12/04/1981
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PUBLIC HEARING
October 29, 1981
2:00 p.m.
......t:
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G. Steven Pfeiffer, Hearing Officer,
n.o praet:
David Healey, Planning Director
John Riohter, Planning Offioial
Sue Lamkin, Assistant City Clerk
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Ippe"~t Howard Hamilton for a varianoe in off-street parking
requirements to permit operation of a restaurant on Lots 26, 27, 28,
Bl A, Barbour Horrow SUb, looated at HE oorner of Handalay Ave and
Marianne St and zoned CO (general business).
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Thomas A. Bustin, City Attorney, representing C1~ Dr ~~.
William W. Gilkey and Leon Whitehurst, Jr., attorneys representing
JnIe"pt.
Stephen Thacker, attorney, representing IDter.wuur Pier Pavilion,
Inc.
blllblta aaIImttad:
11 - By Hearing Offioer: Tape, minutes, and supp~~tlng papers of Board
of Adjustment and Appeal on Zoning Hearing of 7/23/81.
'2 - By Planning Offioial: Aerial photograph.
Preliminary discussion ensued conoerning Hr. Thaoker's role, and the
Hearing Offioer ruled he would be heard as there is nothing in the oode
whioh would prohibit his appearanoe. Hr. Gilkey took exoeption to the
ruling .
The Planning Official reviewed Exhibit 12, looating the property and
de~oriblng the area. The building on the site oooupies more than half the
property and there are five parking spaces at the rear of the building.
The property is zoned' Co (ooDlDeroial) and the land use designation is
aODllleroial tourist facilities. He explained the two methods by which
parkins requirements are established and, based on those calculations, 68
, parkins, spaoes would be required. He reviewed the permitted uses based on '
zoning and desoribed current uses in the immediate area. He stated it is
, . ' ' 'erroneous, to 'presume that a restaurant on the busiest corner on the beaoh
, ,".,,' ,Wo~ld:.ttraot only walk-in traffio and it would, therefore, have an impaot
:}L~;::'';':' <..',':' ,..,'on ,tbe pUbll'a parking evil able in the area. Reterenoe was made to two
:.:,.::/f'~'{::, ,~~,':;r, : ,':,z:":lItaurants in the iDIIHdi.te area, and Hr. Riohter stated he was not aware
!.j~~;;{'~':,)~;~.',::i/;'t,:}::;o'(,an,,: ott,!:,street parking provided by either. He desoribed trattio tlow' on,
~i.)/t~W::;{{1\{J!~r~ann~}: ~da1.Y" at.tina he baa oooaalona.lly obs,erved trattio baoked up ,
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their reasons for believing a quality fast food restaurant would be of:
benefit to other businesses on the beaoh.
, Emma Whitney, adjaoent property owner and operator of a motel, spoke
in opposition oiting traffic and ,parking problems and the high inoidenoe of,
aooidents at the intersection.' She feels the Qurrent praotice of people
using their parking without permission would be inorea~ed if a ~e8taurant
were on this oorner.
The Hearing Offioer requested any reoommendations be submitted within
f1.t'te~n (15) days from this date.
Hearing adjourned at ~:55 p.m.
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STATE OF FLORIDA
DIVISION OF ADMINISTRATIVE HEARINGS
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HOWARD 'HAMILTON, )
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Petitioner, )
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VB. ) CASE NO. 81-1928
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CITY OF CLEARWATER, )
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Respondent, )
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and )
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PIER PAVILION OF CLEARWATER, )
INC. , )
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Intervenor. )
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FINDINGS OF FACT, CONCLUSIONS
OF LAW AND FINAL ORDER
A formal hearing was conducted in this matter on
October 29, 1981, in Clearwater, Florida. The following
ap?earances were entered: Leon Whitehurst, Jr., Clearwater,
Florida, and William W. Gilkey, Clearwater, Florida,': appeared
on behalf of the petitioner, Howard Hamilton; Thomas A. Bustin,
Clearwater, Florida, appeared on behalf of the Respondent,
City of Clearwater; and o. Stephen Thacker, Clearwater,
Florida, appeared on behalf of the Intervenor, Pier Pavilion
of Clearwater, Inc.
The Petitioner filed an application with the City
of Clearwater Building Department seeking a variance from off-
street parking requirements set out in the city of Clearwater
Code of Ordinances, to allow Petitioner to operate a restaurant
on property that he ownS in the City. The City's Board of
AdjustInent denied the application by decision entered July 23,
: ,:" ':' ' ~!fBl,. , ,"~he' Pet~tioner filed an appeal from that decision, and
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~1,;!~:,:':.-:, ,:':'on:August 6,1981, the' City, forwarded the matter to the'office
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i:;{:,;i'::,:,'>,:,:- ':,,' of ,the' Division of Administrative Hearings for th~ assignment
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}~~~~!'\i,::~',~,~;"<<<',~f Ci: oH~ar~n~ O~fi.cer and the scheduling of a hearing. The
fli.;::~;~~~;~;i;{/:.':f.iri:~'i,,:"he~~iiiq~' was': scheduled' as' set out above, by 'n~tice dated ,,', '
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'the City called the following witnesses at"the"hear... @
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ing: John Richter, an employee of the City's Planning Depart-
mantt and David Healey, the City's Planning Director. Peti-
tioner testified as a witness on his own behalf and called
the fOllowing additional witnesses: C. E. Renfroe, Jr., the
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President of the Clearwater Beach Bank1 and John Homer, a real
estate businessman. Emma Whitney, an owner of property which
adjoins the property where the Petitioner proposes to operate
a restaurant, testified as an interested member of the general
public. Hearing Officer's Exhibit 1, and City Exhibit 1 were
received into evidence. The parties have submitted post-
hearing legal memoranda including proposed findings of fact
and conclusions of law. The proposed findings of fact and
conclusions of law have been adopted only to the extent that
they are expressly incorporated into the Findings of Fact and
Conclusions of Law which follow. They have been otherwise
rejected as either contrary to the evidence, irrelevant to
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the issues, or erroneous as a matter of law.
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The issues in this proceeding are whether the decision
of the Board of Adjustment which denied the Petitioner's appli-'
'cation for a variance from off-street parking requirements should
be reversed, and whether the variance application should be
granted or denied.
FINDINGS OF FACT
1. The Petitioner is the owner and operator of
several businesses on Clearwater Beach, including two "fast-
foodtr facilities which serve l?rimarily recreational beach
,visitors. Petitioner owns property on the northeast'corner
, " , of Harlan. and Mandalay Streets on the beach. ' Marian Street
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is a one-way highway which terminates at Mandalay Street. It
is the eastern terminus of State Road 60 and provides the main
access, to Clearwater Beach from mainland locations. Mandalay
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~:;;J( :,\:; '...', Street is a' four-lane street which serves as the primary ,
i~>:;:{~X~':;)~~}:{:','n~,r,t,~7~,outh :artery on Clearwater Beach. The intersection, , ,:,' "e
r...t .:/.:.1. '~'(" ,. '+ o. . ~. '" ~ ' .' '\
~;~~ilJ~/1~,:'~~~F:',::':;':,'6~ ~ M~ian. 'and Mandalay stre'ets is the busiest inters~ction~,'::,': ":,, ': ' ,': '.' '"
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on Clearwater Beach. There are a traffic light and a pedes-
trian light at the intergection~
Peti tioner purchased the property at the north- "
east corner of the intersection in 1974. A two-story building
occupies the property and covers over half of it. The build-
ing fronts on Mandalay Street. There are two commercial
facilities on the first floor, one of which is presently not
occupied. There are five apartments on the second floor, all
of which are occupied. There are numerous commercial facil-
ities to the north of petitioner's property along the same
side of Mandalay Street. These are primarily shop~ which
cater to the beach-going public, and small restaurants. To
the east of Petitioner's property, there is a mixture of
commercial uses, primarily motels. There is a Holiday Inn
motel across Mandalay Street. petitioner's propert~ lies,
within a zoning district which is classified "GB" or "General
Business. II The property is classified in the City's plan as
commercial/tourist. Retail business uses, restaurants, motels,
or high-density residential uses would all be appropriate
under the "GBII zoning classification and under the City's
plan.
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2. Petitioner proposes to remodel the building on
his property and to operate a "fast-food" restaurant facility
in it. The Petitioner proposes to place food preparation and
service areas on the ground floor with some stand-up eating
locations, and to place most of the seating on the second
floor. The second floor would serve as a dining porch with
good views of the beach area. The Petitioner has not decided
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whether he would seeK to serve as a franchisee of some national
food service organization. The Petitioner would not have any
"drive-:in"facility connected with the restaurant. P~titioner.' S'
/:~.'~::',:, property is a good locatio'n for a fast-food restaurant because
j('jf:>':.;...... .it ;.~~>at. a hiqhlY..visible location, the busiest intersection
r~_;~'~~':,,:,> ,',;' .~~:..~~~' ~e'~,ch;: a,nd becaus~, it' is readily accessible to the '
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:;,g;1i;~i.ti,');-th~::.;;'be~ch7goin9 pUblic" being located across the' street from
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the beach. There is a very favorable prospect that a fast-
food operation on the property would provide the Petitioner
with a favorable return on his inves~ment.
3. There are five ~arking spaces located on the
Petitioner's property adjacent to the building. Petitioner
proposes to utilize the same five parking spaces to serve his
proposed restaurant. Under the City of Clearwater's building
and zoning regulations, persons who operate restaurants are
required to provide suitable parking areas to accommodate
employees and customers. The regulations require that park-
ing spaces be provided based upon the number of employees and
based upon the number of fixed seats or the square footage of
the restaurant. In order to operate the restaurant that he
proposes, the Petitioner would be required to provide 68 spaces
under the city's building and zoning regulations. Petitioner
is seeking a variance from these requirements which would
allow him to provide only five parking spaces.
There is considerable public parking located
within close proximity to the Petitioner's property. There
are approximately 1,500 metered parking spaces maintained by
the City within four blocks of the property. The purpose of
these spaces is not, however,~to serve commercial enterprises,
but rather to serve'~he beaCh-going public. While there are
many such, spaces, they are frequently filled during peak
beach-going periods. To use the public parking facilities
as parking f.or the Petitioner's proposed restaurant, customers
'would need to cross one or more streets. Petitioner contends
that his proposed restaurant would not itself' l:\.erve ~~ a draw
, ,to' the beach," but .rather that his custome~s would be people
<'.L~~;l"""',~,h~~"'!>"I--:"'."'''whq,;hi,va.,alreB.dy.. come ,to. the beach., pet.itione:r:' contends
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therefore that there will be no additional demand for,parking
caused by his facility, and that he should not be reqUired to
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provide any. While it is true that a "fast-food",sort of
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~~~{l~~~~~F<{}:3<,'~:~C;,ili~Y ~B n~t likely toser,ve, as a substantial draw ~o the ,,", ~', ~.,
R~;:~,~,ji\r\:~"G'::-',~:,.;:.J:~ea~h, it is, a~so ,true that the Petitioner is predicting' ,'", ", ",,:,:~
~~>~~~:f~'~~*~!~t~/)f;: /~!>:,)//. ....," ,,' ", ,,' ,; ,.: e' ':...: ".:',:',',:/ ,':..~<';,,:'.:::
i.l't~.t...,.t{'I.I... .....1.... '" ."...... ,-",,+1.' .' . ~. . '. ..,' ~ . . > . ,".' .
, . .~.~t:l>':,;i;i~i!!W~:~~ji;(']i'~~~~~~;~'~::~\2;::', ::~;::.~',':,: " ,~';~',.:,..::, ; "" ':~ .,'::, ;,:,,', .. ','; '::; ,,: ':, ':,; .', -: :',: ",' ':i!:~:::: ::)y;~~;~:,..::,\{~~';~~/:.t-~::,~,>i'+:{,;:,;;;
:... t~:-..r1?~~~ ~'J \ :.t:~'t'';.. ~I': r '~r' ~!:J ~.. ..,' 0:. of.. ',' ~ ,.... .. ~.";.'... '~':.' '; '.'. .. ~,:. .; .' r ~~/)... ~~~""",.~.:.. ~,~'../:. ,.. :....- 1',,,:..';-:, :l.,~i':' ;.'. ~~~i. ~ r j 1,"'.,\1 1
,,~j')"..)~~~'\':."~i\:');"\"II~' :"I.i~'I""" .'~.~n~ :~I'" .....,: ;' ';~ <<" .'1 F '"~"-i1....J't-:-."!.'h'.(:;.f~".::-..l~'~ '\'.f~~I.{.~ .r'..,.i~.Ji"',,\)--~~';'''"r)
. '~?~r~...",;}~v ~.'" 'r~)(' ;;~ ::/f<:~ I,." 0-' ,~~":' /:. I . '. . L ' , .. i. ,_.~; t..; .'... -' ~'~ .' " . fo} I 'J.1~cl,~".fd ......}.;h '...,.~ 5("'~' h,"'t IJ"'~;' ~ . ~ c.~.....':.1" 4'<", "':, .'t..
~~tl~~:i~(~ :',~"w~,',ii;j,\' ;;f,j' (;~::: ',:,~~",;~./) "'~~~ ;/.,;~~ ':~i:;-;' ~,S . :~:~: ~lY$,'Wf~i~i:],~'{;;~',~'it ~~, ~::~."y':';'~r.':~)1ii~'i/r"f:.:~~A
, ~~~ 'f, ,~tif.;(.~.'r,~i'J<)W,l\"ir\\'*'~:~"rt~:)S(~;-";;;S.~H~~,~~. ;:'..,,;;~i~'iH~', :/-l!tR,r~~!fk~~;tr.:',~rt").!..""g}i};j),1:{.;~,~,:::\!l~.!-!t,\~JjJ
.'. ~ ~ 'r' f(!f;r:: .oIt~J-4.\~T, ~;1j::t1t r:,:~~--~'llf'Xt
':. .'1;~~,~\:WP,:'7~'\\'"!!,''''h~$''~1'{~!'f~!:',;-'\''' !' ,,', ,
,: ,j " ~ ".,:. ',.. ';", " .... ':;' 0
. .
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.
Ruccess for h~~ facility based upon its highly visible loca-
tion. It is likely that persons going to the beach would
notice the restaurant and seek nearby, parking locations.
This would increase the demand for parking facilities in the
area and would increase both vehicular and pedestrian traffic
at what is already the busiest intersection on the beach.
4. The parking problem on Clearwater Beach is not
~
\\tW'
new. During peak demand times, there has been a shortage o~
parking for many years. The parking shortage is not one that
affects only the petitioner's property. Any business located
on Clearwater Beach would have the same difficulties that
Petitioner has. The difficulties are caused by lack of avail-
able land for providing parking spaces, and by the high demand
for the land that is available. For the Petitioner to pro-
vide parking that would comply with the City's zoning regula-
tions, he would need to acquire approximately f.our-tenths of
an acre of property. The cost of such an acquisition would
be prohibitive. The same problem would exist for any business
person in Clearwater who proposes to operate a restaurant.
It is not a problem that is unique to the Petitioner's prop-
erty.
5. There are a number of restaurants located on
8
Clearwater Beach which do not provide parking facilities
that would comply with the City'S zoning re~ulations. There
are at least two such restaurants in clOse proximity to the
Petitioner's property. It appears that all of these restau-
rants were in operation prior to the adoption of the City's
zoning regulations. While there was testimony~that ~~riances
of the sort being sought by the Petitioner were once commonly
, '
granted, there was nocompe~erit'evi~e~ce to ,support' the 'con-
~. . ;' ", '~"
~~~~ ;:..
~;'.~~~~ .~.. .' '. 4
~;';;>H,::~l::~ng regulations in other than a uniform manner. , ,
,\,t"""\.,]:.:;,, " ,', ,: l'~.l,' ,\,; ',." " ' . " .
t~;~~{;~~t;~~~{i'i;;~ir~:~:;?r;iL;.' ,~<:),.:';r::<:;;:.~,,: "~"',;. .;~,,: ',;..;:,,', '..... ..',,' .'. ,,'..: ,""...:: ".- ,'.' ,,' ... ,:"': ,:,~,:
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,~"'I',,,!, '!:l:'-';.f.':t=-~~'.-,~.:"l}\,I'~"'\~I"~'~' .;-'"i,.\l":;-....t...\J.-\/..rl,'S. .':'!.....~.~:,~>\.i:i".'..,";i. :/....''t..:. t .:.~. ':i'i,': "f ,I ,', /,~ "". ,I.... .!J'.'::t.':\~.'. ...... "~~~~:::"'~'1~l"'f-;'
. f~(,f~r~c~i...\ff..t,;,\<rf'l'll;lp)t"'::4'J,;J;-.;\.t I...,'.' ,(..... ,..... .~;..T...~i~..,,\j,"~.... 01\'\"', ~r\ 1,'1L/ ~",.,~,~",\"J,,~
, ~~:t''$.~f,:t4'':;};tV,{~:,;'~~q~ ~'~tl/~;';,~~f!ri6;!,,~ :':J.~:. ':~;~,~~;~',:' ::~>';/; ~;:' i: :'::;;.;,;~,:~:..i;~,:, -',:',:1'.' '~..." i:'~:, <:~:<!~.( ~t:.}i/~.'...
..... ~I .....J:.t~ .n~.~~tt~1L:tW!t~~~~;, \!.,,~,~,~:"~j-I:-"~" ...tJ-/~\."'.:f'''':-'!;'t''',,\; ".-;.~~,. ...'(),~ '~\.'li"""''''~''''\\''L'''' ~1:1\l'....;1"'; ~-'1.'1 :-."r~~'''J~~~~{....t~.;,,ty..
.. 1":1,.1 ~....'l~t".}~',{~,,\,,r.. l\r("~"''':~I~~...,.:.j..~l-:i{r'J.''' I' r'".~..t. ~.....~l.' ~., ~".,., .".~,)T, ..I'L~. ..:.'..'.~.."..~.J~I'J~'~f}lI~
, ,.
tGntion.
it does not appear th~t the City has enforced its,
, "
., .
o
n
"
. .'
.
\
.
CONCLUSIONS OF LAW
1. This appeal was properly brought in accordance
with section 131.0165 of the City of Clearwater Code.
2. The City of Clearwater building and zoning
regulations [Section 131.016(e)) set the following criteria
that must be met by an applicant for a variance from the terms
of the regulations:
a. That special conditions and circum-
stances exist which are peculiar to
land~ structure or building involved
and which are not applicable to other
lands, buildings or structures in the
same district.
f1;;).
'i&
b. That liberal interpretation of the
provisions of this chapter would deprive
the applicant of rights commonly enjoyed
by other properties in the same district
under the terms of this chapter.
(I)
c. That the special conditions and
circumstances referred to in subsec-
tion a. above, do not result from the
actions of the applicant.
d. That granting the variance requested
will not confer on the applicant any
spe~ial privilege that is denied by
this chapter to other lands, structures
or dwellings in the same district.
No nonconforming use of neighbor-
ing lands, structures or buildings in
the same district, and no permitted
use of landi structures or buildings
in other districts shall be considered
grounds for ~he issuance of a variance.
Petitioner has not established that his application for vari-
ance meets these 'criteria. The conditions and circumstances
which have given rise to the application are not peCUliar to
the Petitioner's land or structure. Parking is a problem
-
throughout the Clearwater Beach area. Any property owner in
..
the area who wishes to establish a restaurant on his 'property
would have the same difficulties meeting the zoning regulations
~.. t ~ ....: . ':. .. '.':' ~."':, .. .."'.' 4', ".'
as Petitioner has.
. .:'t... ,
Under these circumstances, granting the
Petitioner's application would confer upon him a spec~al privi-
';;::)[:::;;1;'" ~:g:l:::a::r d:::::. by the regulations to other proPerty owners
'jti:jlf:fI;~/,'::"":<:.~,:""",,, .~,' 3. In addition to not meeting the criteria set out' ',:e
4..~~j.;..)~ ~L,,]j- J.... 'j'.' .. -'... " . '
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