11/19/1991 - 01:12 PM (2)
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. HEARING
OFFICER
APPEALS
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PUBLIC HEARING BEFORE A HEARING OFFICER
November 19, 1991 - 1:12 p.m.
Richard P Levy d/b/a T-Shirt Factory
Hearing Officer:
Also Present:
J. Lawrence Johnstone
Issue:
Miles A. Lance, Assistant City Attorney
Sandra Glathorn, Senior Planner
Camille Motley, Central Records Specialist
Richard P. Levy (T-Shirt Factory) for variance of 4
parking spaces to permit conversion of storage area to
retail with zero additional parking spaces provided at
1498 Gulf to Bay Blvd, Boulevard Heights, Blk G, Lots 6,
7 and part of Lots 5 and 8, zoned CG (general
commercial) and RS 8(single family residential). V 91-45
Doah Case Number 91-5218
Daniel J. Grieco, II Esquire Representing Appellant
Joseph Gargiulo, General Contractor Representing
Appellant
Miles A. Lance, Assistant City Attorney
Appearances:
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Exhibits Submitted:
Notice of Appeal dated August 7, 1991, executed
by Daniel J. Grieco as representative.
2. Notice of Public Hearing of Development Code
Adjustment Board Meeting for July 25, 1991.
1.
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3. Excerpt of Minutes of the Development Code
Adjustment Board of July 15, 1991.
4. Variance Application.
5. Variance Request map and atlas sheet.
6. Variance Transmittal sheet.
7. Planning and Development staff1s recommendation.
8. Site Plan
9. Drawings
Exhibits were accepted by the hearing officer.
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Opening statements were taken by Mr. Johnstone.
Mr. Grieco stated that due to hardship, the applicant feels his facility should
be allowed to increase the retail space of the building presently being used as
a retail out let.
Mr. Lance responded that if there was substantial evidence before the board, then
their decision must be upheld. He cited code section 137.012 that establishes
standards for approval of a variance request.
Mr. Lance stated that the location of the subject property is one of the worst
intersections in the City. It is the intersection of State Road 60,Court Street,
and Highland Ave. He indicated this intersection is totally over-stressed and
it would present real hazards to allow back-out parking and waive extra parking
space requirements. Mr. Lance cited the lack of demonstration of a hardship,
other than financial and stated the board was justified in not granting variance.
Discussion ensued regarding previous use of facility and it was pointed out that
other businesses have back-out parking near this location. Mr. Guarduilo stated
that he had gone through the proper departments for approval and his plans were
made part of the evidence. The proposed increase in retail use requires no
alterations to be made to the structure either inside or outside.
In response to questions from Assistant City Attorney Lance, Mr. Gargiulo
responded that he was aware of the City's Traffic Engineering Department's
concerns regarding back-out parking onto Highland Avenue and Gulf to Bay
Boulevard.
Mr. Lance stated that all five members voted against the variance.
Discussion ensued regarding whether or not the Board effectively addressed the
issues that were being raised.
Mr. Gargiulo said that the current establishment had been open for approximately
a year after having been vacant for over a year. .
Sandra Glathorn stated the request for variance on subject property did not
appear to support the standards for approval of the Land Development Code, Sec.
137.012d. based on staff review and analysis of the information contained in the
application.
In response to questioning by Mr. Grieco, Ms. Glathorn testified she had not
prepared the report but she personally reviewed the site. Discussion ensued
about previous uses of subject property and surrounding business and their impact
on traffic; traffic lights and traffic patterns at that corner.
In response to Mr. Grieco1s questions, Ms. Glathorn stated it would be
detrimental to the neighborhood because of increasing parking demand without
providing additional parking and conversion from storage to retail space would
increase the demand for parking.
MINHOllB.91
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11/19/91
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Discussion continued in regard clarification on the original square footage
increase request; reasons for board is to deviate from code and existing law; and
that each request is to be treated differently on its own merits.
The Hearing Officer asked for clarification of how Cleveland and Court intersect.
He questioned the status and legality of existing parking and wanted
clarification of the square footage increase on the application and the parking
requirements.
The Hearing Officer concluded the hearing and offered 10 days to respond.
Meeting adjourned at 3:38 P.M..
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Susan Stephe~sQn, ssistant City Clerk
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STATE OF FLORIDA
DIVISION OF ADMINISTRATIVE HEARINGS
RICHARD P. LEVY, d/b/a )
T-SHIRT FACTORY, )
)
Appellant, )
)
vs. ) CASE NO. 91-5218
)
CITY OF CLEARWATER, ) RECEiVED
)
Appellee. ) JAN 1 0 1992
)
CITY ATTORNEY
FINAL ORDER
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On November 19, 1991, a formal administrative hearing
was held in this case in Clearwater, Florida, before J. Lawrence
Johnston, Hearing Officer, Division of Administrative Hearings.
APPEARANCES
For Appellant:
Daniel J. Grieco, II, Esquire
19139 Gulf Boulevard
Indian Shores, Florida 34635
For Appellee:
Miles A. Lance, Esquire
Assistant City Attorney
City of Clearwater
Post Office Box 4748
Clearwater, Florida 34618-4748
STATEMENT OF THE ISSUE
The issue in this case is whether the evidence sustains
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the decision of the City of Clearwater Development Code
Adjustment Board (the Board) to deny the application of the
Appellant, Richard P. Levy, d/b/a T-Shirt Factory, for a four
parking space variance at his property located at 1498 Gulf to
Bay Boulevard, at the junction of Gulf to Bay Boulevard, Highland
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Avenue and Court street, Clearwater, Florida. (The variance is
required as a result of his desire to convert 877.5 square feet
of storage space in his building on the property to retail use.)
PRELIMINARY STATEMENT
On or about June 19, 1991, the Appellant, Richard P.
Levy, d/b/a T-Shirt Factory, filed an application with the city
of Clearwater for a four parking space variance at his property
, located at 1498 Gulf to Bay Boulevard, at the junction of Gulf to
Bay Boulevard, Highland Avenue and Court street, Clearwater,
Florida.
(The variance is required as a result of his desire to
convert 877.5 square feet of storage space in his building on the
property to retail use.)
After staff review and recommendation to deny the
application, it was considered and denied by the City of
Clearwater Development Code Adjustment Board (the Board) at a
public hearing on July 25, 1991. A timely appeal was filed on
August 7, 1991.
Under Section 137.013 of the city of clearwater Land
Development Code (the Code), the appeal was forwarded to the
Division of Administrative Hearings on August 19, 1991, along
with a copy of the record of the proceedings below. On
August 30, 1991, a Notice of Hearing was issued sChedUling final
hearing for November 19, 1991.
At the final hearing, the record of the proceeding
below was received, as required by Section 137.013(e) (3) of the
Code. Additional evidence also was received, as permitted by
Section 137.013(e) (4) and (f)(l) of the Code. In addition, the
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parties were permitted to file post-hearing proposed findings of
fact and conclusions of law under section 137.013(e) (8) of the
Code.
FINDINGS OF FACT
1. Appellant, Richard P. Levy, d/b/a T-Shirt Factory,
owns part of lots 5 and 8, and all of lots 6 and 7, Block G,
Boulevard Heights, at 1498 Gulf to Bay Boulevard, at the junction
of Gulf to Bay Boulevard, Highland Avenue and Court street, 0.24
acres, more or less, Clearwater, Florida.
2. The T-Shirt Factory utilizes back-out parking into
Gulf to Bay Boulevard and Highland Avenue. This type of parking
for retail use is a traffic hazard and does not conform to the
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requirements of the City of Clearwater Land Development Code (the
Code), but the property enjoys the benefit a having its retail
use "grandfathered" under the Code because the prior owner also
used the property and parking for retail sales at the time the
Code was adopted.
3. Gulf to Bay Boulevard is a busy and fairly high
speed traffic artery. Highland Avenue also is a busy street.
They meet at an acute angle with the Appellant's property inside
the angle. Gulf to Bay Boulevard and Court street, also a busy
and fairly high speed traffic artery, meet at an acute angle just
across the street from the Appellant's property, further
complicating the traffic pattern in the vicinity of the
Appellant's property.
4. The Appellant filed its application for a four
parking space variance to allow him to convert 877.5. square feet
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of storage space in his building on the property to retail use.
The Appellant can make reasonable use of his property without the
additional retail space. The Appellant's primary purposes in
increasing retail space are to directly increase revenue and
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profit and to make the retail displays in his store more
attractive and more spacious, in large part to prevent
shoplifting and thereby indirectly increase revenues and profit.
5. As now planned, unless advertised, the existance of
additional retail space in the store would not be readily
apparent to passers by not already familiar with the store.
Nonetheless, the Appellant did not prove that the additional
retail use will not lead eventually to additional use of the
existing back-out parking on Gulf to Bay Boulevard and Highland
Avenue. Even if the retail space were expanded as planned, and
not advertised, the expansion eventually could lead to an
increase in retail business, one of the Appellant's primary long
term purposes.
CONCLUSIONS OF LAW
1. The standards for approval of an application for a
conditional use permit are set out in section 137.012(d) of the
city of Clearwater Land Development Code (the' Code), which
provides in pertinent part:
(d) Standards for approval. A variance
shall not be granted by the (Code] adjustment
board (the Board] unless the application and
evidence presented clearly support the
following conclusions:
(1) The variance requested arises from a
condition which is [not] created by an action
or actions of the property owner, predecessor
in title, or the applicant. ... .,
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(2) The particular physical surroundings,
shape or topographical conditions of the
property involved and the strict application
of the provisions of this development code
would result in an unnecessary hardship upon
the applicant.
(3) The variance is the minimum necessary
to overcome the unnecessary hardship referred
to in preceding recital "21f for the purpose
of making reasonable use of the land.
(4) The request for a variance is not
based primarily upon the desire of the
applicant to secure a greater financial
return from the property.
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(6) The granting of the variance will not
. . . substantially increase the congestion
in the public streets, increase the danger of
fire [or] endanger the public safety in any
way . . ..
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(7) The variance desired will not
adversely affect the public health, safety,
order, convenience, or general welfare of the
community.
(8) The granting of the variance desired
will not violate the general spirit and
intent of this development code.
2. Appeals from decisions of the Board are governed by
section 137.013 of the Code, which provides in pertinent part:
(a) Purpose. It is the purpose of this
section to provide an administrative process
for appealing decisions rendered on variances
and conditional uses by the development code
adjustment board and the planning and zoning
board respectively, prior to any available
recourse in a court of law. The function of
the hearing officer shall be to serve as the
second step of a two-step administrative
process relating to variances and conditional
Uses.
. ". ~ * * *
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(e) conduct of the hearinq. Conduct of
the hearing before the hearing officer shall
be as follows.
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(4) The hearing officer shall have the
authority to determine the applicability
and relevance of all materials, exhibits
and testimony and to exclude irrelevant,
immaterial or repetitious matter.
(5) The hearing officer is authorized to
administer oaths to witnesses.
(6) A reasonable amount of cross-examination
of witnesses shall be permitted at the
discretion of the hearing officer.
*
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(f) Decision. The decision of the
hearing officer shall be based upon the
following criteria and rendered as follows:
(1) The hearing officer shall review
the record and testimony presented
at the hearing before the board and
at the hearing officer relative to
the guidelines for consider~tion of
conditional uses or variances as
contained in sections 137.011 or
137.012, respectively. Although
additional evidence may be brought
before the hearing officer, the
hearing shall not be deemed a
"hearing de novo," and the record
before the board shall be
incorporated into the record before
the hearing officer, supplemented
by such additional evidence as may
be brought before the hearing
officer.
(2) The hearing officer shall be guided
by the city comprehensive plan,
relevant portions of the city Code
of Ordinances and established case
law.
(3)
The burden shall be upon the
appellant to show that the decision
of the board cannot be sustained by
the evidence before the board and
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before the hearing officer, or tha~
the decision of the board departs
from the essential requirements of
law.
The hearing officer's determination
shall include appropriate findings
of fact, conclusions of law and
decision in the matter of the
appeal. The hearing officer may
affirm or reverse the decision of
the board, and may impose such
reasonable conditions as the board
may have imposed.
These provisions appear to provide for a hybrid proceeding that is
(4)
an appellate review on the one hand, in the sense that the issue
is whether the evidence sustains the board's decision, and a de
novo proceeding on the other hand, in the sense that additional
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evidence can be adduced at the appeal hearing. In other words,
whether the Board's decision is sustainable under the pertinent
law is tested not only against the evidence presente~ before it
but also against the evidence presented before the Hearing
Officer.
3. It is concluded that the evidence sustains the
Board's decision that the application and evidence presented do
not clearly support the conclusion that the standards for
approval set out in Section 137.012(d) of the Code have been met.
4. The application and evidence presented do not
clearly support the conclusion that the variance requested arises
from a condition which is not created by the Appellant's action
or actions. To the contrary, the application and evidence are
clear that the variance requested arises from the Appellant's
desire to increase the retail use of his property.
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5. The application and evidence presented do not
clearly support the conclusion that the strict application of the
provisions of the Code would result in an unnecess~ry hardship
upon the Appellant. Refusing to allow the Appellant to increase
his retail space in an effort to prevent the increased use of
already non-conforming parking at a hazardous intersection is- not
an unnecessary hardship.
6. The application and evidence presented do not
clearly support the conclusion that the variance is the minimum
necessary to overcome any hardship. The Appellant can make
reasonable use of his land without the additional retail space.
7. The application and evidence presented do not
clearly support the conclusion that the request for a variance is
not based primarily upon the desire of the Appellant to secure a
greater financial return from the property. If not for the
primary purpose of making more money directly from more retail
business, the Appellant's primary purpose is to make more money
indirectly by reducing shoplifting by enlarging the retail area.
8. The application and evidence presented do not
clearly support the conclusion that the variance will not
substantially increase the congestion in the public streets,
increase the danger of fire or endanger the public safety in any
way. Likewise, the application and evidence presented do not
clearly support the conclusion that the variance will not
adversely affect the public health, safety, order, convenience,
or general welfare of the community. The Appellant did not prove
that the additional retail use will not lead to additional use of
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the existing back-out parking on Gulf to Bay Boulevard and
Highland Avenue which could have those negative results.
9. The application and evidence presented do not
clearly support the conclusion that the variance will not violate
the general spirit and intent of this development code. The
back-out parking already is a non-conforming use that was
qrandfathered under the Code. Granting the variance would
exacerbate this non-conforming use in violation of the spirit and
intent of the Code.
DISPOSITION
Based on the foregoing Findings of Fact and Conclusions
of Law, it is
ORDERED:
I:)
The appeal of Richard P. Levy, d/b/a T-Shirt Factory,
is denied.
/I
DONE MD ORDERED this 7 - day of January, 1992, in
Tallahassee, Florida.
NeE J
aring Offi
vision of Bministrative Hearings
he OeSoto Building
1230 Apalachee Parkway
Tallahassee, Florida 32399-1550
(904) 488-9675
Filed with the Clerk of the
Division of Adm~~qtrative
Hearings this '/~ day of
January, 1992.
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COPIES FURNISHED:
'Daniel J. Grieco, II, Esquire
19139 Gulf Boulevard
Indian Shores', Florida 34635
Miles A. Lance, Esquire
Assistant city Attorney
City'of Clearwater
Post Office Box 4748
Clearwater, Florida 34618-4748
Cynthia Goudeau
City Clerk
City of Clearwater
Post' Office Box 4748
Clearwater, Florida 34618~4748
Final Order, Case No. 91-5218
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M E M 0 R A " 0 U M
FROM:
RE: '
DATE:
The Honor-able Mayor and Members of the City Commission
Miles A. Lance, Assistant City Attorney ~~~
Richard P. Levy d/b/a T-Shirt Factory vs. City
August 20, 1992
TO:
The Development Code Adjustment Board originally denied Mr. Levy's request for
a variance for four parking spaces to permit conversion of storage area to retail
space. Mr. Levy appea 1 ed the dec1 s ion to the DOAH wh i ch uphe 1 d the Board 's
decision. Mr. Levy then filed a Petition for Writ of Certiorari with the Circuit
Court requesting reversal of that decision. Today we received Judge Harlan's
Order denying the Petition for Writ of Certiorari and upholding the City's
original decision to deny the variance request.
If there are any questions, please advise.
MAL: 1 n
ene.
t:t
cc: Kathy Rice
leo Schrader
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~ AUG 2 5 1992 ~
CITY CLERK OEPT.
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