)t.~i;.,l",,~'~~;~'[,,-:';f.~"'./~':.:~I:,:'..~'~~l\':~.--'.:<:;-~.:':...,>,~ .;:.'~ :,' "~.'~ ~.4.~';~i '+1 .\ ."..-~~~-;~~~.::l;"" .~.~ ~: ~*, J.....-' ,..' V',,'J:,~11 ~ I
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NOW, TRlurons, in eonllideretion of the foregoing, "
of raat and aonclulion8 of. law; it 11 .1
,
/
ORDEReD that the application of Clearwater Yacht"
Club fo~ . .pec1al exce~tion to operate as a Type C Marina
on Loti 5~11 incluaive, Block 0, Bay.ide No.6, Unit A, 830
South Bayway BOUlevard, Clearwater, Florida, is hereby
granted provided, however, that the applicant shall not
enqage in those permitted UBes described in Sections 35.09
(8) (h) (3) (a), (f) and (j), ~ 2! Ordinances.
DONE and ORDERED thi s ~ day of March
.' '/ - Ii'
.' j II
I
1981,
in Tallahassee, Florida.
, ,,','.' ".' '.:: ,~J- ',~ ':. \'
, .'. f": l,' :..'
':';"'/":'~i>:~:~:'):~;~'," " ,"
. .
D
Hearing Officer , L
Division of'Administrative Hearinqs
The Oakland Building
2009 Apalachee Parkway
Tallahassee, Florida 32301
(904) 488-9675
. ',... '
. ..':
,...
,.T,
CopieB furniBhed:
George W. Greer, Esquire
302 ,South Garden Avenue
Clearwater, Florida 33516
Filed with the Clerk of the
Oivision of Administrative
Hearings this ~ day of
March, 1981.
Thomas A. Bustin, EsqUire
.P. O. Box 4748
Clearwater, Florida 33518
City Clerk
City of " Clearwater
112 SouthOsceola~Avenue
C~earwate~, 'Florida 33518
. ., '!-~,'~ . -, h ,
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