FORWARD TO 2001 - A VISION AND STRATEGY FOR CLEARWATER BEACH / CLEARWATER BEACH BLUE RIBBON TASK FORCEClearwater Beach Blue Ribbon Task Force
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FORWARD TO 2001
A Vision
and Strategy
for
CLEARWATER BEACH
""Vision is the art of
seeing things in visible. "
Jonathan Swift
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Honorable Rita Garvey and Commissioners
City of Clearwater
112 S. Osceola Avenue
Clewarwater Fl. 34616
Dear Commissioners:
February 18, 1991
Eight months ago the Clearwater Blue Ribbon Task Force appointed by you began its work with
a sense of pride in our community and desire to contribute to its maintenance as a wholesome, family-
oriented residential area and tourist center. Today with an even greater sense of satisfaction we are
pleased to present to you this report of our findings and recommendations.
Our satisfaction comes from several sources:
• We believe we have prepared a realistic set of suggestions which address the most likely
scenario we can anticipate for the next ten years
• We can honestly say we have been led by our understanding of the wishes of both residents
and business persons alike who made known their views to us
• We have found the experience to be an exhilirating one -- one in which individual Task
Force members respected the various views and preferences of each other in a spirit of
harmony and concern for the common good
We have sought to present a vision of Clearwater Beach which is a natural evolution of its past tradition
and present beauty. We do not recommend radical changes from what has been a true place of
enchantment for many people for many years. Rather, we underscore the need for preserving its
beauty, for protecting it from possible decay, for taking advantatge of its natural resources.
We have tried to make this a comprehensive report, addressing each issue in the context of the others,
and a strategic report, focusing on a crucial few issues. Our process has been one of consensus, so
we are all in accord with what we now forward to you.
We are grateful for the free hand you have given us in our study of these issues. We would like to
thank Mr. Jim Polatty and his staff in the city's Planning and Development Department, especially Ms
Lavonne Newcomer who has assisted us so well as our secretary, and other staff persons as well.
We now entrust the fruits of our labor to your judgment and offer to be of whatever assistance might be
appropriate and helpful in the implementation of our recommendations and eventual realization of our
vision which we hope you will make yours.
Sitr', y ys,
/
Arthur X. Deegan II, PhD
Chairman
Clearwater Beach Blue Ribbon Task Force
FORWARD TO 2001
A Vision and Strategy for
CLEARWATER BEACH
TABLE OF CONTENTS
Section
I - INTRODUCTION AND EXECUTIVE SUMMARY 1
11- ASSESSMENT OF CURRENT SITUATION 4
Creation and Mission 4
Environmental Analysis 6
The Economy 6
Demographics 8
Transportation and Technology 1 1
Legal and Administrative Regulations 13
Travel and Tourism 15
Internal Assessment 1 9
Strengths 1 9
Weaknesses 21
Opportunities 22
Threats/Obstacles 23
Surveys of Residents and Commercial Establishments 24
Major Issues 25
ANALYSIS OF MAJOR ISSUES 27
Issue I - Beautification and Theme 27
Issue II - Transportation and Traffic 32
Traffic Flow and Configuration 32
Parking Opportunities 36
Mass Transportation 39
Cruising and Noise Control 41
Issue III - Pollution and the Environment 45
Water Quality 45
Trash 52
Issue IV - Tourism 55
Issue V - Collaboration with Downtown 61
Issue VI - Zoning and Building Restrictions 65
Development for the Small Motel Operator 65
FEMA Development Standards 68
Signs 71
Alcoholic Beverage Licenses 73
IV - RECOMMENDATIONS AND FINANCIAL IMPLICATIONS 76
Summary of Items Requiring Expenditures and Possible
Sources of Funds 84
APPENDICES 87
1 Clearwater Beach Blase GRlblbon Task Force
LIST OF APPENDICES
Appendix
A - Clearwater Beach Resident Survey, August 1990
B - Clearwater Beach Commercial Siurvey, June 1990
C - Guidelines for Location of Newspaper Dispensers
D - Architect's Rendering of Mandalay Front Elevations
E - Architect's Streetscape Planter Sketch
F - Architect's Public Restrooms Sketch
G - Proposed Changes in Auto Traffic
H - Police Survey of Cruising Problem in Other Cities
I - Proposed Eastshore Area Redevelopment Plan
J - Architect's Pavilion Sketch
K - Community Redevelopment Agencies (CRA)
Paae
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94
99
101
102
103
104
105
107
108
109
Clearwater Beach Blue Ribbon Task (Force
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TASK FORCE MEMBERS
Arthur X. Deegan II, PhD, Chairman
891 Island Way
Clearwater Fl. 34630
Appointed by a City Commissioner
David Little (2)
1734 Case Jones Ct.
Clearwater Fl. 34625
Appointed by a City Commissioner
John Doran, CPA (1)
662 Mandalay. Ave.
Clearwater Fl. 34630
Appointed by Clearwater Beach Association
Stephen R. Fowler (1) (2) (5)
1421 Court St., Suite D
Clearwater Fl. 34616
Appointed by Chamber of Commerce
Otto Gans (2)
868 S. Bayway Blvd., Apt #313
Clearwater Fl. 34630
Appointed by a City Commissioner
Anne McKay Garris (6)
38 Acacia St.
Clearwater Fl. 34630
Appointed by a City Comissioner
Phillip Henderson (5)
25 Causeway Blvd.
Clearwater Fl. 34630
Appointed by a City Commissioner
John Homer (6)
767 Bay Esplanade
Clearwater Fl. 34630
Appointed by a City Commissioner
Jay F. Keyes (3)
100 Devon Dr
Clearwater Fl. 34630
Appointed by a City Commissioner
Lavonne Newcomer, Secretary
City Planning Department
(1) Beautification Subcommittee
(2) Traffic/Transportation Subcommittee
(3) Pollution/Environment Subcommittee
(4) Tourism/Commerce Subcommittee
(5) Cooperation with Downtown Subcommittee
(6) Land Use/Zoning Subcommittee
Major Martin (3 )
2384 Stag Run Blvd.
Clearwater Fl. 34625
Appointed by a City Commissioner
Gordon McDougall (1)
815 Bruce Ave
Clearwater Fl. 34630
Appointed by a City Commissioner
Kenneth G. Rosenow (2)
421 Gulfview Blvd.
Clearwater Fl. 34630
Appointed by Clearwater Beach
(Resort) Motel Association
Don Seaton (4)
445 Hamden Dr.
Clearwater Fl. 34630
Appointed by Clearwater
Innkeepers Association
Julie Tiernan (4)
351 Gulfview Blvd. S.
Clearwater Fl. 34630
Walter Wellborn, Jr., M.D. (6)
Vice Chairman
150 Devon Drive
Appointed by a City Commissioner
John Blakely (2)
Attorney-at-Law; Volunteer
Rev. Herbert Freitag (3)
Chapel by the Sea; Volunteer
Walter Klages, Ph.D. (4)
Klages and Associates, Inc; volunteer
Anna Stefan (1)
Creative Resource Group, Inc.
Volunteer
' Clearwater Beach (Blue Ribbon Task Force
I. INTRODUCTION AND EXECUTIVE SUMMARY
This document sketches for Clearwater Beach both a vision and a series of
strategies by which the residents and commercial establishments on the Beach can en-
sure that this "one small place of enchantment" will protect its charm and attractive-
ness for visitors and locals alike. It presents a, vision of what the Beach can look like in
the year 2001, and recommendations to the City Commission for making that vision a
reality. It is not simply a response to the problems identified for review, nor the
vacuous hopes of unrealistic day-dreamers. It is a studied challenge to all elected
officials, professional staff, and volunteer organizations to cooperate with those who live
and work on the Beach to maintain the sparkle of this jewel in the crown of the City of
Clearwater.
Using a strategic planning process common to not-for-profit groups, the fifteen
members of the Clearwater Beach Blue Ribbon Task Force appointed by the City Com-
missioners undertook the assignment of developing this plan for the further development
of Clearwater Beach. The plan is both strategic and comprehensive. That is, it deals only
with high priority issues of major import for the long term good of the area; and it is of
a single fabric: all recommendations complementing each other. Finally, a consensus
approach was sought, so that conclusions and recommendations are more than the result
of a majority vote: they are the common judgment of the entire group.
Findings
Analysis of trends and assumptions about er,.;ronmental factors likely to affect
life and work on the Beach in 2001 pointed to low growth, rising costs, strict building
regulation, and the need for curbing vehicular traffic and attracting increased numbers
of visitors to feed the tourist industry.
An assessment of internal strengths and weaknesses identified dangers to the
positive image of cleanliness and friendliness, of warmth and relaxation from traffic
Clearwater Beach Mus Ribbon Task Force 1
congestion, unbridled cruising and.associated noise and from worsening pollution of
surrounding waters.
Checking first reactions of task force members against responses to surveys of
both residents and business persons on the Beach resulted in the identification of six
major issues in need of resolution. These dealt with:
1) the need for a theme and architectural design particular to Clearwater Beach
2) problems of traffic congestion, cruising, parking and mass transportation
3) pollution of the Bay and environmental concerns
4) tourism as the number one industry supporting the Beach
5) the need for collaboration with downtown development efforts
6) land use, planning, building and development code restrictions
Recommendations
Analysis of each of the major issues resulted in specific recommendations, the
most important of which are as follows:
Re beautification and a theme:
1. Adopt 'one small place of enchantment' and "tropical seascape"
2. Change the Land Development Code to encourage redevelopment to mirror the theme
3. Approve a Streetscape plan, along with landscaping of parking lots
Re transportation:
4. Increase parking fees and change more lots from meters to attendant parking
5. Create resort zones with restrictions for autos, and divert traffic by one-way streets
6. Provide tram service from a mainland terminal to the Beach & increase Jolly Trolley
7. Enact a cruising control ordinance
8. Pursue the opening of Dunedin Pass
9. Control pollution from Stevenson Creek and other stormwater runoff
Clearwater Beach Mue Ribbon Task Force 2
10. Construct a culvert system under Memorial Causeway to cause flushing action
11. Redevelop the Eastshore area into an entertainment/shopping/eating complex
12. Provide a more aesthetic public pavilion and grassy picnic area around Pier 60
Re Collaboration with Downtown:
13. Build a tram terminal downtown
14. Continue streetscape and lighting from downtown to the Beach
15. Appoint a Beach Advisory Board to promote dialogue with all parties
Re Zoning and Building Restrictions:
16. Make certain changes in the LDC to permit small motels to upgrade and expand
17. Create Beach alcoholic beverage ordinance district and appoint committee
18. Appoint Beach sign committee to study need for special regulations
19. Get "cumulative" rule taken off both state and city building regulations
Financial Implications
Funds must be obtained to cover the cost of bringing public buildings, sidewalks,
¦ lighting and associated landscaping into conformity with the recommended architectural
and ambience theme. There would also be construction costs for recommended Pier 60
and public pavilion improvements, as well as costs of a tram from. the mainland and
¦ increased Jolly Trolley services. These could be offset by revenue received from public
events inthe Pier 60 area, from ads in the Jolly Trolley, from increased Beach parking
¦ fees, and from the current surplus in the Parking Fund. Signage and traffic control costs
would be offset by reduction in the present cost of monitoring traffic congestion.
¦ Stormwater runoff control and the recommended culvert system under the Causeway
¦ could be expensed to the new stormwater control fees recently established.
Additional monies for specific ideas should be sought from Tourist Development
¦ Funds, Penny for Pinellas revenue, PSTA investment and/or private enterprise.
¦ Clearwater [Beach O us R bbon Task Force 3
II. ASSESSMENT OF CURRENT SITUATION
CREATION AND MISSION
On February 12, 1990, Commissioners of the City of Clearwater established a
mission statement and overall goal for a Clearwater Beach Blue Ribbon Task Force, as
follows:
"Mission Statement
Develop a plan which will further enhance and maintain Clearwater Beach as a
desirable family-oriented resort, recreation and residential community.
Overall Goal
Promote Clearwater Beach as a desirable, family-oriented resort destination,
community recreation and residential location."
At the same time, the Commission determined this would be "a 15 member board
with five members being representatives of 1) Clearwater Beach Association, 2) Clear-
water Innkeeper's Association, 3) Chamber of Commerce, 4) Clearwater Beach (Resort)
Motel Association, and 5) Clearwater Beach Merchants' Association."
On April 16, 1990, the City Commission reconfirmed that the membership of the
Task Force should be composed of the above representatives "and ten members being
appointed by each Commissioner naming two individuals, for a total membership of the
main task force set at 15 members." Additional persons could be appointed by the Task
Force to serve on sub-committees as needed for specific topics.
By June 12, 1990, the last appointee had been made and the first meeting of the
Task Force took place on June 18th. At that organizational meeting, attended by the
Mayor and City Manager, January 1, 1991 was suggested by the Honorable Rita Garvey
as a tentative target date for the completion of the work of the Task Force.
The Task Force decided that the interests of the Beach community and the City of
Clearwater as a whole would best be served by working toward a comprehensive plan
for Clearwater Beach, rather than attempting to deal with individual issues in isolation
(Clearwater (Beach Blue Ribbon Task Force 4
from each other. A consensus mode was sought, and a strategic planning process
was adopted as a model. A ten. year time horizon was chosen. Clearwater Beach was taken
as including only the City's Planning District 1IA, which excludes Sand Key and Island
Estates.
VISION STATEMENT
The Task Force began by describing its vision of the Beach area of tomorrow:
Clearwater Beach, a residential and resort area on Florida's Gulf Coast in
which residents and business owners cooperate in meeting their diverse
interests, is easy to find by major highways, providing both the tropical
climate of a barrier island bounded by parklands, and the proximity of
the metropolitan Tampa Bay area. It is at once:
• a friendly and wholesome community committed to preserve and
protect the unique characteristics of this island setting and to
enhance the quality of life here,
• a family-oriented playground of sun and sand and water for the
enjoyment of residents and visitors alike, and
• a montage of streets, landscaping and architectural style that
' befits its image of sparkling cleanliness.
This is a vision of a unique, appealing and attractive, family-oriented community
serving the residential and recreational needs of local and mainland citizens as well as
in-state, out-of-state and foreign visitors who seek a wholesome, leisurely
environment. As an island with only two means of vehicular access, the special
' attraction is a large, wide, white sandy beach owned by the public. The shallow, warm,
' relatively calm surrounding waters allow year-round swimming, boating and other
water-related activity. Nearby undeveloped islands, some protected as state parks, offer
' additional natural, seaside beauty.
' Clearwater Beach Bius Ribbon Task (f=orce 5
ENVIRONMENTAL ANALYSIS
Recognizing the importance of basing meaningful discussion on factual informa-
tion, the Task Force researched current trends and ten year forecasts in these six major
areas thought likely to affect the quality of life on Clearwater Beach: 1) the economy,
2) demographics, 3) transportation and technology, 4) legal and administrative re-
gulations, 5) commercial development and 6) travel and tourism.
THE ECONOMY
Figure II-1 presents selected data from a ten year forecast for the Tampa/St.
Petersburg/Clearwater metropolitan statistical area by the University of Florida's
Bureau of Economic and Business Research. These figures, along with a review of other
national financial periodicals and journals, suggest the following trends. ,
On a national level, inflation over the next ten years is expected to center around
the six to seven percent figure, with some fluctuations over and under that level. The
consensus view now is that a recession began in the fourth quarter of 1990, but there is '
a great deal less certainty about its probable length -- much depending on resolution of
the Mid-east crisis. The cost of capital is estimated to be eleven (11) percent, more or ,
less, but could be more due to present and impending "bail outs" of entire segments of the
financial sector. ,
Closer to home, the City is faced with the costs of concurrency requirements and
the likelihood of near term increases in millage rates in the light of being almost com-
pletely built out, with little room for growth except through redevelopment (which en- '
tails its own costs).
On the Beach, residential property owners can anticipate continuing increases in '
both construction/replacement costs and taxes.
• With next to no vacant lots, new construction will come mostly from
redevelopment. Improvements will face escalating labor and material costs. '
Clearwater Beach [Blase Ribbon Task Force 6 ,
FIGURE II-1
Forecast for Tampa/St. Petersburg Metropolitan Statistical Area
1990 2000 Increase
M ($) (%)
Total personal income (millions) 38,604 88,059 128
Real personal income (millions) 28,257 38,513 36
Per capita income (thousands) 18 35 91
Real per capita income (thousands) 13 15 14
Labor income (millions) 22,021 51,302 133
Transfer payments (millions) 6,874 15,949 132
Div/lnt/Rents (millions) 9,709 20,809 114
(000 jobs) (000 jobs)
Retail trade 196 248 27
Hotels 18 22 19
Business Services 62 86 39
Health Services 70 97 39
Other Services 105 151 44
Government 112 135 21
Source: University of Florida Bureau of Economic and Business Research
Under current State law, the Federal Energy Management Act (FEMA) regulations
discourage home improvements.
• In addition to real increase in value over time, assessed values will escalate due
to appraisals based on comparables in the area, rapidly increasing replacement
costs, the high amount of renovation activity, and the constant budgetary needs
Clearwater Beach Blase R11bbon Task (Force 7
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of the City and County.
Beach businesses will fare no better, because beach property is limited and in
high demand, because of the high cost of land and improvements, and because of code
requirements.
The implications of this economic forecast are:
a) Homeowners and businesses alike will find it increasingly more costly to
maintain or upgrade their property.
b) Without relief from stringent FEMA code requirements, only the wealthy will
be able to comply with requirements of redevelopment.
c) Retailers might consider developing a distinctive shopping environment
(comparable to a St. Armand's Circle) but whether the character of the
local market will sustain that approach is unknown.
d) Some family motel owners, not as able to cope with such escalating costs as
are the bigger hotels/chains, will be forced to alternative uses of their
property.
"The 1990's won't be much like the 1980's. In fact, the 90's will be a transition
period. Florida's growth rate will be slowing down for a long time to come. (One
of the major causes - the transportation crisis.) Gone is the period when the
annual population gain tops 3%. The annual gains will be between 2% and 2.5%
but the composition of these new arrivals will be different. The 80's was an era
of the 25 to 44 year old's coming to Florida. In the 90's the biggest group will be
older. It is projected that the population of those 25-34 actually will decline
9% while the 35-64 group will increase 44% and the over 85 group will
increase by nearly 80%." 1
As can be seen in Figure II-2, the slowdown in overall population percentage
increases for the State becomes even more dramatic for the County, the City and the
Beach. In absolute numbers, the County can expect about the same 130,000 additional
1 Florida Trend, Dec. 1989
C sarwater Beach Blue Mbbon 'ask Force $
Figure II-2
Population Projections, City of Clearwater, 1987- 2001 ,
1 2 3 4
Year
Permanent
Decennial
Peak
Resident ,
Population Growth Rate Seasonal Population
Population (1) + (3)
1987 9
12 '
9,
4 24.90 19,972 119,096
1988 100,889 22.80 20,088 120,977
1
1989
102,612
20.80
20,222
122,834 .
1990 104,296 21.90 20,353 124,649 '
1991 105,940 20.70 20,481 126,421
1992 107,546 19.20 20,606 128,152
1993 109,114 18.80 20,728 129,842
1994 1 1 0,645 18.10 20,847 1 31 ,492
1995 112,141 17.60 20,964 133,105 ,
1996 113,602 16.10 21,077 134,679
1997 1 1 5,028 16.00 21 ,1 88 136,216
1998 1 1 6,422 15.40 21,297 137,719
,
1999 1 1 7,783 14.80 21,403 1 39,1 86
2000 119,111 14.20 21,506 140,617
'
2001 120,409 13.70 21,607 142,016
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Source: Clearwater Department of Planning and Urban Development
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persons over the next ten years as it experienced over the past ten years, while the '
City will see only another 16,000 persons in the same ten years and the Beach is
expected to grow by only 129 perso ns compared with 207 in the past ten years. ,
CG sarwater Beach Mue Mbbon Task Force 9
'
As for the make up of that population, single parent householders and the elderly
will continue to increase. Where there used to be 7 persons of working age for each
retiree, that number is now closer to 3 to 1 and declining. The number of Hispanics is
steadily rising and forming a distinct sub-group.
Peak seasonal population (March and April) is estimated to grow by 5.6% in the
next ten years. This assumes:
• the number of hotel and motel units remains fairly stable, [i.e., only 200
more units]
• seasonal housing units will grow at the same rate as other housing units
• occupancy rates will be about 80% in peak time
• party size will average 2.6 persons
These trends have the following possible implications for the Beach
community:
a) Transportation and other infrastructure needs will not be heightened very
much by the Beach resident population (permanent or seasonal) unless
projection assumptions prove invalid.
b) If, and as, trends in the changing makeup of the resident population continue,
a corresponding change in life style may be anticipated, which may or
may not present assimilation problems.
c) Growth in overall prosperity, if it is to come, will not be the result of sheer
increase in numbers.
d) The tax base will be spread among only a small number of more people.
e) As the number of elderly (retired) increases, more support services for
them will be needed; more working age persons will have to be imported
to provide those services.
Clearwater Beach B us Rfton Task force 10
TRANSPORTATION AND TECHNOLOGY
Vehicle traffic over Memorial Causeway to the Beach reaches a peak of 50,000
per day mostly on weekends. The long term expectation is for more 50,000 car days,
rather than higher numbers. Another 7-8,000 cars cross the Sand Key bridge daily.
Beach parking lots are full by 10:00 am on weekends during peak season, with 7
out of 10 plates showing out-of-state registration.
The average daily number of cars crossing the Causeway from Island Estates to
Maas Brothers is 36,000.
A state-of-the-art computerized traffic light system is being considered to help
the stacking problem. It could sense stacking and adjust the lights based on immediate
demand, rather than the current program of changing every 15 minutes.
The County expects State Road 60 to be widened to 6 lanes by the year 2000. The
only plan envisioned by the County related to Beach traffic concerns more buses. The
joint fixed rail system being studied will be compatible with the Miami-Orlando system
and will take 20 years to be operational. Population density does not support a
progressive mass transit system, such as Atlanta's.
A Jolly Trolley costs $80-120,000. Two more are on order, and one North
Beach route and one South Beach route are being considered.
The County restricts weight of trucks and hours of commercial traffic by
residential areas, but is not expected to restrict the new 38 foot long beer trucks which
are expected to operate on the Beach soon.
The City Traffic Department, in considering alternative methods of transporta-
tion, estimates that ?a monorail system could take ten years to build, while a tram system
could be operational in one year.
Serious thought has also been given to plans for the integration of transporta-
tion improvements with design changes in land use on the beach.
Clearwater Beach Blue Ribbon Task force 11
Responsibility for traffic planning is not clear. The Traffic Dept believes
Planning and Development to be responsible for future plans, while Traffic keeps the
' existing system up-to-date. The Police Dept allegedly does current traffic planning for
the Beach.
' The County supplies Clearwater with 10-12 million gallons of water per day;
the City now has some 12 of its own wells, with 3 more due in one year. In five years,
both will need new sources of water. Experimentation with desalinization is still in
progress. Recycling of water is also getting some small use.
By state law, the County handles landfill and garbage disposal. The average
person in the County generates 7 pounds per day. Recycling and incineration are
expected to take care of all needs in the foreseeable future.
These facts and expectations have the following possible implications for the
Beach:
a) Building a third bridge to the Beach would be counter-productive, as there
would be no more room to put additional vehicles.
b) Even the new traffic light system will be rendered helpless by scheduled
bridge openings every 20 or 30 minutes (for as long as ten minutes in duration).
c) Further congestion and loss of parking spaces will come about from larger
beer delivery trucks trying to fit in current loading zones.
d) Lack of clarity on responsibility for Beach traffic planning will continue to
cause delays in solving the problem.
e) Disputes over the future of State Road 60 will also cause delays in addressing
the overall traffic problem. .
f) Unless redesign of public structures, right-of-way and landscaping is done
jointly with planning for transportation improvements, the problem will only be
exacerbated.
Clearwater [Beach Mue Mbbon Task Force 12
LEGAL AND ADMINISTRATIVE REGULATIONS
Perhaps the most significant legal or administrative regulation of concern to the
Beach at the present time is the current lack of agreement between federal flood plain
construction regulations and restrictions by the State. The latter's more stringent
requirement of limiting building improvements on barrier islands to no more than 50%
of value during the life time of the building is contrary to FEMA's policy for all flood
prone areas, which limits improvements to no more than 50% of the value each year.
Another worrisome expectation is for a continuation of the current rising trend
in the number and amount of variance fees.
A third reality boding ill for the future is the present version of alcohol and
beverage laws which will permit additional drinking establishments.
Next, it is likely that "double piping" for drinking water will become a reality.
In keeping with the population projections referred to earlier, it is quite pos-
sible that the City will put a cap on population density on the Beach. Zoning regulations
in effect already amount to the same thing.
Architectural guidelines of some sort for the City are also a good possibility..
A final event that is raised periodically as a possibility, but which is not foreseen
in this study as likely, is the de-annexation of Clearwater Beach by a vote of the people.
The potential implications of this legal/regulatory outlook are:
a) Rapid and serious deterioration of single family residences and small motels
because of the State building improvement limitations, coupled with limitations on the
quality of structural development all along the Beach.
b) The type of business establishments which will proliferate may bring in a
"less desirable" type of visitor.
c) Additional fees, regulations and attendant bureaucracy will make it more
expensive and more difficult for the homeowner and small business to survive.
Clearwater Beach Blase Ribbon Task Force 13
d) Without innovative ways to stimulate growth, a "no room at the Inn" message
will be sent to potential visitors or residents, which in turn could mean a greater
burden on present taxpayers.
COMMERCIAL DEVELOPMENT
At present there are 205 hotels/motels on the Islands (Clearwater Beach, Sand
Key and Island Estates). Of these, the greatest number are considered "small or family-
owned motels".
Most of the recent development, since the construction of the Holiday Inn
Surfside, has taken place on Sand Key.
The outlook for smaller motels is not encouraging. The number of rooms is not
increasing. Many family-owned motels have been converted to apartments or to other
types of businesses.
There are now 58 restaurants. Four of the "full line" restaurants are less than
five years old, as are four of the restaurants without alcohol.
There are 56 gift/souvenir shops, and 66 other retail or service businesses,
including 25 apparel shops and 26 "attractions". Most of the retail establishments are
of new construction. There is a steady trend of converting to condominiums in the
commercial area.
Five of the former six auto service stations have closed, leaving the Beach proper
entirely without this convenient type of service.
The following are some possible implications of these trends:
a) The next ten years could see the end of one of the traditional mainstays of life
on Clearwater Beach: namely, the family-owned motel.
b) The steady increase of condominium apartments and expenses involved in
converting older structures to this kind of high rent living quarters will change the
image of Clearwater Beach to one more like that of the atlantic Coast beach communities.
Clearwater Beach Blass Rfton Task Force 14
c) With fewer retail establishments and convenient services available on the
Beach, Beach residents will be forced to make more trips across the Causeway and/or to
move to the mainland, again changing the make-up of the Beach community.
TRAVEL & TOURISM
Important domestic travel trends include:
• Americans are taking shorter vacations each year (3-4 four day trips in place of one
or two week vacations), but Pinellas visitors spend 8.8 days
• Some 52% of vacationers make less than 500 miles roundtrip; about the same
percentage of visitors to Florida arrive by auto (increasing to 81% in the summer),
with 42% staying in hotels (of whom 87% make advance reservations); car rental is
also on the increase
• Beach destinations are becoming the most popular vacation sites for each summer
• AAA surveys show an average family of four spends about $173 for lodging and meals,
plus $25 for each 300 miles driven (an increase of 3.6% in one year), with Florida and
Orlando being the most popular destinations
• Nearly half of Pinellas County visitors are here for the first time; almost 3/4 having
visited other Florida areas during the same trip, more visitors making Orlando their
first stop; travel agents assisted 54.6% of all Suncoast visitors
Foreign travel trends include:
• Canada sends 5.5 million tourists to American annually, with the bulk of them coming
to Florida and spending an average of 14 days
• Florida's second source of tourists is Britain, but the trend is now down
• Japan is now second only to Canada as the source of foreign visitors to the U.S., and
they spend heavily, including purchase of real estate
• A big influx of European (especially German) visitors can be expected for many
reasons
(Clearwater Beach Mus Mbbon Task (Force 15
• Inbound foreign traffic can be expected to increase 7% a year, if present trends hold
Tourism in Florida is poorly supported by the State's budget, yet it contributes
greatly to sales tax, to jobs, to direct and indirect economic impact on the State and our
area. Moderate growth during the next few years is predicted by the Dept of Commerce.
Figure II-3 traces projected increases in Florida and Pinellas tourist numbers
FIGURE II-3
Florida Pinellas Tourist Projections, 1988-2001
Year Florida Pinellas Expenditures Per Person Jobs
Tourists Tourists ($ Billion) ($ Daily) ( # )
(million)
1988 36.97 3,625,543 1.77 54 61,803
1989 38.70 3,720,279 1.83 55 62,197
1990 40.18 - 3,816,006 1.Q8 61 62,818
1991. 41.97 3,916,248 1.94 67 63,447
1992 44.08 4,018,070 2.01 73 64,081
1993 46.06 4,122,540 2.07 79 64,722
1994 48.13 4,229,726 2.14 85 65,369
1995 50.30 4,339,699 2.21 91 66,023
1996 52.56 4,452,531 2.28 97 66,684
1997 54.93 4,568,297 2.35 103 67,350
1998 57.40 4,687,073 2.43 109 68,023
1999 59.98 4,808.,937 2.50 115 68,704
2000 62.68 4,933,969 2.58 121 69,391
2001 65.50 5,062,252 2,67 127 70,785
------
Source:
---- ------- --
Florida Department of Commerce
---- ----------------------
Vearwater Beach [BMus Ribbon Task Force 16
from 1990 to the target year 2001. In that period visitors to Florida will increase by
63% and to Pinellas by 33%; their spending will increase by 41%; jobs they will
create will grow by 13%; their daily spending will go up by 108%.
Despite this long term favorable outlook, there is a short term decline to be gotten
through first. According to the Wall Street Journal:
"Florida's $25.69 billion tourist trade is among the biggest and briskest in the
nation and serves as a barometer for tourism businesses elsewhere.... A recent
survey of travel agents by Temple, Barker & Sloane, Inc. shows 'a major
slowdown in leisure travel sales, and an acceleration in the general decline that
began last (third) quarter.' Hotels and motels ... can expect conditions to worsen,
according to a study by Laventhol & Horwath, a Philadelphia accounting firm....
For instance, the state has already observed a sharp decline over the past year in
the number of visitors from New England, which is currently in a deep recession.
... Hotels and resorts, feeling the pinch, are changing their marketing strategies.
... In the face of a gloomy domestic market, many in the state are betting heavily
that the state's already burgeoning international market will prove to be an ace
in the hole." 2
Figure II-4 indicates that while the average age of Pinellas visitors in 1989 was
47.5, there was almost the same total number of visitors in these age groups: 26-35,
36-45, 46-55, 56-65, 66 and over.
Figure II-4
Ages of Visitors to Pinellas County, 1989
Age # Tourists % of Total
Infant to 6 years 180,805 4.86
7-17 392,489 10.55
18-25 158,484 4.26
26-35 511,538 13.75
36-45 615,334 16.54
46-55 581,480 15.63
56-65 667,790 17.95
66 and over 6 01 ,1 9 9 16.16
Source: Pinellas County Tourist Development Council
2 Wall Street Journal, "Florida Hustles to Stave Off Tourism Slump", Nov. 21, 1990,
Page B1
Usarwater Beach Mus Gibbon Task (Force 17 1 -
Expectations and plans of others around us include:
• Tampa airport is building a sixth airside terminal with 15 gates already leased;
Russian planes will arrive in Miami in 2-3 years
• Disney plans a fourth theme park, 29 new attractions and 7 more hotels (4500 new
rooms) in the next ten years
• Orlando is enlarging its Convention Center; Miami is expanding its Seaquarium;
Daytona Beach has a massive beach revitalization effort; Tampa is proposing an
Aquarium
• A U.S. Astronaut Hall of Fame will be a new attraction in Central Florida
• Tampa will have the Super Bowl in 1991, and Florida is vying for the 1992 World
Cup Soccer
• Professional hockey and baseball will undoubtedly come to this area within ten years
• Clearwater Convention Center is proposed with 152,000 square feet capacity able to
attract 58 events over 145 days with total. attendance of 84,000 by its third year
Among the most significant implications of these forecasts are:
a) There will be a serious demand throughout the State of Florida for workers in
the hospitality industry.
b) The Disney and Busch attractions opening in France and the World's Fair and
Summer Olympics in Spain in 1992 should have only a temporary and minor impact on
visitors to Florida. Their local expansion should fuel Clearwater Beach tourism, since
half of our visitors spend their prior night in Orlando.
c) The meeting and convention business will be highly competitive.
d) The Tourist Development Council of Pinellas County's newly opened offices in
Germany and Holland should result in an increase in visitors through 1993 and 1996
respectively.
e) Without heavy promotion of the natural attractiveness of our sandy beach and
the possible identification and development of at least one major attraction on the Beach
(Cisalrwaiter Beach fBVue Ribbon Task (Force 18
to compete with other Florida destinations, Clearwater Beach will not keep its share of
the growing tourist traffic.
f) Without appropriate steps to improve traffic flow, availability of reasonable
living accommodations and comparable development of eating places and other expected
services, Clearwater Beach will not be able to attract its share of the increased number
of visitors to Florida and Pinellas County.
g) The slight increase in average age of Pinellas visitors should be taken into
consideration in determining "desirable"' new ventures on the Beach.
INTERNAL ASSESSMENT (S.W.O.T.S ANALYSIS)
An assessment of the current situation is provided by a review of the strengths,
weaknesses, opportunities and threats considered most likely to impact the ability to
live up to the Vision Statement above.
1) God's gift of sun, sand and water is considered the number one asset. The
spectacular view of the Gulf and the Bay, the picturesque sunsets, the opportunity for
safe boating and swimming, the warm temperature, the sugary white sandy beach which
grows larger with every tide, the overall recreational environment -- all this is what
continues to attract people to live in or visit "Sparkling Clearwater Beach". The
protection of this asset against pollution and other environmental damage, against the
possible ravages of nature (hurricanes and flooding), and against the thoughtlessness of
humans must be a first priority.
2) A second driving force is the location of the Beach. Easily accessible by
major highways, a short 22 miles from Tampa's International Airport, convenient to
Usarwater Beach Mus Ribbon Task (Force 19
population centers, centered amidst world-reknowned tourist attractions (Disney
World, Epcot Center, Busch Gardens, Ringling Museum, etc.), Clearwater Beach is an
attractive destination for long term and short term visitors alike.
3) Being an established tourist community is a third major strength. The
beauty of the area, the courtesy of the people, moderate prices and the avoidance of a
"concrete jungle" atmosphere have favorably impressed visitors and created the image of
a place you want to come back to again and again. Traffic control, especially in the
tourist season, is the only annoyance of any consequence.
4). Another important asset is an inventory of quality food and lodging
establishments, although a significant number of them are in need of upgrading.
5) A good balance between the residential community and commercial interests,
both in terms of geographical area and number of people, is a fifth strong point. There is
a concerned group, representative of both areas of interest, honestly seeking to be
mutually supportive in planning for the future.
6) A final major strength is the presence of the infrastructure necessary to take
care of all the Beach's growth potential. Water and sewer needs, waste disposal, drainage
requirements are all adequate for the foreseeable future. Only the road system can be
considered marginal.
7) Additional strengths include the following (in no order of priority):
a) a newly enunciated common goal: the preservation of a family-oriented environment
(though opinions differ about how to do this)
b) a spirit of cooperation from the current city staff
c) the friendliness of the community in general
d) the present building code which maintains-an open view of the water
e) a number of water and beach related sports and other activities (though more are
needed)
f) a base of power found in the economic value of Beach properties
(CUsarwater Beach Blase R bbon Trask Force 20
g) limited access (the two bridges) which provides some limit to the number of vehicles
able to come to the Beach, though the reverse side of this is limited egress and
traffic bottlenecks both coming and going
h) the beautifully landscaped causeway approach
i) a sense of being a small community with the advantages of being part of a large
metroplex (Tampa Bay)
WEAKNESSES
1) The greatest single drawback concerns traffic and transportation problems.
There are too many automobiles, too few parking spaces, too many young adults whose
behavior centers on cruising the streets and making noise, and no effective mass
transport system.
2) Close behind is zoning and regulatory environment. Inequitable building and
zoning codes, discriminatory flood control law interpretation and implementation, and
inadequate land use planning have led to human frustration and property depreciation
beyond what is normal.
3) A related third significant weakness is the need for more and improve
separate rules for the Beach area in light of its unique situation. These would cover
parking, zoning, land use, building renovation and development, alcohol usage and
licensing, and similar areas.
4) A final important weakness is the lack of year-round day and night time
activities to attract locals and tourists and to occupy young adults in their leisure.
5) Other weaknesses include:
a) a slight trend toward "tacky" retail facilities coming in
b) inadequate and inappropriate parking for business establishments
c) growing pollution of the Bay
d) escalating costs of redevelopment
CVearwater Beach MUS Ribbon Task force 21
e) a significant number of deteriorating structures (including some downtown)
f) lack of reinvestment in the Beach by the City of tax monies collected from the Beach
g) lack of community awareness of the importance of the tourist industry to the Beach
h) exploitation of the Beach resource by others in the metropolitan area, specifically by
the noise and trash they spread around carelessly
i) the repressive state and local tax system inhibiting investment in property and
business
j) poor public relations and identity in the marketplace, caused partially by political
overtones influencing promotion endeavors
k) the feeling of many Clearwater citizens that they cannot enjoy the Beach (due to
crowds, traffic, noise, etc.)
1) inadequate enforcement of present code regulations
OPPORTUNITIES
There are many resources/strategies which have not been adequately utilized in
building the Beach community of tomorrow.
1) Perhaps the most important of these is planned redevelopment. This could
include the creation of a special resort zoning district and/or city sponsored incentives
to attract development funds.
2) A second opportunity is to be found in a traffic/transportation study which
would examine traffic patterns, street usage, parking needs, jolly trolley use, the need
for mass transport, the impact of ferry service and the like.
3) An idea which could be borrowed from other areas where it has been suc-
cessful is the concept of creating a vacation theme to be carried throughout a landscaping
and beautification program, architecture for the core area, interior design and tourist
attractions.
4) A fourth similar opportunity lies in finding a major tourist attraction which
could be built on city-owned beach or parking area, along with more special events or
aearwatsr Leach Blue Ribbon Task Force 22
activities on the water or beach.
5) A final major opportunity concerns joint efforts at cooperative promotion
with the Downtown Development Board of Clearwater.
6) Other opportunities deserving attention include:
a) a mutually beneficial, cooperative promotion and reservation system for Beach
hotels/motels, after agreeing to minimum standards of cleanliness, etc.
b) a special taxing district to permit tax increment financing
c) a site for mid-size conventions
d) alternative uses for the Bay shores along the causeway and downtown
e) determining a unique niche in the tourist marketplace
THREATS/OBSTACLES
There are also a series of factors external to the Beach which loom on the horizon
as ever present impediments to achieving the stated vision.
1) The most significant of these is federal, state and local government
intervention, specifically in the form of restrictive codes, and the time delay in
implementing programs that do gain approval.
2) A second obstacle is self-interest on the part of those with diverse interests,
especially on the issue of "build a wall to keep everyone out" versus "open the gates and
let everyone in".
3) Competition from major attractions like Disney World and/or other resort
areas such as Sanibel & Captiva Islands is a third external threat.
4) Other always present, but not always controllable, threats include:
a) the economic cycle of prosperity-recession-prosperity
b) weather patterns and acts of God (hurricane)
c) the cost of capital for development efforts
d) liability concerns of owners of parcels or sponsors of events
CDearwater (Beach Mue Ribbon Task Force 23
SURVEYS OF RESIDENTS AND COMMERCIAL ESTABLISHMENTS
To check the objectivity of the above judgments regarding assets and deficiencies
' of the present situation, separate surveys were conducted of beach residents and
commercial establishments. Complete answers to both surveys will be found in
' Appendix A & B of this report. Selected responses indicating comparative answers are as
follows:
1. What life on the beach is all about:
' Residents: white sand, friendly, family-oriented, tropical, clean
Businesses: beautiful, white, sandy beach; cleanliness; friendliness
2. Biggest complaint:
Residents: cruising, noise, riff raff, traffic, hodge podge commercial area
Businesses: police traffic routing, parking, noise, large police presence
3. Resort area Clearwater Beach should be most like:
Residents: Itself; St Armand's Circle, Sanibel/Captiva
Businesses: Sanibel/Captiva, Longboat Key, St. Armand's Circle
4. Resort area Clearwater Beach should be least like:
' Residents: Daytona, Miami, Ft Lauderdale, Atlantic City
Businesses: Daytona, Miami, Atlantic City, Ft. Lauderdale
' S. Location for convention center:
Residents Businesses
' Downtown 45% 49%
Clearwater Beach 1% 31%
' Sand Key 10% 9%
None at all 45% 11 %
6. Location for a boardwalk:
' Residents Businesses
' Along shoreline 70% 29%
Along parking lot 16'% 36%
Street/boulevard 3% 36%
' None at all 70I% 33%
Usarwater Beach Mus Ribbon Task Force 24
7. Should there be a family-oriented attraction such as a Water Slide?
Yes 28% 64%
No 72% 36%
No answer 2%
8. Which would you favor regarding parking?
Residents Businesses
Convert beach to parking 3% 22%
Convert parking to beach 20% 20%
Neither of the above 77% 58%
9. Which of the following would you favor regarding mass transportation?
Residue Businesses
Mass transport direct to beach 20% )
Shuttles from downtown to beach 42% ) 68%
No mass transportation 40% 32%
10. Whom should the city parking lots serve first?
Residents Businesses
Tourists 10% 40%
Residents/locals 25% 33%
General public 60% 28%
No answer 5%
11. What are greatest needs to improve the Beach?
Residents: improved traffic, better store fronts/signs, landscaping/sidewalks
Businesses: improved traffic, landscaping, sidewalks, store fronts
• • ! • •
MAJOR ISSUES
In the light of all the above, certain issues stand out as needing resolution if the
stated vision is to become a reality. These are identified here and will be given
individual attention in Section III of this Plan.
(Clearwater [Beach Blue Ribbon Task Force 25
1) Theme
How can we coordinate landscaping, other beautification programs, street and
' sidewalk design, architecture of the core area and the general appearance of all public
property so as to create and maintain a single theme which will emphasize the image of
' sparkling Clearwater Beach?
2) Traffic and Transportation
' What can be done to alleviate motor traffic congestion, reduce the need for
driving one's auto to the Beach, improve availability of affordable public transport to
' and from both the residential and commercial areas of the Beach, provide for noise
' control, eliminate the cruising problem and provide only necessary police presence?
3) Environment/Pollution
How can pollution of the Bay be controlled, while safeguarding coastal wetlands,
respecting designated bird sanctuaries and protecting all aspects of our environment
from danger of spoliation or contamination?
4) Market Niche/Competition/Attractions
What should be the particular niche in the tourist/recreation industry which
Clearwater Beach should aim at? What unique attraction might be built here, in keeping
with the overall theme, that would appeal to that segment of the industry? What kind of
special events or activities should be sought by way of tourist development efforts? How
best can the Beach be promoted and to whom?
5) Joint Effort with Downtown
In what way can the Beach and the Downtown Development Board cooperate in
joint efforts at promotion and redevelopment?
6) Planning/Zoning/Land Use
What changes in land use planning, building and development codes, and the like,
would be an aid in promoting the stated vision for the Clearwater Beach of the future?
• . . 0 0
Qsarwater Beach Blue %bon Task Force 26
III. ANALYSIS OF MAJOR ISSUES
ISSUE ONE: HOW CAN WE COORDINATE LANDSCAPING, OTHER BEAUTIFICATION
PROGRAMS, STREET AND SIDEWALK DESIGN, ARCHITECTURE OF
THE CORE AREA AND THE GENERAL APPEARANCE OF ALL PUBLIC
PROPERTY SO AS TO CREATE AND MAINTAIN A SINGLE THEME
WHICH WILL EMPHASIZE THE IMAGE OF SPARKLING CLEARWATER
BEACH?
Commendable efforts have been made in the area of beautification and land-
scaping, both public and private, but significant opportunity remains for improvement
in the aesthetic appeal of Clearwater Beach. A proliferation of signs, public and private,
distracts and detracts, and the same situation has occurred with pay phones, vending
machines and trash receptacles. Some city parking lots have only peripheral landscap-
ing, and some have none at all. There are unimproved public lands which have little or
no landscaping. Many commercial properties could benefit from more (or even some)
landscaping.
There are 120 signs along Memorial Causeway leading to the beach, of almost
every conceivable size and shape. There are numerous examples of broken sidewalks,
benches in a state of disrepair, gaudy signage and ugly trash receptacles in prominent
view -- all contributing to steady deterioration of the visual appearance of the beach's
main thoroughfares. There are other examples of vending machines placed contrary to
the recommendations contained in city guidelines3 offered as a means of enhancing both
aesthetics and safety. (See Appendix C)
Several communities across the nation have newsrack regulations, some of which
have been challenged in the courts. The current state of the law, according to the City
31-etter from Director of Public Works dated 5/27/88 '
Clearwater [Beach Blue Rlbbon Task force 27 '
Attorney, is that courts generally find newsracks may be subject to reasonable time,
place and manner restrictions.
Although two relatively recent and major commercial development/redevelop-
ment efforts (Clearwater Beach Hotel and Sea Stone Resort) incorporate attractive
design suggestive of "old Florida", there is no THEME for Clearwater Beach. Examples
are to be found of many periods and styles, and some would suggest there are buildings
with no style at all. Both private and public contributions have been made to this
potpourri of design.
Florida does not have a word indicative of its architecture. Much of early Florida
architecture was developed by fishermen from Nantucket and North Carolina who
brought the design of those areas with them.
Modern Florida was built mainly by promoters and developers. Bound by no
traditions, they have created a framework for fantasy and illusion which overcomes
reality -- from the gossamer flamboyance of Disney World through the elegant
classicism inherited from the Mediterranean, and from the plantations of the antebellum
South to the sturdy, practical, simplicity of the fishing villages.
We believe that growth and pride would be enhanced if it were possible to offer a
theme for the total ambience of our clean, white, warm, sandy beach island and to
develop a name for a type of architecture which would identify an acceptable personality
for Clearwater Beach. The challenge is to build for the future without demolishing the
past: to encourage a common upbeat tone for the present that respects our memories.
A general development plan would encourage continuity of design for buildings,
streetscapes, signage and amenities, consistent with the theme. Design, colors and
architectural elements such as porches, roofs, balconies, shutters, trellises, and
wrought iron railings would suggest a feeling of traditional seaside Florida.
CD earwater [Beach CBDue Rfton Task Force 28
Development/redevelopment would incorporate design elements compatible with the
theme, contributing to the aesthetic appeal and continuity of the area, particularly as a
pedestrian environment.
Signage would be attractive and adequate for the purpose intended. Pay phones,
vending machines, bus stop shelters, public restrooms and trash receptacles would
incorporate design elements compatible with the theme, again for continuity and
aesthetics. Public transportation would be part of the excitement of going to the beach.
Timely, well maintained public transportation and streetscapes, incorporating period
street lamps, landscaping, seating and other pedestrian amenities, would make it easy
and fun for resident and visitor alike to patronize beach businesses. The ambience would
be consistent with the concept of a residential/recreational/resort community providing
a quality of life for those are here for a day or for a lifetime.
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
Previous efforts of the city aimed at improvements in landscaping, streetscapes
and sidewalks are indicative of a broad-based and accepted recognition of the need for
overall aesthetic improvements.
The success of commercial establishments which took the pains to design modern
and attractive buildings and surroundings (including the Beachcomber and Clearwater
Beach Seafoods in addition to the two hotels mentioned earlier) is both proof that it can
be done and an incentive to others to follow suit.
A 1982 study by the Tourist Development Council indicated that attractive
landscaping is a significant motivating force for tourists to visit Florida.
The Director of Parks and Recreation indicates that palm trees and associated
landscaping are not expensive items.
Clearwater Beach Biue Ribbon Task Force 29
Development/redevelopment consistent with the theme and combined with
beautification and landscaping would provide an ambience conducive to a better and
expanded market for beach commercial interests.
Residents of the beach should appreciate the means and the ends: they would
enjoy the improved aesthetics and the resultant quality of life on the beach. They would
also benefit from the increased sales tax revenues flowing to city government and could
benefit from other increases in city revenues.
Residents of the rest of Clearwater would benefit from the improved aesthetics
and from an increase in sales tax revenues resulting from increased business on the
beach, and could benefit from other increases in city revenues.
Commercial interests on the beach would benefit from an improved customer
base and from a positive effect on property values.
Commercial interests in the rest of Clearwater would benefit from an improved
customer base, since tourists do not spend all their money on the beach.
City government would benefit from increased revenues and from an ambience
less requiring of law enforcement services.
NEGATIVE ELEMENTS IN RESOLVING THE ISSUE
There are budgetary constraints on city improvements and services. Many
people believe taxes are already too high and that improvements would certainly
increases taxes. User fees, which are mentioned as an alternative source of revenue, are
objected to for other than parking.
Some people believe that aesthetic design costs too much and that improved
aesthetics will not help to improve profits. Others simply object to the subjective
nature of aesthetics, or to the idea that a "theme" will make a difference.
Still others object to permitting procedures which require variances for existing
non-conformities in order to get a permit for cosmetic improvements.
C sarwater Beach Blue Rfton Task Force 30
RECOMMENDATIONS TO RESOLVE THE ISSUE
1. Adopt the phrase "Clearwater Beach, One Small Place of Enchantment", as the
promotional theme for Clearwater Beach, and "Tropical Seascape" as the descriptive
phrase for the supporting architectural theme and total ambience.
2. Approve changes to the Clearwater Land Development Code (LDC) for Beach
Commercial and (Beach) Commercial Residential areas to provide permitting incentives
which encourage private improvements consistent with a Tropical Seascape design
theme, and to provide design guidelines for private and public development/redevelop-
ment consistent with a Tropical Seascape theme. (See committee's line drawings,
Appendix D, representing present view and possible future view of front elevation of
section of Mandalay Avenue.)
3. To the extent that it cannot be required by code, encourage all governmental
units to adhere to the spirit of the Tropical Seascape theme and the related LDC
provisions.
4. Approve a streetscape plan incorporating landscaping, seating and other
pedestrian amenities. (See committee's planter sketch, Appendix E, and public
restroom, Appendix F)
5. Expand city landscaping; e.g., sidewalks, parking lots, unimproved public
lands, and the beach down to the water line.
6. Install street lamps in the core area of the beach; use the same lamps as on
Cleveland Street; provide continuity between downtown andthe beach by putting similar
lamps strategically on the causeway median and the emergency road
7. Eliminate private use of public property; e.g., pay phones and vending
machines on sidewalks and right of way, to the extent the law allows; establish design
requirements/restrictions for all pay phones and vending machines; establish licensing
fees for all exterior vending machines, pay phones and the like.
Clearwater Beach Blue Ribbon Task Force 31
ISSUE TWO: WHAT CAN BE DONE TO ALLEVIATE MOTOR TRAFFIC CONGESTION,
REDUCE THE NEED FOR DRIVING ONE'S AUTO TO THE BEACH, IMPROVE
AVAILABILITY OF AFFORDABLE PUBLIC TRANSPORT TO AND FROM BOTH
THE RESIDENTIAL AND COMMERCIAL AREAS OF THE BEACH, PROVIDE
FOR NOISE CONTROL, ELIMINATE THE CRUISING PROBLEM AND PROVIDE
ONLY NECESSARY POLICE PRESENCE?
A. Traffic flow and configuration
SIGNIFICANT FACTS
Traffic to Clearwater Beach is primarily passenger vehicles consisting of out-
of- town tourists, beach users, evening visitors, beach residents, employees and marina
users. The flow of cars is adequate an estimated 88% of the time, with approximately
36,000 cars traversing the Memorial Causeway bridge and 7-8,000 more the Sand Key
bridge daily.
The remaining 12% of the time is considered "peak time" (usually week-ends
and holidays), during which the volume of cars increases to 50-65,000 cars daily. The
all time record was 80,000 vehicles in one day. This creates heavy traffic jams
resulting in near gridlock from two to six hours in the afternoon and early evening.
Drawbridge openings on Memorial Causeway dramatically delay the movement of bumper
to bumper traffic. At these times the bridge is open an average of five minutes, followed
by some 22 minutes before traffic returns to its regular flow.
Operators of emergency vehicles constantly fear being caught in traffic and
unable to provide essential services.
The intersection of Island Way and Memorial Causeway is one of the most accident
prone in the city, due in large measure to traffic; congestion.
During these peak times, due to the presence of so many visitors to the beach,
other bottlenecks occur regularly on some streets, while others go relatively unused.
Clearwater Beach Blue Ribbon Task Force 32
Part of the confusion is from tourists lingering at certain intersections due to lack of
directional signs.
There is a large number of pedestrians with very little evidence of concern for
their needs and safety. In the most densely populated area in the city, residents and
invited guests on the beach must fend for themselves in the streets without sidewalks
and/or bike paths.
Clearwater residents pay an inappropriate (i.e., too high) share of monies
(taxes) to cover street maintenance, traffic control and beach facilities upkeep for non
Clearwater taxpayers.
DESIRED SITUATION
Resident through traffic would move freely with priority outside the beach zones,
while tourists and beach users are permitted to linger and sightsee in the beach and
shopping districts.
Rerouting of traffic would provide for a more even distribution of the traffic load
and better utilization of all existing roads.
Improved signage and light control would get people to their destination more
efficiently and more safely.
Drawbridge openings would be reduced during peak times.
User fees would defray more of the cost of beach and road maintenance, thus
reducing the load for city taxpayers.
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
Resident and visitors' patronage of beach facilities would increase.
Business and tax revenues would increase due to the smooth, more enjoyable flow
of traffic and consequent heightened desire to visit the beach.
Clearwater Beach Blue Mbbon Task force 33
Public sentiment as expressed in the recent commercial and resident surveys
identified gridlock and traffic congestion as our #1 problem.
Traffic studies and proposals as outlined in Clearwater Beach Transportation
Study (by Kimley Horn Assoc. Inc. and the Traffic Engineering Department in 1983),
the Clearwater Beach Streetscape Study (by the same in Oct. 1984), the Clearwater
Beach Parking Study (by the same in Nov. 1984) and the So. Gulfview Blvd. - Coronado
Drive traffic proposal (by the city Traffic Engineering Department in 1986) all
parallel our findings and recommendations.
NEGATIVE ELEMENTS IN RESOLVING THE ISSUE
Previous efforts to establish one-way streets and changing traffic patterns met
with opposition by commercial interests on the beach.
Installation of sidewalks needed for safety reasons will interfere with some
parking now done on city right of way.
RECOMMENDATIONS TO RESOLVE THE ISSUE
1. Create resort zones with restricted 2-way traffic flow at 15 mph for
automobiles, where pedestrian traffic is favored, with numerous crosswalks on 1)
Mandalay Avenue (Mandalay St. north to Baymont) and 2) South Gulfview Boulevard
(Pier 60 south to Hamden). This separates conflicting uses: beach users and tourists
from through traffic.
Intermediate Ilan: Mandalay Ave. one-way traffic North (two lanes) with 15 mph limit;
pedestrians favored with numerous cross walks.
' Alternate plan for 2001: Mandalay Ave. Pedestrian traffic only; no vehicles except
limited freight service.
? I -
CDearwater Beach BWa Ribbon Task Force 34
2. One Way Streets: To expedite resident commuter traffic that would get
favored turn and traffic light priority separate from tourist and beach users in the
Resort Zones. (See Exhibit G)
North Beach: Change traffic control as follows: East Shore Drive to become two lanes,
one-way north from Causeway Boulevard to Baymont; Poinsettia Street to become two
lanes, one-way south from Baymont to Causeway Boulevard. This will expedite resident
commuter traffic, with favored turn and light priority separate from tourists and beach
goers.
South Beach: Coronado Drive to become two lanes, one-way south from First Street to
Hamden; Hamden Drive to become one-way north its entire length; South Gulfview Blvd
to become one-way around the south side of Pier 60 to First Street only (3 lanes), and
two-way thereafter to Hamden Drive with center option turn lane and entrance/stacking
lane to South Gulfview parking lots.
3. Eliminate the cross over traffic light at Pier 60 and Causeway Blvd. for north
beach traffic and create a north beach lane across the Civic Center lot to connect with
East Shore Drive.
4. Eliminate the traffic light at Coronado and Gulfview by the Pier 60 lot to
allow smooth flow of north and south through traffic.
5. At the Pier 60 lot, create an entrance gate to the public beach and parking lots
with three one-way lanes south, clearly marked overhead: "Public Beach", "Parking
Lots" and "Resort District".
6. Establish numerous pedestrian crosswalks designated and clearly marked
along South Gulfview Blvd and Mandalay Avenue. Pedestrian traffic would have priority
over all vehicular traffic except emergency vehicles.
7. Create bike paths, clearly marked on roadways at least five feet in width:
from Sand Key to Memorial Causeway along South Gulfview Boulevard and Hamden Drive;
from North Beach to Memorial Causeway on Mandalay Avenue and East Shore Drive;
Clearwater [Beach Mus Ribbon Task (Force 35
along Memorial Causeway to connect to Coachman Park and the Pinellas Trail (as a beach
loop).
8. Install sidewalks where there are presently no sidewalks on the 2= and west
side of Hamden and Coronado Drives. On South Gulfview, eliminate the west sidewalk, if
necessary for a tram route and parking entrance/stacking lane. Improve the remaining
g= sidewalk to 10' as per streetscape.
9. Erect overhead directional signs using the designations NORTH BEACH and
SOUTH BEACH, with arrows at:
• Entrance to Clearwater Beach on Marianne St., "North Beach" Parking right
turn arrow. "South Beach" Parking, Sand Key Left Lane.
• Pier 60 Gateway Entrance to public beach over three lanes "South Beach",
Parking, and
• South Gulfview and Hamden: Through/Mainland Traffic right turn arrow.
Public Beach, Parking straight ahead arrow.
B. Parking opportunities
SIGNIFICANT FACTS
There are 1117 off-street parking spaces from Pier 60 south to the Adams Mark
Hotel, and 354 spaces north to Rockaway, for a total of 1471 total.
The revenue hours per meter in the south area average about 4-1/2 hours,
while those in the north area average 2 hours. Average weekly revenues vary from
$4,000 in January to $18,000 in July. There is free evening parking at several lots.
Many unsatisfactory conditions are the source of complaint at the present time.
Visitors complain about parking tickets, about congestion, about not knowing they, needed
change for meters, about having to cruise to find an empty space, and the like. Residents
also complain about the congestion; and commercial operators complain about lack of
adequate parking during shopping and eating hours.
Clearwater Bach BWe Rubbcn Task Force 36
The inadequate number and availability of parking spaces also contribute to the,
night time cruising and noise problem, despite the free evening parking .
DESIRED CONDITION
Larger lots would be made more convenient to users by being converted from
metered to attendant parking, while smaller ones would remain metered, with parking
rights available in the evening to commercial interests.
A larger overall number of parking spaces would be made available through the
erection of a parking garage.
Some street meter parking would be eliminated to make way for a tram route
along the beach and for a stacking lane to enter the beach parking lot.
Unsightly and unsafe parking along Memorial Causeway would be eliminated.
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
Experience with attendant parking at Pier 60 has proven that increased revenue
is available and that traffic congestion can be eliminated. Visitor surveys confirm a
preference for attendant parking.
Construction of a low-profile garage would provide additional income, would
increase available beach and commercial parking and would remove or improve a quasi-
blighted area.
Visitor patronage would increase because all perceived negative conditions would
be eliminated.
Residential and commercial areas would benefit from the elimination of
congestion and increased pedestrian traffic.
The city would benefit from increased parking revenue.
CDea rwatsr Beach Clue Ribbon Task Force 37
NEGATIVE ELEMENTS IN RESOLVING THE ISSUE
Some people believe that elimination of street meter parking would harm certain
commercial establishments.
City officials believe that beach parking revenues should be used for the benefit
of the city's general fund and mainland parking.
Temporary tax assistance and revenue bond underwriting is thought by some to
be detrimental to the city.
There is an abhorrence of condemnation of private property for redevelopment
purposes.
Some allege that attendant parking causes traffic back-up, and that parking
garages are unsightly per se.
RECOMMENDATIONS TO RESOLVE THE ISSUE
10. Convert larger off-street metered parking areas to attendant parking; i.e.,
' Gulfview - 551 spaces; Pier 60 - 258 spaces; Marina - 246 spaces; Rockaway - 156
spaces. Keep them open from 7 am to 11 pm (or midnight on Friday and Saturday).
' 11. Retain meters at small lots, but lease parking rights after 6 pm to private
enterprises nearby; i.e., Civic Center - 62 spaces; Bay Esplanade - 84 spaces;
Avalon/Kendall - 56 spaces; Mandalay/Poinsettia - 58 spaces.
' 12. Create parking entrances and exits at 3rd and 5th Streets (on Gulfview) and
eliminate the entrance at the Adams Mark Hotel.
13. Prohibit any additional parking on Memorial Causeway.
14. Eliminate street parking on South Gulfview Boulevard, if necessary for a
' tram.
' 15. Increase parking fees on all parking spaces and use the revenue for Beach
improvements.
I Cisarwater Beach BWe Ribbon Task Force 38
C. Mass Transportation
SIGNIFICANT FACTS
City busses from the mainland are the only form of mass transit to the beach.
They are underutilized by tourists and local visitors. A ferry service from the mainland
has recently been begun, and is also as yet underutilized.
The Jolly Trolley service on the beach and to Sand Key is well utilized, mainly
due to the efforts of hotel/motel and beach retail business persons making its
availability known to guests/customers.
Most travelers use private autos, as reported above in the traffic discussion.
Many potential beach visitors become discouraged because there is no convenient
way to get to the beach without fighting all that traffic. These are mostly Clearwater and
nearby taxpayers who have not made reservations at beach hotels/motels and therefore
can turn away.
DESIRED SITUATION
We envision a reasonably priced and efficient means of moving people back and
forth from the mainland to the beach, so that auto traffic is cut roughly in half, or at
least the growth in traffic with increased population and commercial interests would be -
stopped.
There would be no congestion on beach streets or on the Causeway.
Residents would no longer feel their island is taken over by visiting automobiles
during the busy season of the year.
Both residents and tourists would have an attractive and available means of
getting on and off the beach to the mainland or to Island Estates according to some sort of
a reasonable schedule.
Overall there would be a more relaxed, serene atmosphere on the beach, due to
fewer headaches about fighting traffic or finding parking space.
Clearwater Beach Blue Ribbon Task Force 39
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
Public sentiment favors an attractive, economical and efficient method of mass
transportation to and from the mainland, as evidenced by the recent business and
residential surveys.
Emergency vehicles could move more freely when needed.
Less congestion would mean more safety and fewer accidents on the road.
An attractive method of mass transit, tied in to the beach facilities and ambience,
could be very inviting to tourists and locals alike.
NEGATIVE ELEMENTS IN RESOLVING THE ISSUE
There is a perception that mass transit is expensive and cannot support itself.
Some also believe that use of mass transportation vehicles is inconvenient.
The indulgent life style of modern society may make it difficult to convince people
to give up use of their vehicles.
RECOMMENDATIONS TO RESOLVE THE ISSUE
16. Provide a tram service, similar to that at Disney World or Key West, from
the mainland to the Beach, with appropriate safety requirements.
17. Construct an attractive, comfortable, informative mass transit terminal on
the mainland, adjacent to, or near, existing city parking facilities which are
underutilized.
18. Provide tram service to the Beach by the most direct and efficient route.
19. Maintain the Jolly Trolley system and expand service and number of trolleys
to Island Estates and Sand Key so as to reduce waiting time,. with attractive stopping
areas along the Beach, perhaps named after aquatic characters (dolphin, seagull,
pelican, manatee, etc.)
Clearwater Beach Clue Ribbon Task Force 40
20. Maintain ferry service to and about the island. Encourage private owners to
expand on demand.
D. Cruising and noise control
SIGNIFICANT FACTS
Cruising, "loitering" (gathering of mostly young people in parking lots of other
highly visible locations) and associated noise (especi lly from blaring car stereos) has
been identified as the number one irritant to residents, business owners and visitors
alike. This is supported by several surveys, numerous anecdotal observations, many
letters and articles in the local press, and observation of Task Force members.
Two years ago the city provided funds for additional police "aides" (non-sworn
officers) to help monitor and control traffic flow during peak traffic times; i.e., week-
ends, holidays and Spring Break time. By means of 70 barricades, 300 traffic cones,
light control and 20 part-time police aides, traffic to and from the South Beach area is
kept moving and directed off the beach after one pass-by, so as not to permit constant
cruising.
Many residents and visitors are greatly appreciative of the help this program has
been to easing traffic congestion. On the other hand, many others are just as strongly
resentful of the extra "police presence" and confusion caused by this particular routing
of traffic.
The program was funded for the current year (FY 1991), but its status will be
reviewed at mid-year budget review time. Meanwhile, the City's Engineering
Department is negotiating with a consulting engineering firm in Tampa to study the
situation and make recommendations as to alternative ways of rectifying the problem.
The city's Police Chief and a sub-committee of this Task Force separately re-
searched how other cities, particularly beach communities, handled the cruising
problem. (See Appendix H) The most common strategy used is the enactment of a
cruising control ordinance. Protection of public safety and concerns about air pollution
Clearwater Beach Blue Ribbon Task (Force 41
are the main reasons used by lawmakers in enacting such ordinances. Where related
fines were in the $100 and up range such ordinances appear to be effective.
There is some question as to whether the state must first grant the city the right
to enact any law governing traffic, particularly on state roads, but the City Attorney is
of the opinion that it might be tried under Home Rule provisions, until challenged. A
federal court has already ruled in a Pennsylvania case that such ordinances do not
infringe on constitutional privileges granted in the Bill of Rights.
Cruising control laws are directed either to the person or to the vehicle. The
latter approach requires less monitoring and follow up of traffic enforcers. In some
places the ordinance is in effect at all times; in other locations it comes into play only
when certain conditions develop. Again the latter approach is the simpler way to go.
' There is no feeling at the present time that loitering or gathering as "gangs" is
sufficient to warrant specific action.
' As regards noise, the police department has the responsibility of enforcing
1 noise control laws and has assigned crews to cite just noise violations. The first offense
carries a penalty of $37.50, with multiples of that for repeat offenses. Due to lack of
' trained manpower and lack of computer software to track multiple offenses, previous
efforts at enacting and enforcing noise control laws have been, in the main, ineffective.
Since most of the noise is from moving vehicles, controlling the presence of the vehicles
' would seem to deal with the noise as well.
' DESIRED SITUATION
We envision a time when traffic will flow smoothly through all beach
thoroughfares, due to the curtailment of the number of vehicles simply cruising. We
' anticipate that locals and visitors alike will be so impressed with the look and the feel of
beach boulevards in particular that they will not wish to mar the beauty of this small
' place of enchantment by injecting strident noises or stressful traffic congestion.
I (Clearwater Beach Glans Mbbon Task For(,,,e 42
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
The experience of other (resort) communities provides both encouragement that
the problem can be solved and useful experience to shorten experimentation time.
The Clearwater Beach Police Division is committed to correcting these abuses
before they get any worse.
An engineering consulting firm is studying the problem for the city's Engineering
Department and sees our recommendations as working in conjunction with their sugges-
tions regarding overall traffic control.
By a combination of the new traffic patterns recommended above and the cruising
control ordinance recommended below, it will be possible to save costly traffic control
methods which rely heavily on human agents.
NEGATIVE ELEMENTS IN RESOLVING THE ISSUE
A cruising control ordinance might be challenged in the courts.
The City may not have the right to pass such an ordinance unless granted
authority from the State.
Ordinances always have to be enforced, so there will still be need for police per-
sonnel to uphold the new law.
RECOMMENDATIONS TO RESOLVE THE ISSUE
21. Adopt a cruising control ordinance comparable'to those enacted in California
and York, Pa.
• with fines of at least $100 for the first offense, and multiples of $100 for
subsequent offenses,
Clearwater Beach Mue Mbbon Task Force 43
• with no warning tickets as that would make enforcement extremely difficult
and much more intrusive in the community, and
• do this as soon as possible so as to help keep things under control during the
upcoming tourist season.
22. Increase fines for violation of the noise ordinance to $75.00 for the first
offense, and multiples of that for repeat violations. Use the funds collected from fines to
train additional personnel, acquire more equipment and software to track multiple
offenses, more consistently enforce the law, with any overage to pay for other beach
capital improvements.
Clearwater Beach Blue Ribbon Task Force 44
ISSUE THREE: HOW CAN POLLUTION OF THE BAY BE CONTROLLED, WHILE
SAFEGUARDING COASTAL WETLANDS, RESPECTING DESIGNATED BIRD
SANCTUARIES AND PROTECTING ALL ASPECTS OF OUR ENVIRONMENT
FROM DANGER OF SPOILIATION OR CONTAMINATION?
SIGNIFICANT FACTS
Since earliest times, people have been the factor which altered the environment.
Clearwater's population has grown from 2070 in 1910 to 20,000 in 1942, 65,000 in
1973- and over 100,000 in 1990. Almost 100 years of intensified and unrestrained
development called "progress" and "expanding the tax base" has resulted in uncoordinated
real estate exploitation. This in turn has produced municipal systems which have never
kept pace with population growth. Street and storm water drainage, sewer and treatment
systems, waste disposal and roadway planning have many times been after the fact.
Regulation of building permits to eliminate phenomena such as neighborhood flooding and
control of polluting industries are currently with us. The effect of population growth,
industry waste, surface transportation, energy consumption and decimation of natural
resources (such as water) has been an overall deterioration of our environment.
Developing the uplands of Clearwater Harbor has meant reduced quality of water
because of increased and degraded storm water runoff and sewage treatment plant
effluent. The area has four sewage treatment plants discharging into public waters.
Storm water run-off has brought with it organic and inorganic fertilizers, silt and
clays, paint and coating products-- all as a result of metropolitan growth and
development. Turbidity is produced by the mixing of these substances in the bay waters
together with fine materials carried into circulation by surf and current action. The
turbidity of Clearwater Harbor which is generally very shallow, is partly the result of
silts on the bay bottom being easily disturbed. Local fishermen in the Island Estates area
of Clearwater Harbor report that catfish predominate indicating a degenerate water area.
Clearwater Beach BWs Mbbon Task force 45
Tidal flow in the Harbor has been blocked since the construction of Memorial
' Causeway in 1926, and worsened with the construction of Dunedin Causeway and the
' removal of mangroves by dredge and fill land development. The facts are that the tidal
prism of Clearwater Harbor has become deficient to a point that it cannot, except under
phenomenal circumstances, correct the state of continual decline. Construction within
the Harbor in the mid 1950's modified the hydraulics of the inlets sufficiently so that
' Dunedin Pass began a process of closure, which was advanced by 19704 and completed in
' 1987.
An estimated 80% of the Bay's pollution comes from storm water runoff. Rivers
' and creeks funnel millions of pounds of chemicals, silt, trash and wastes from
residential yards, roadway and farm lands into the Bay each year. Storm water runoff
' damages the underwater quality in many ways:
• suspended particles of dirt block out sunlight needed by sea grasses
• organic material (lawn fertilizer, for instance) feeds bacteria that steal
oxygen from fish
• organic pollution also feeds phytoplankton such as algae, causing them to grow
out of control, stealing light from the sea grasses
• the vanishing grasses cause shrimp and small fish to disappear, driving away
the larger fish in turn
• oysters and shell fish that filter the water pick up bacteria that can make them
dangerous for human consumption
• lead and other heavy metals washed off streets can enter the food chain through
shellfish and bottom feeding fish
Stevenson Creek contributed to the pollution of Clearwater Harbor. The water
quality standards for Florida specify fecal coliform should not exceed 200 parts by 100
4 Walker and Associates Study, Dunedin, FL, 4/25/89
I Vearwater Beach B ue Ribbon 'ask Force 46
ml sample and should never exceed 400 parts per 10% of samples taken. There are
frequent records of fecal coliform in excess of 10,000, 20,000 and 30,000, with the
highest of 55,200 parts per 100 ml. This occurs from old septic fields that leak
laterally into the creek, existing septic fields that are faulty, direct hook-ups from
toilets to the sanitary sewer systems and leaking sewer lines. The latest water quality
data from the City of Clearwater is for the year 1989, and this does not address fecal
coliform.5
Thousands of acres of coastal wetlands have been lost along the gulf over the years
and some wildlife appears to be showing the effects. At different points in their develop-
ment, many gulf animals need brackish water to survive. A mix of fresh and salt water
is needed by shrimp, oysters, and certain fish species. But the rising demands for fresh
water have reduced the daily flow into the gulf.
Plastics, cans, styrofoam, lumber, toys and hypodermic needs have also been
found. Ships, fishermen and beachgoers dump an estimated 115 tons of debris into the
gulf each day. No record has been found of tests for pesticides, herbicides, antimony,
beryllium, bromine, cyanide or flourides.
Other suspected contributors to the gradual deterioration of the Bay include boat
live aboards (though the Harbormaster reports that they are checked regularly,
especially for periodic pumping of their waste tanks) and boats churning up the sea
grasses.
Finally, reduced water flow may result in the build up of toxic chemicals now
being dumped into the Bay estuaries. Increased levels of waste may also result in higher
human disease rates.
5 Dept of Environment Regulations, V.9, p. 164, FL Statutes, Ch 387; Pollution of
Waters
CDearwater Beach Mus Mbbon 'bask Force 47
While we cannot hope to completely correct existing conditions by the year
2001, we envision an appreciable improvement. Certain flood control measures are
planned for Stevenson Creek, which, coupled with restoration of riparian and littoral
vegetation, retention ponds, restricted use of aquatic herbicides and development of other
remedial actions should restore water quality to a great degree.
Opening of Dunedin Pass will be an effective solution to several problems. It will
improve water quality and the ecosystem, reduce current/scouring problems at
Clearwater Pass, reduce boat traffic and bridge openings at both drawbridges, provide a
safe haven for boaters caught in the Gulf during storms and will provide the sand needed
for beach renourishment.
Increased tidal flushing created by dredging is likely to be beneficial to the
biological resources in the area through improved water quality. An improvement in the
tidal prism will increase flushing for Clearwater Harbor so that sea grass can grow
again and provide a nursery for all marine life.
Since the closing of Dunedin Pass, the currents at Clearwater Pass have increased
5% and bottom scouring on the bridge support pilings has increased 27%. If Dunedin
Pass is reopened, a substantial reduction in both currents and scouring will result by
water flowing into the harbor from the Gulf by a larger, alternative entry point.
Most boaters on the Intercoastal Waterway between John's Pass and Hurricane
Pass presently use Clearwater Pass to gain access to the Gulf of Mexico. On week-ends
and holidays there are a large number of boats waiting to pass through the drawbridge
creating a dangerously congested area. If Dunedin Pass is again open to navigation, t=
congestion will be lessened.
If the Dunedin Pass were reopened, a study shows that 44% of boaters in the area
would use Dunedin Pass, reducing the number of bridge openings at both Memorial and
Clearwater Pass drawbridges by an estimated 20-30%.
I Clearwater Beach Blue Rlblbon Task Force 48
Along with the reduction of bridge openings the air pollution that now exists in
the area due to exhaust fumes created by backed up vehicular traffic on Memorial
Causeway during bridge openings will be greatly alleviated.
Due to the weakened structure of the Clearwater Pass and John's Pass
drawbridges, both are locked in the "down" position whenever winds gust to 65 mph or
have sustained winds of 45 mph. Boaters caught in the open waters of the Gulf during
storm conditions have to travel north to Anclote in Tarpon Springs or south to Pass-a-
Grille to reach safe waters. The majority of boaters will not go through Hurricane Pass
due to shoaling and shallow water. By using Dunedin Pass, boaters out in the Gulf during
severe weather conditions will have quicker access to safe harbor.
In dredging Dunedin Pass, ninety-eight percent of the material dredged will be
beach quality sand. The use of the dredging spoil will make rocky beaches more
enjoyable. It also will encourage birds to visit there and promote the growth of some sea
grasses on the island. Clearwater Beach will not be affected in any way during dredging.
If Dunedin Pass is opened, the City of Clearwater will designate the pass as a "No
Wake Zone', alleviating fears from some Clearwater Beach home owners that damage to
their docks might be created by wakes from boating traffic.
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
O
It is frivolous to suggest removing Clearwater and Honeymoon Causeways and
restoring the Bay to its pre-1920 state, but a replacing of the tidal prisms of the inlets
commensurate with the area and volume of Clearwater Harbor is a feasible idea.
Improvement in tidal flow could probably best be done by using the existing network of
historic channels, some now silted in, which suggests the use of Dunedin Pass at or near
its former location.
Clearwater Beach Eue Gelb an Task Force 49
The dredging of Dunedin Pass has been supported by referendum and past actions
of the City Commission.6
The rehabilitation of Stevenson Creek as a flood and stormwater control measure
is a line item in the 1989-90 and 1990-91 City budgets.
The basic conclusion of a Corps of Engineers study was that dredging would
restore Dunedin Pass to a condition of hydraulic stability. The channel achieved would
provide safe navigational waterway and intercept materials drifting along the beach.
Plans for dredging Dunedin Pass will be a joint effort between the State of
Florida, Pinellas County and the City of Clearwater. The State will pay 75%, the City
and County will pay the remaining 25%. Both the City and the County have already
budgeted funds for this project.
NEGATIVE ELEMENTS IN RESOLVING THE ISSUE
Various individuals and environment-oriented organizations have taken a
position against the dredging of Dunedin Pass. For example, the Clearwater Audubon
Society fears that the habitat of endangered or threatened species of birds would be
destroyed in the process.
State agency reviews are mixed, with spokespersons for several agencies
' differing within their own agency. The Department of Natural Resources, Beaches and
Shore Section is in favor of combatting beach erosion, while the Bureau of
Environmental Land Management opposed dredging Dunedin or Hurricane Passes.
' The Tampa Bay Regional Planning Council reflected the reaction of some
environmentalists where it was asserted that mangrove, salt marsh, live bottom and
dune ecosystems would be immediately impacted by dredging operations.?
6 Resolution 83-3, January 6, 1983
' 7St. Petersburg Times, March 7, 1989
Usarwater Beach CBI]us R blbon Task Force 50
The Pinellas County Water and Navigational Control has an application filed with
the State of Florida Department of Environmental Regulation to dredge Dunedin Pass.
DER has issued a Notice of Intent to Deny. A hearing set for April 15, 1989 was
postponed. A revised proposal to dredge the opening some 2000 feet further south is
currently being considered.
RECOMMENDATIONS TO RESOLVE THE ISSUE
1. Continue to pursue the opening of Dunedin Pass.
2. Construct a culvert system under the road along Memorial Causeway to permit
flushing action from one side to the other.
3. Support the rehabilitation of Stevenson's Creek in any way which will
maximize the water quality of storm water runoff.
4. Take action to assure that sewage treatment of plant effluent and other organic
and inorganic matter discharged into the bay meets established standards, including
asking the county to convert septic tank areas to city sewage with special emphasis on
storm water runoff areas.
5. Toughen waste water rules for development/redevelopment by: porous paving
in parking lots to soak up water; perforated storm water pipes that leak runoff into the
ground; filters inside storm water pipes; underground retention ponds especially below
downtown commercial buildings.
6. Designate parks and other public lands where storm water can be piped during
rains, turning the lands into wetlands.
7. Widen problem creeks and create retention areas along the run.
Clearwater Beach Blue R bbcn Task Force 51
Trash
SIGNIFICANT FACTS
The beach, between the Caribbean Gulf Hotel and Somerset Street, is cleaned and
raked (including trash can pickup) every day between the hours of 12:30 and 7:00 a.m.
Two machines are used for the cleaning and raking; one one-man loader is used for the
trash cans. The consensus is that this clean-up job is carried out in an excellent
manner.
Some residents and tourists have called attention to gradually deteriorating
cleanliness of the "north beach area". The area north of Somerset is private property,
so private citizens are responsible for keeping it clean, unless there is a health hazard
(such as a fish kill) in which case the Parks and Recreation Department will take care of
it.
The Parks and Recreation Department is also responsible for taking care of trash
pick-up in city owned parking lots, and on Mandalay Avenue between Marianne Street
and Acacia on Saturdays and Sundays. (The Sanitation Department does this on
weekdays.)
' Currently the Sanitation Department empties dumpsters on Saturdays but not on
Sundays or holidays, on which days they tend to fill to overflowing.
' Beachgoers generally observe rules for disposal of trash, but there are always a
certain number who do not. The prohibition of alcohol on the beach is strictly enforced
by police and police aides. Regulations regarding prohibition of dogs on the beach are not
' so well observed, with consequent fecal matter being deposited at times.
I DESIRED SITUATION
' Our vision of Sparkling Clearwater Beach, one small place of enchantment, is one
where cleanliness remains as one of the area's principal attractions. This will entail
' continuation of the excellent job being done by city cleaning crews, a similar sense of
1 Clearwater Beach Blue Ribbon Task Force 52
responsibility by all private owners of beach property, and constant monitoring by city
employees during times when the public occupies the beach.
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
There are approximately 100 trash cans on the public beach portion of
Clearwater Beach, and signs prominently displayed at intervals to encourage proper
disposal of personal trash.
All trash (from cans or from the sand) is properly disposed of -- none is pushed
into the Gulf of Mexico.
There is a feeling that enforcement of littering regulations would be no more
difficult than the use of alcohol rules, as word-of-mouth support spreads.
NEGATIVE ELEMENTS IN RESOLVING THE ISSUES
Apathy on the part of visitors to the beach continues to result in carelessness
about trash disposal, even when trash cans are near and not full.
Despite the best efforts of the Sanitation and Parks & Recreation Departments,
some of that trash is getting into the waters of the Gulf and/or is buried under the sand,
neither of which conditions makes the beach as beautiful or inviting as possible.
There are no anti-littering signs posted either on the Causeway or on Beach
streets before reaching the sandy beach itself.
RECOMMENDATIONS TO RESOLVE THE ISSUE
8. Motivate people on the beach to throw their trash into trash cans or take it
home with them
9. Increase enforcement of littering laws while also increasing penalties for
breaking them.
ClearwWer Beach BlIus Ribbon Task Force 53
10. Increase the number of trash cans on the beach for those days when volume
is so heavy that they are filled and some trash of necessity thus winds up on the sand.
11. Institute an anti-litter campaign through a public education program,
including "advertising" signs inside the Jolly Trolley.
12. Train beach guards to encourage or remind people to pick up trash.
13. Have the Sanitation Department pick up trash from dumpsters on Sundays
and holidays.
Clearwater Beach Blue Ribbon Task Force 54
ISSUE FOUR: WHAT SHOULD BE THE PARTICULAR NICHE IN THE TOURIST/
RECREATION INDUSTRY WHICH CLEARWATER BEACH SHOULD AIM AT?
WHAT UNIQUE ATTRACTION MIGHT BE BUILT HERE, IN KEEPING WITH
THE OVERALL THEME, THAT WOULD APPEAL TO THAT SEGMENT OF THE
INDUSTRY? WHAT KIND OF SPECIAL EVENTS OR ACTIVITIES SHOULD BE
SOUGHT BYWAY OF TOURIST DEVELOPMENT EFFORTS? HOW BEST CAN
THE BEACH BE PROMOTED AND TO WHOM?
SIGNIFICANT FACTS
Tourism is the number one industry in Clearwater. The principal lesson to be
learned from the expenditures of these visitors is that if tourism is not fostered
properly on the Beach, there will be a lot of empty restaurants and motels and
unemployed residents. Other lessons from 1990 surveys of visitors in commercial
establishments are the following, provided by the Pinellas County Tourist Development
Council.8
• While a recession is in the making, tourism is enjoying tremendous growth.
Continued growth is dependent on energy availability. Even if gas goes up to
$2.00 per gallon, 71.4% of the people said they would not change their vacation
plans.
• Ninety percent of all U.S. travel is within the U.S., 76% of which is for leisure;
and Florida is a major focus of both U.S. and European travel. The Midwest and
Northeast are the key markets for Clearwater Beach, with the Canadian market
being very important also, along with an influx of Japanese tourists in the next
two to three years.
8 Clearwater Beach 1990 Visitor Profile, special report to the Clearwater Beach Blue
Ribbon Task Force, Nov. 7, 1990, by Walter Klages, PhD, President of Klages
and Associates, Inc.
Clearwa4er [Beach Mus Ribbon Task (Force 55
• The reunification of Germany will have a direct bearing on us, and we need to be
' there now marketing the Pinellas Suncoast as a vacation destination, even though
it is already well known overseas.
• Transportation is the key to the tourist industry and the Tampa airport is our
single most important catalyst.
• The graying market translates to mean our tourists will:
+ have a median age of 35
+ be affluent couples in their early 40's travelling with children
+ have an average family income of $40,000
+ be well educated, upscale professionals
• We are growing as a target vacation destination because of the need for get-away
trips by the above tourists. This is a national, long-term trend. We are a
discovery market with many people here for the first time, so recommendations
play a significant role. We need to satisfy them and keep them happy to have
repeat business.
• We are at the rim of an axis with Disney World in the center. Tourists will be
coming to us, looking for rest and relaxation. Over the next 10 years, we need to
highlight that we offer rest and relaxation: a scenic, quiet and romantic
environment; that we have wide, white, unspoiled beaches, and upscale
accommodations.
• No product is as reasonably priced compared to what we are marketing.
• What is different about us is that we are not remote, we are easily accessible, yet
we have an urban setting.
Many hotels in major metropolitan areas provide fitness centers for visitors.
City Athletic Clubs also make "wellness" equipment and assistance available to visitors.
At the present time, there are one or two fitness centers on Clearwater Beach, and they
are in hotels, to be used exclusively by their guests.
I CD sarwater Beach Blue Rfton Task Force 56
Resort communities and other popular vacation cities often compete for the
tourist dollar by developing retail, restaurant and entertainment complexes. Examples
of these are St. Armand's Circle, Hamlin's Landing, John's Pass, the Quay in Sarasota, '
Harbor Island in Tampa, Rosie O'Grady's and Church Street Station in Orlando, the
Riverboat at Pleasure Island in Orlando, the Cannery area in Monterey, Harborwatch in '
Baltimore, Faneuil Hall in Boston and many others.
DESIRED SITUATION ,
For the year 2001, we envision Clearwater Beach known as one small place of
enchantment, with the same wide, white, sandy, clean beach that attracts beach-goers of '
all ages, with the added appeal of a newly developed feature attractions for those who
have had too much sun or who don't particularly want the sun. ,
Most important is a shopping/eating/entertainment complex hopefully to be
developed by a private commercial developer along the bayfront to provide rainy day and
night time activities, all of a wholesome family type, to serve as a magnet to attract '
visitors and residents alike, and located just a block or two from the white, sandy beach.
We see the complete "redevelopment" of what we will call the "Eastshore area", ,
which would encompass an area bounded by Poinsettia and the Bay, between Baymont and
Marianne, and to include some number of floating facilities. (See Appendix 1) The ,
ratio of retail shops to eating establishments and places of entertainment would be at the
discretion of the investors who would design and develop it. We think of a boardwalk
along the bay, and a theater, a conference center, or some such attraction. We would like '
to make more use of our park area that extends from the tennis courts down to the youth
center with the addition of a Par course similar to the one at Crest Lake Park. ,
We see the Pier 60 area designated as the official public events area. The city '
already has electric and water hook-ups. Hopefully, the city will give the Pier
concession area a new look in keeping with the adopted tropical seascape theme. There ,
Clearwater Beach Mue Ribbon Task Force 57 1
are new public restrooms and we would like to see the addition of a Public Beach
Pavilion. (See Appendix J) This pavilion could be: (a) a much-needed facility for
community events on the beach, such as local school bands, exhibits, dances, arts and
sporting activities; (b) an attraction for the clientele of the beach business community;
and (c) a location for evening family entertainment with music, stage, marine and
wildlife presentations. Promotional entertainment could be provided by area hotels,
Busch Gardens, the Marine Science Center or the Bird Sanctuary. Major beach volley-
ball events could be staged at our Pier 60 area.
In the marina area, we envision a display to acquaint visitors with the existence
of the Clearwater Marine Science Center and Aquarium. Perhaps there could be ferry
service from the marina to the Center to cut down on vehicular traffic.
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
Tax increment financing through a Community Redevelopment Agency (CRA) is
NOT being recommended. Condemnation procedures of "blighted" areas are NOT thought
to be the way to go. (See Appendix K for a complete discussion of the mechanics of a CRA)
Rezoning and free enterprise methodologies ARE being recommended and thought to be
feasible. Private developer(s) can package individual parcels together for new use,
which will permit many of the present property and business owners to participate if
they choose to do so.
Deserving special mention as to how this can be done is Covington Landing across
the Ohio River from Cincinnati, where the Kentucky waterfront has been transformed
with the use of barges with buildings on them plus old riverboats. All are stationary and
have gang planks to shore that fluctuate with the water level. All power, water and
' sewage are run through pipes to the shore. The string of barges is connected to the
Riverboat Spirit of America", which has a restaurant and saloon on it. The wharf is
' made up of a complex of shops, restaurants and night clubs, including Friday's, Pizza
I Usarwater Beach Blue Ribbon Task Force 58
Hut, Howl at the Moon Saloon, a yogurt place, Maggie's Famous Popcorn, SandBar, City
Lights and Skyline Chili. Another barge called the Waterfront has a fine dining
restaurant called Las Brisas and a casual outdoor restaurant called Coconut Joes,
complete with a rock fountain. A final barge still under construction will have a
Wilderness Adventure and Trading Post.
NEGATIVE ELEMENTS IN RESOLVING THE ISSUE
Only a small number of the parcels in the so-called Eastshore area are approach-
ing a truly blighted state. The City's Planning Department finds 44 structures out of
108, or 41%, to be unsatisfactory or margina19, although many others are facing
economic hardship and cannot be upgraded without relief of some sort.
It is the City Attorney's opinion that local governments lack the power to grant
tax incentives as a means of enticing property owners or businesses to join a voluntary
program of redevelopment.1 0
A similar "redevelopment" vision is concurrently being worked on by the City
with reference to a 20-40 acre tract in the downtown area.
Some concern has been expressed about reconfiguration of streets abutting the
marina area.
1. Redevelop the area between Poinsettia Street to the Bay and from Marianne to
Baymont to include: a low profile, parking garage; a boardwalk along the bayside; com-
bination upscale shopping and entertainment area along the bay; large restaurant boats
9 Cl. Beach Planning Sector Analysis, Structural Condition Inventory, 9/20/90
10 Letter from City Attorney re Clearwater Beach Blue Ribbon Task Force, dated Oct. 16,
1990
Vearwater Beach B; ue Ribbon Task Force 59
in the water nearby. Harborwatch (in Baltimore) or Covington Landing (in Kentucky
across from Cincinnati) could be models. This should be voluntary with city assistance.
2. The City should aid in the development of a public beach pavilion in the Pier
60 area. Give the pier concession a new look in keeping with the adopted theme. As this
recreation area becomes more used, extend it gradually southward to the South Beach
Pavilion but not allow street vendors or concessionaires on city owned property, with
the exception, perhaps, of a carousel as a focal point to highlight one area.
3. Convert the area around the pavilion to a shady, grassy picnic and play area
with picnic tables, play sets and perhaps a shuffleboard court or two.
4. Funds for the cost of these improvements could be obtained by holding
concerts or similar, activities in the Pier 60 public events area.
5. Locate parking for handicapped and Pier 60 fishermen around the perimeter.
6. Consider redeveloping the city marina and explore the possibility of
expanding the site by realignment of the adjacent streets.
CVearwater Beach Mue Mbbon Task Force 60
ISSUE FIVE: IN WHAT WAY CAN THE BEACH AND THE DOWNTOWN DEVELOPMENT
BOARD COOPERATE IN JOINT EFFORTS AT PROMOTION AND
REDEVELOPMENT?
SIGNIFICANT FACTS
Up until now there has been no connection between what is being done by way of
community development downtown and what is being done on the Beach There is a
Downtown Development Board (DDB) overseeing a special taxing district, and a Commu-
nity Redevelopment Agency (CRA) responsible for redevelopment in the downtown area.
Neither of them integrate their planning with that of the Beach community which has not
had either a master plan or a group able to speak for th3 entire Beach area.
The City's Director of Development has also been looking at various projects in
the downtown and other areas of the city, without any reference to needs or plans for the
Beach.
Coachman Park, located on the water's edge downtown and facing Memorial Cause-
way and the Beach, is gradually becoming the site of many musical and arts events, with
not enough consideration of tying in visits to these activities to a visit to the Beach.
At the present time, the City's focus is on a redevelopment project of some 20 to
40 acres just South of Cleveland Street from the present City Hall Annex on Missouri
Street west to Osceola. Professional market researchers report that: 1) upscale retail
activity is increasing; 2) a great deal of the retail dollar in Pinellas County is leaving
the county and going to New York, Miami, Atlanta and elsewhere as residents go on
shopping sprees in those cities; and 3) Clearwater merchants feel they can recapture
that business by introduction of a project with 250,000 square feet of entertainment
and upscale retail shops, in addition to a new 150,000 square foot city center. This
latter is the heart of the proposed new venture for downtown, and will take 5-10 years
to complete.
Clearwater (Beach Mus R bbon Task Force 61
At the same time there are studies being conducted to investigate the feasibility of
a convention center being constructed either downtown, on the Beach or on Sand Key. At
the present time, three potential sites have been identified.
While these efforts at attracting people to the downtown area have been going on,
nothing has been done to point out the advantages of visiting the Beach at the same time.
From time to time well meaning individuals begin working on projects for
Clearwater Beach with little knowledge of who we are or what we want to be. While the
beach community is working toward realizing the vision it has as "one small place- of
enchantment", these entrepreneurs or P.R. people sometimes introduce a discordant note
into the general ambience without realizing how disruptive their ideas can be.
Deserving special mention is the Activities Committee of the City of Clearwater,
consisting of staff members whose departments might be involved in any special events
using City facilities, including streets, parks and the beach. In 1989 there were 33
such events of which 45% took place on Clearwater Beach. In 1990 there were 46
events, of which 39% took place on the Beach. These included the Sun 'N Fun celebra-
tion, a puppet show on the beach, the Madd Sadd Beach Blow Out, Christian Music
Outreach and everything in between. Some of these had considerable impact on traffic
and parking, while others had none at all.
DESIRED SITUATION
We envision continued dialogue and cooperation between elected officials, city
staff and volunteer groups downtown and similar persons on the Beach in order to pro-
mote mutual interests.
We are convinced that visitors to the mainland would benefit greatly from
further integration of planning and sharing of information about activities and places of
interest on the Beach, and vice versa for visitors to the Beach.
Clearwater [Beach Blue Rfton Task (Force 62
We believe mainland residents would come to the Beach more often and Beach
residents patronize downtown businesses more often if transportation back and forth
could be made more of an event than a chore.
We see some physical tie-ins by means of street and sidewalk layout, city
lighting, signage design and mass transportation.
We feel the need for a group of Beach-oriented citizens (residents and business
persons) to be recognized as a Standing Committee to speak for the entire Beach. In the
belief that the present Blue Ribbon Task Force has served as a model of bringing
divergent interests to focus in an objective manner on Beach issues, we recommend that
its work, and its recognized purpose as speaking for the Beach, be continued by changing
its status from that of an ad hoc task force to an Advisory Board to the City Commission.
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
Preliminary and brief contacts with the Clearwater Chamber of Commerce, the
DDB, the CRA, and various city officials in discussing this issue have evinced a desire on
the part of all to pursue discussions of mutual benefit to downtown and the Beach in the
future.
NEGATIVE ELEMENTS IN RESOLVING THE ISSUE
There has been a history of exclusivity, with mainland residents/business
interests and beach residents/business persons engaging in a zero-sum competition for
tourists, tax dollars and popular support.
RECOMMENDATIONS TO RESOLVE THE ISSUE
1. Emphasize the tram as the major link to make possible beach/downtown
relationships.
Clearwater (Beach [Blue Ribbon Task (Force 63
2. Continue the existence of the Clearwater Beach Blue Ribbon Task Force, but
change its status from a task force to an advisory committee to the City Commission.
The duties of such an Advisory Board would be as follows:
a) To monitor and follow-up on the recommendations that have are set forth in
this document.
b) To serve as a sounding board for subsequent issues that need to be brought
before the City Commission or that the Commissioners wish to be advised on.
c) To continue dialogue and cooperation with the DDB and CRA.
d) To be available for dialogue with individuals or organizations thinking of
Beach activities and in need of reactions to preliminary plans.
3. Continue the streetscape, funded by the CRA, from downtown to the beach to
lend a sense of continuity between the two; e.g., at tram stations on the beach.
4. Establish a major "welcome station" in downtown to provide a center for
information and reservations, with a parking terminal for tram rides. Perhaps the
tourist and convention bureau of the past could be a part of the chamber of commerce.
5. Promote continued dialogue and cooperation on common concerns and activities
of both downtown and the beach; for example, Coachman Park events.
6. Encourage the use of coupon books for distribution downtown and on the beach
for both downtown and beach businesses.
CVsarwater Beach Bilue Mbbon Task Force 64
ISSUE SIX: WHAT CHANGES INLAND USE PLANNING, BUILDING AND DEVELOPMENT
CODES, AND THE LIKE, WOULD BE AN AID IN PROMOTING THE STATED
VISION FOR THE CLEARWATER BEACH OF THE FUTURE?
A. Development for the small motel operator
SIGNIFICANT FACTS
The economic picture for many of the small motel operators on the Beach appears
to be deteriorating both in market share and in actual return on investment.
The design and layout of many of them have become functionally, physically and
economically obsolete. Some of this obsolescence is curable; for example, by updating
bathrooms, HVAC and exterior elevations. Most, however, is not, due to hotel room sizes
and the inability of installing amenities such at a swimming pool, due to lot size.
The lack of amenities offered by the small motel operator in competition with a
large hotel chain forces the small operator to reduce rates for each amenity not
available, such as swimming pool, convenient dining facilities, proximity to the water,
etc.
The operating costs to small motel operators are increasing at a higher rate than
room rental rates, thus reducing money available for upgrading furnishings/equipment.
The effect seems to be a trend for tourists to stay at the nationally franchised establish-
ments, leaving the smaller operator with higher vacancy rates and an increase in the
bargain-seeking type of tourist.
Current land use constraints eliminate any possibility for the small operator to
make changes to the footprint. Few, if any, of the small motels would meet today's zoning
code as to minimum lot size, setbacks (front, side and rear), total open space re-
quirements for the lot, front yard, parking or height requirements according to FEMA.
Many of the new owners who have purchased a small motel operation have dis-
covered that the investment for the time and effort involved has not been what they
CIearwa4sr Beach Mus Mblbon 'ask (Force 65
anticipated: they paid too much for the return they receive. The result is a trend to
' change from motel to other commercial uses.
I (There are exceptions to all the above, but this is the more common scenario.)
' DESIRED SITUATION
We envision a land development code which recognizes the particular plight of the
smaller motel operation, and permits sufficient density to make it economically feasible
to develop or redevelop parcels in need of upgrading.
' The zoning increase would become effective only when redevelopment takes place
as an incentive. An example would be a waterfront property owner who purchases two
adjoining motels of four units each with a desire to redevelop the entire three parcels.
' He would purchase based on existing zoning and would redevelop under new zoning
(recommended below). This would permit the present four units per parcel plus 175%
' or seven more units or eleven units all told per parcel. His three parcels would allow
him a total of thirty-three units in a new operation.
We see this as being done in conjunction with the establishment of the general
overall architectural and beautification theme discussed in an earlier section of this
report.
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
Some of the smaller operators have indicated a willingness to invest in improve-
ments if the possible return on that business investment were increased by easing of
density restrictions.
A cap on the increased density allowed would prevent such a relaxation from
getting out of hand.
Some of the appearance (and reality) of congestion could be eliminated by in-
creasing the use of each lot or combination of lots.
aearwater Beach Mus Ribbon Task Force 66
Increased property investment and business revenues for the motel operators
would mean increased property tax and sales tax revenues for the city.
The present extent of development on the Beach is less than the maximum now
allowed, so there is room for some increase in density.
NEGATIVE ELEMENTS IN RESOLVING THE ISSUE
Any increase in density must not inhibit orderly evacuation procedures for this
high risk area.
Any changes as a result of density relaxation must be in keeping with the overall
land use plan submitted to the state.
RECOMMENDATIONS TO RESOLVE THE ISSUE
1. Make the following modifications in the city's LDC for Clearwater Beach:
a. Grandfather in existing footprints for CR, multi-family and
commercial uses.
b. Maintain present minimum lot size and open space requirements.
c. Change height restriction to allow up to four stories on the water-
front and up to six stories for non-waterfront parcels (including
the parking level in all instances), in all zones except CR28 and single
family.
d. In case of disaster, rebuilding is allowed, but in accord with elevation
requirements of FEMA.
e. Continue to allow back-out parking, where it already exists, in the
city right-of-way until redevelopment or change of use occurs.
2. Disallow restaurants, bars, gift shops and similar ancillary uses in motels of
less than 50 units in CR zoning. Do not allow such motels to convert to some of these
uses on non-conforming lots.
COearrwater Beach BWe Rubbcn Task Force 67
3. Encourage revitalization of small motels by developing an incentive program
to permit an increase in density to be determined by economic analysis and typical site
plan review, to a maximum of 40 units for any one development, with these restrictions:
a. Build to new flood requirements as to height.
b. Conform to the architectural design for the Beach.
c. Provide a view corridor either on the sides or in between buildings.
d. Minimum (new combined) lot size would be 150' x 100' .
e. Provide on site parking, not back-out parking.
4. Allow motel owners to build the same number of multi-family condominiums
as current motel rooms, if they wish, subject to the following restrictions:
a. Zoning would change to reflect a multi-family use so that a
condo could not later split up into multiple motel uses.
b. Minimum apartment size would be 800 square feet of living area.
c. Development must follow architectural design established for Beach.
B. Federal Energy Management Act (FEMA) development standards
SIGNIFICANT FACTS
Clearwater Beach is a barrier island as definea in the State statute; i.e., it is an
offshore island less than 1500 feet wide.
' When FEMA established base flood elevation requirements for barrier islands
(using the 100 year's flood plain), many Beach structures built before that time became
' non-conforming. The attempt of FEMA development requirements is to encourage all new
' construction to meet the new elevation standards.
Present state statutes limit renovation of existing residential structures in flood
' zone "V" areas to a "cumulative" maximum of 50 percent of the value of the building.
The City's building code interprets the state law as meaning "over the life of the
C earwatsr Beach Blue Rbbon Task Force 68
property". (In other parts of the City, the limitation is to 50 percent of the value in any
one year.) ,
There is also much confusion over the administrative enforcement of the 50%
rule with regard to what is listed (and counted) in computing the 50%. Are routine '
maintenance items to be included? What about wallpapering, etc.? ,
Continued enforcement of such a limitation discourages (prohibits) property
maintenance and upkeep and will eventually lead to obsolescence and deterioration of the '
residential neighborhoods on the Beach.
DESIRED SITUATION
Residents of Clearwater Beach of the year 2001 would have both the desire and
the capability under revised building code requirements of the State and the City to make
substantial improvements in their buildings, up to a realistic maximum amount each
year, without having to rebuild entirely "on stilts". ,
The appearance and the physical condition of these structures would then more
likely be kept up to a standard found acceptable to neighbors, insurers, mortgage holders '
and occupants.
POSITIVE ELEMENTS IN RESOLVING THE ISSUE ,
Discussions with FEMA representatives in Atlanta indicate that there is nothing
in the federal law which requires the "cumulative" interpretation. Furthermore, they ,
state they cannot enforce a state or city regulation anyway.
As can be seen in Exhibit 111-1, there are a variety of ways in which the ,
"substantial improvement" clause is being addressed around the State of Florida, both as ,
to the time frame for the 50% rule, and as to what is counted in computing the 50%.
Clearwater Beach Blue Ribbon Task (Force 69
EXHIBIT III-1
FEMA REGULATIONS - Survey of Other Communities
1. 50% Improvement over life, Manatee County St Lucie County
include anything on permit Monroe County Collier County
Volusia County Escambia
2. 50% Improvement over life, Belleaire Belleaire Beach
include anything on permit
unless counted "contents"
by insurance carrier
3. 50% Improvement over life,
routine maintenance excluded
Boca Raton Sarasota
Palm Beach Naples
Pompano Beach Bay County
New Smyrna County Lee County
4. 50% Improvement over life, Sarasota County Hollywood
routine maintenance excluded
if = part of overall remodel
5. 50% Improvement over life, Martin County
routine maintenance included
architectural fees axcluded
6. 50% Improvement each 2 yrs Delray Beach
routine maintenance excluded
7. 50% Improvement each 3 yrs Daytona Beach
include anything on permit
8. 50% Improvement each permit Vero Beach
include anything on permit
Source: City of Clearwater Dept of Planning Memo dated May 22, 1990
--------------------------------------------------------------
NEGATIVE ELEMENTS IN RESOLVING THE ISSUE
' It would probably take concerted effort from legislators from various parts of
' the state to get action in Talahassee to amend the wording of the present statute. There
are many other issues which seem to be *of greater importance to the rest of the state,
indicating the need for serious lobbying with the Pinellas delegation and others.
F
Clearwater Beach Blue l1fton Task Force 70
RECOMMENDATIONS TO RESOLVE THE ISSUE
5. Request the Pinellas delegation of legislators to change the state law to remove
the "cumulative" rule.
6. Lead a movement with other beach communities throughout the state to lobby
the legislature to remove the "cumulative" rule.
7. Remove from the city's building code all wording concerning "cumulative" and
"over the lifetime of the structure", after the state does the same.
8. Allow routine maintenance, inclusive of roof replacement, without being
included in the 50% computation.
C. Signs
SIGNIFICANT FACTS
Like other portions of Clearwater's LDC, the city's sign ordinance was written
for the entire city, from large businesses on US 19 to tiny shops on the Beach. The
physical limitations of size of both buildings and lots on Clearwater Beach make it
impossible to comply with many of the requirements of this universal law.
The casual observer will notice countless examples of signs on the Beach which do
not conform to the present ordinance: motel signs not fitting square footage require-
ments, neon lighting, garish window displays, and so on.
The city simply does not have the personnel to enforce strictly the sign restric-
tions so that things get steadily more unsightly.
DESIRED SITUATION
We look forward to a special sign ordinance for the Clearwater Beach district in
its entirety which makes allowance for some special requirements on the one hand, and
makes it feasible to enforce flagrant violations on the other hand.
(CUearwa4er Beach [Blase Mbbon Task Force 71
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
The ordinance itself recognizes the fact that the unique needs of Clearwater Beach
¦ are not fully addressed and permits special signage enactments. The concluding
paragraph reads:
¦ "Special sign review provisions may be established for these (Clearwater Beach,
etc.) districts after public hearing ... Design review criteria for any design
review process established by the city commission for the Beach Commercial
¦ District, shall include consideration of the following:
1. As far as possible, architectural features such as windows, cornices, pilas-
ters and the like structural or ornamental features shall not be covered by signs.
2. Sign panels and graphics shall align with, be in proportion to, and
complement architectural features throughout the district."11
M A special sign code with realistic provisions would make it possible to enforce
and would prevent the proliferation of garish and ,glitzy", unattractive signs which vio-
late the norms of the new architectural theme for Clearwater Beach.
NEGATIVE ELEMENTS IN RESOLVING THE ISSUE
Aesthetics is not a totally objective science, so there will be differences of
opinion as to the type of signs which would fit the new architectural theme.
There will still be enforcement costs under any ordinance; (but that must be
expected if there is to be compliance with any code requirements).
RECOMMENDATIONS TO RESOLVE THE ISSUE
9. Appoint a special committee immediately to study the sign needs of Clearwater
Beach in light of the recommendation for architectural integrity and create a sign code to
apply to all of Clearwater Beach. This committee should consist of a planning official, an
architect, a representative of a reputable sign company and three Clearwater Beach
residents/business persons.
¦ 10. Place in this code a sunset clause for current nonconforming signs.
¦ 11 City of Clearwater Land Development Code„ `134.010, P 1116
i
¦ C eairwater Beach Mane Mbbon Task Force 72
11. Begin enforcement of the current code at once with penalties for violations
which can be demonstrated to have occurred since the inauguration of the current code.
This might be done with the help, if necessary, of a volunteer committee of Beach
citizens.
D. Alcoholic Beverage licenses
SIGNIFICANT FACTS
Currently there are 42 alcoholic beverage licenses on Clearwater Beach: thirty-
three of these are as an ancillary use to restaurants, five are for package stores to take
out, and four are at convenience stores. One application for a bar is pending.
Liquor served with food does not appear to be problematic for the most part.
Chilled alcoholic beverages "to go", on the other hand, tend to attract an element of the
population which indulges in loitering, noise-making and otherwise disruptive behavior.
If a new business is developed, or an old one changes hands, the applicant must get
a conditional use permission from the City to use an alcoholic beverage license on that
site. Such conditional use may be limited by the Planning and Zoning Board, though en-
forcing those restrictions is not always effective.
The current code provides that alcoholic beverage license use will be separated
from residential areas, resort commercial areas and from facilities with like alcoholic
beverage permits. A variance from the distance requirement is often given by the City
Commission, though the City Attorney is of the opinion that the law would be more en-
forceable if there were no variances.
Incidents of drunk and disorderly conduct in the past have led to unpleasant
relationships between business persons and residents.
One special type of abuse concerns vagrants who can be seen regularly along the
mangrove area of Memorial Causeway, getting drunk on liquor purchased with money
they have panhandled or obtained from selling blood at the blood bank downtown. Since
CCU earwater Beach Mus Rbbon Task (Force 73
1
the police are allowed to enforce vagrancy laws only on public park lands, and the
' Causeway is not designated public park lands, they are unable to deal with these
miscreants.
As a family-oriented, combination residential and resort community, Clearwater
Beach should be carefully protected against unnecessary proliferation of liquor licenses
and any behavior resulting from abuse of alcohol which would be unwelcome in 'one
' small place of enchantment'.
POSITIVE ELEMENTS IN RESOLVING THE ISSUE
Restrictions currently in place include limiting the hours during which sale of
liquor is permitted or requiring some businesses to keep their kitchen open at all times
that alcoholic beverages are served, so that the restaurant not turn into a bar at certain
' times. These indicate a sensitivity to the need for policing the sale and consumption of
alcohol.
Public hearings on applications for an alcoholic beverage license have shown in
some instances that a mechanism is in place for preventing unnecessary extra oppor-
tunities for disruption of the public order.
NEGATIVE I IN THE ISSUE
' The difficulty would be in remaining objective is deciding how many licenses are
enough in an area which is both rather small in size, yet recognized as a place for re-
laxation, entertainment and vacationing. Many in our modern society seem to equate
' consumption of alcohol as part and parcel of any relaxing or partying; while others wish
to come to the Beach for peace and quiet.
{C?earwater Beach BWs RIlbbon Task Force 74
RECOMMENDATIONS TO RESOLVE THE ISSUE
12. Make Clearwater Beach a separate zoning district with respect to the
Alcoholic Beverage Ordinance, and appoint a committee immediately to study the special
needs of the Beach and recommend appropriate distances or other restrictions which
would be applicable only to the Beach. This committee should consist of a planning
official, three representatives of the hospitality industry and three residents who have
no business interests on the Beach.
13. Declare Memorial Causeway's roadside to be public park land so that the
police can then remove vagrants from the mangroves.
Clearwater Beach C° Ws Ribbon Task Force 75
1
IV RECOMMENDATIONS AND FINANCIAL IMPLICATIONS
' This section sets forth in one place all the recommendations from this report and
the financial implications of each group, as they deal with the six major issues, with a
' final recap at the end.
' Beautification and Theme Issue
1. Adopt the phrase "Clearwater Beach, One Small Place of Enchantment", as the
' promotional theme for Clearwater Beach, and "Tropical Seacape" as the descriptive
phrase for the supporting architectural theme and total ambience.
2. Approve changes to the Clearwater Land Development Code (LDC) for Beach
Commercial and (Beach) Commercial Residential areas to provide permitting incentives
which encourage private improvements consistent with a Tropical Seascape design
theme, and to provide design guidelines for private ajLd public development/redevelop-
ment consistent with a Tropical Seascape theme. (See committee's line drawings,
Appendix D, representing present view and possible future view of front elevation of
section of Mandalay Avenue.)
3. To the extent that it cannot be required by code, encourage all governmental
units to adhere to the spirit of the Tropical Seascape theme and the related LDC
provisions.
4. Approve a streetscape plan incorporating landscaping, seating and other
pedestrian amenities. (See committee's planter sketch, Appendix E, and public
restroom, Appendix F.)
5. Expand city landscaping; e.g., sidewalks, parking lots, unimproved public
lands, and the beach down to the water line.
6. Install street lamps in the core area of the beach; use the same lamps as on
Cleveland Street; provide continuity between downtown and the beach by putting similar
lamps strategically on the causeway median and the emergency road.
7. Eliminate private use of public property; e.g., pay phones and vending
machines on sidewalks and right of way, to the extent the law allows; establish design
requirements/restrictions for all pay phones and vending machines; establish licensing
fees for all exterior vending machines, pay phones and the like.
Clearwater Beach BW9 Ribbon Task Force 76
FINANCIAL IMPLICATIONS
There will be costs to the city for lighting, streetscape construction, public
restrooms refurbishing and other public building compliance with the recommended
architectural theme.
Funds for these expenses could come from revenues received from Beach parking
areas (now in the City's Parking Fund), including recommended increases in parking
fees and the current surplus in that fund, which amounted to $344,747 in fiscal year
1989-90.
Transportation Issue
1. Create resort zones with restricted 2-way traffic flow at 15 mph for
automobiles, where pedestrian traffic is favored, with numerous crosswalks on 1)
Mandalay Avenue (Mandalay St. north to Baymont) and 2) South Gulfview Boulevard
(Pier 60 south to Hamden). This separates conflicting uses, beach users and tourists
from through traffic.
Intermediate plan: Mandalay Ave. one-way traffic North (two lanes) with 15 mph limit,
pedestrians favored with numerous cross walks.
Alternate plan for 2001: Mandalay Ave. Pedestrian traffic only, no vehicles except
limited freight service.
2. One Way Streets: To expedite resident commuter traffic that would get
favored turn and traffic light priority separate from tourist and beach users in the
Resort Zones. (See Exhibit G)
North Beach: Change traffic control as follows: East Shore Drive to become two lanes,
one-way north from Causeway Boulevard to Baymont; Poinsettia Street to become two
lanes, one-way south from Baymont to Causeway Boulevard. This will expedite resident
commuter traffic, with favored turn and light priority separate from tourists and beach
goers.
South Beach: Coronado Drive becomes two lanes, one-way south from First Street to
Hamden; Hamden Drive becomes one-way north its entire length; South Gulfview Blvd
becomes one-way around the south side of Pier 60 to First Street only (3 lanes) and
two-way thereafter to Hamden Drive with center option turn lane and entrance/stacking
lane to South Gulfview parking lots.
3. Eliminate the cross over traffic light at Pier 60 and Causeway Blvd. for north
beach traffic and create a north beach lane across the Civic Center lot to connect with
East Shore Drive.
4. Eliminate the traffic light at Coronado and Gulfview by the Pier 60 lot to
allow smooth flow of north and south through traffic.
5. At the Pier 60 lot, create an entrance gate to the public beach and parking lots
with three one-way lanes south, clearly marked overhead: "Public Beach", "Parking
Lots" and "Resort District".
Clearwater Beach Blue Ribbon Task Force 77
6. Establish numerous pedestrian crosswalks designated and clearly marked
' along South Gulfview Blvd and Mandalay Avenue. Pedestrian traffic would have priority
over all vehicular traffic except emergency vehicles.
' 7. Create bike paths, clearly marked on roadways at least five feet in width:
from Sand Key to Memorial Causeway along South Gulfview Boulevard and Hamden Drive;
from North Beach to Memorial Causeway on Mandalay Avenue and East Shore Drive;
along Memorial Causeway to connect to Coachman Park and the Pinellas Trail (as a beach
loop).
8. Install sidewalks where there are presently no sidewalks: on the east and
west side of Hamden and Coronado Drives. On South Gulfview, eliminate the west
sidewalk if necessary for a tram route and parking entrance/stacking lane. Improve the
remaining = sidewalk to 10' as per streetscape.
9. Erect overhead directional signs using the designations NORTH BEACH and
SOUTH BEACH, with arrows at:
• Entrance to Clearwater Beach on Marianne St., "North Beach" Parking right
turn arrow. "South Beach" Parking, Sand Key Left Lane.
• Pier 60 Gateway Entrance to public beach over three lanes "South Beach",
Parking, and
• South Gulfview and Hamden: Through/Mainland Traffic right turn arrow.
Public Beach, Parking straight ahead arrow..
10. Convert larger off-street metered parking areas to attendant parking; i.e.,
Gulfview - 551 spaces; Pier 60 - 258 spaces; Marina - 246 spaces; Rockaway - 156
spaces. Keep them open from 7 am to 11 pm (or midr.'.ght on Friday and Saturday).
11. Retain meters at small lots, but lease parking rights after 6 pm to private
enterprises nearby; i.e., Civic Center - 62 spaces; Bay Esplanade - 84 spaces;
Avalon/Kendall - 56 spaces; Mandalay/Poinsettia - 58 spaces.
12. Create parking entrances and exits at 3rd and 5th Streets (on Gulfview) and
eliminate the entrance at the Adams Mark Hotel.
13. Prohibit any additional parking on Memorial Causeway.
14. Eliminate street parking on South Gulfview Boulevard.
15. Increase parking fees on all Beach parking spaces and use revenue for Beach
improvements.
16. Provide a tram service, similar to that at Disney World or Key West, from
the mainland to the Beach, with appropriate safety requirements.
17. Construct an attractive, comfortable, informative mass transit terminal on
the mainland, adjacent to, or near, existing city parking facilities which are
underutilized.
18. Provide tram service to the Beach by the most direct and efficient route.
C earwater Beach Blase R bbon Task Force 78
19 Maintain the Jolly Trolley system and expand service and number of trolleys
to Island Estates and Sand Key so as to reduce waiting time, with attractive stopping
areas along the Beach, perhaps named after aquatic characters (dolphin, seagull,
pelican, manatee, etc.)
20. Maintain ferry service to and about the island. Encourage private owners to
expand on demand.
21. Adopt a cruising control ordinance comparable to those enacted in California
and York, Pa.
• with fines of at least $100 for the first offense, and multiples of $100 for
subsequent offenses,
• with no warning tickets as that would make enforcement extremely difficult
and much more intrusive in the community, and
• do this as soon as possible so as to help keep things under control during the
upcoming tourist season.
22. Increase fines for violation of the noise ordinance to $75.00 for the first
offense, and multiples of that for repeat violations. Use the funds collected from fines to
train additional personnel, acquire more equipment and software to track multiple
offenses, more consistently enforce the law, and any overage to pay for other beach
capital improvements.
FINANCIAL IMPLICATIONS:
The tram and tram stations would be paid for from the Parking Fund, just as the
Jolly Trolley is, or from private enterprise, or by the County bus system.
The city might obtain funds for carrying on the streetscape design along the tram
pathway from CRA monies in order to tie in downtown with the Beach.
New traffic control and signage costs could be offset by a reduction in the cost of
monitoring Beach traffic at the present time.
Other city expenses could be recovered from Beach parking fees.
Pollution Issue:
1. Continue to pursue the opening of Dunedin Pass.
2. Construct a culvert system under the road along Memorial Causeway to permit
flushing action from one side to the other.
3. Support the rehabilitation of Stevenson's Creek in any way which will
maximize the water quality of storm water runoff.
4. Take action to assure that sewage treatment of plant effluent and other organic
and inorganic matter discharged into the bay meets established standards, including
CVearwatsr [Beach Blue R bbcn Task Force 79
asking the county to convert septic tank areas to city sewage with special emphasis on
storm water runoff areas.
5. Toughen waste water rules for development/redevelopment by: porous paving
in parking lots to soak up water; perforated storm water pipes that leak runoff into the
ground; filters inside storm water pipes; underground retention ponds especially below
downtown commercial buildings.
6. Designate parks and other public lands where storm water can be piped during
rains, turning the lands into wetlands.
7. Widen problem creeks and create retention areas along the run.
8. Motivate people on the beach to throw their trash into trash cans or take it
home with them..
9. Increase enforcement of littering laws while also increasing penalties for
breaking them. _
10. Increase the number of trash cans on the beach for those days when volume
is so heavy that they are filled and some trash of necessity thus winds up on the sand.
11. Institute an anti-litter campaign through a public education program,
including "advertising" signs in the Jolly Trolley.
12. Train beach guards to encourage or remind people to pick up trash.
13. Have the Sanitation Department pick up trash from dumpsters on Sundays
and holidays.
FINANCIAL IMPLICATIONS
The city has already budgeted its share of funds to reopen Dunedin Pass.
Costs of constructing a culvert system under Memorial Causeway and for
controlling stormwater runoff should be recovered from the new stormwater control
fees to be collected beginning in February 1991.
Tourism Issue:
1. Redevelop the area between Poinsettia Street to the Bay and from Marianne to
Baymont to include: a low profile, parking garage; a boardwalk along the bayside; com-
bination upscale shopping and entertainment area along the bay; large restaurant boats
in the water nearby. Harborwatch (in Baltimore) or Covington Landing (in Kentucky
across from Cincinatti) could be models. This should be voluntary with city assistance.
2. The City should aid in the development of a public beach pavilion in the Pier
60 area. Give the pier concession a new look in keeping with the adopted theme. As this
Clearwater Beach C' W9 Ribbon Task Forge 80
recreation area becomes more used, extend it gradually southward to the South Beach
Pavilion but not allow street vendors or concessionaires on city owned property, with
the exception, perhaps, of a carousel as a focal point to highlight one area.
3. Convert the area around the pavilion to a shady, grassy picnic and play area
with picnic tables, play sets and perhaps a shuffleboard court or two.
4. Funds for the cost of these improvements could be obtained by holding
concerts or similar activities in the Pier 60 public events area.
5. Locate parking for handicapped and Pier 60 fishermen around the perimeter.
6. Consider redeveloping the city marina and explore the possibility of
expanding the site by realignment of the adjacent streets.
FINANCIAL IMPLICATIONS:
Costs for these embellishments could be obtained by removing the cost of
supplementing the downtown parking garages from the beach Parking Lots Fund, by
sponsoring public events in the Pier 60 area and by seeking Tourist Development Funds.
To support this suggestion, Figure IV-1 is offered to show that the Beach already
contributes more than a pro-rata share of tax support: it constitutes 13% of all
Clearwater property,. but pays 21% of Clearwater taxes.
I
FIGURE IV-1 ¦
1990 VALUE AND TAX TOTALS
PROPERTY TYPE AREA # PARCELS 1s $TOTAL TAXES la ¦
Residential Citywide 36,858 100 44,595,950 100
'
Beach 5,009 13.6 11,296,173 25.3
Non-Residential Cit
id 5
092 10 ¦
yw
e , 0 36,382,574 100
Beach 413 8 5,794,620 15.9 ¦
All Properties Citywide 41,950 100 80,978,524 100
t
Beach 5,422 12.9 17,090,793 21
-------------
- ----------- -- ¦
Source: Pinellas County Appraiser's 1990 Value and Tax Rolls, Dec. 4, 1990
¦
Clearwater Beach Blue Mbbon Task Force 81 ¦
1
rJ
7I
U
Collaboration with Downtown Issue:
1. Emphasize the tram as the major link to make possible beach/downtown
relationships.
2. Continue the existence of the Clearwater Beach Blue Ribbon Task Force, but
change its status from a task force to an advisory committee to the City Commission.
The duties of such an Advisory Board would be as follows:
a) To monitor and follow-up on the recommendations that have are set forth in
this document.
b) To serve as a sounding board for subsequent issues that need to be brought
before the City Commission or that the Commissioners wish to be advised on.
c) To continue dialogue and cooperation with the DDB and CRA.
d) To be available for dialogue with individuals or organizations thinking of
Beach activities and in need of reactions to preliminary plans.
3. Continue the streetscape, funded by the CRA, from downtown to the beach to
lend a sense of continuity between the two; e.g., at tram stations on the beach.
4. Establish a major "welcome station" in downtown to provide a center for
information and reservations, with a parking terminal for tram rides. Perhaps the
tourist and convention bureau of the past could be a part of the chamber of commerce.
5. Promote continued dialogue and cooperation on common concerns and activities
of both downtown and the beach; for example, Coachman Park events.
6. Encourage the use of coupon books for distribution downtown and on the beach
for both downtown and beach businesses.
FINANCIAL IMPLICATIONS:
The recommended tram and associated terminals would be subsidized by the
Parking Fund, with the possibility of seeking monies from the Tourist Development Fund
or Penny for Pinellas. A final alternative would be private enterprise, with attractive
lease arrangements for a terminal on property adjacent to the present police station or
bus depot.
Zoning and Building Regulations Issue:
1. Make the following modifications in the city's LDC for Clearwater Beach:
a. Grandfather in footprints for CR, multi-family and commercial uses.
b. Maintain present minimum lot size and open space requirements.
c. Change height restriction to allow up to four stories on the water-
front and up to six stories for non-waterfront parcels (including
I Clearwater Beach Blue Ribbon Task (Force 82
the parking level in all instances), in all zones except CR28 and single
family.
d. In case of disaster, rebuilding is allowed, but in accord with elevation
requirements of FEMA.
e. Continue to allow back-out parking, where it already exists, in the
city right-of-way until redevelopment or change of use occurs.
2. Disallow restaurants, bars, gift shops and similar ancillary uses in motels of
less than 50 units in CR zoning. Do not allow such motels to convert to some of these
uses on non-conforming lots.
3. Encourage revitalization of small motels by developing an incentive program
to permit an increase in density to be determined by economic analysis and typical site
plan review, to a maximum of 40 units for any one development, with these restrictions:
a. Build to new flood requirements as to height.
b. Conform to the architectural design for the Beach.
c. Provide a view corridor either on the sides or in between buildings.
d. Minimum (new combined) lot size would be 150' x 100'.
e. Provide on site parking, not back-out parking.
4. Allow motel owners choose to build the same number of multi-family
condominiums as current motel rooms, if they wish, subject to the following
restrictions:
a. Zoning would change to reflect a multi-family use so that a
condo could not later split up into multiple motel uses.
b. Minimum apartment size would be 800 square feet of living area.
c. Development must follow architectural design established for Beach.
5. Request the Pinellas delegation of legislators to change the state law to remove
the "cumulative" rule.
6. Lead a movement with other beach communities throughout the state to lobby
the legislature to remove the "cumulative" rule.
7. Remove from the city's building code all warding concerning "cumulative" and
"over the lifetime of the structure", after the state does-the same.
8. Allow routine maintenance, inclusive of roof replacement, without being
included in the 50% computation.
9. Appoint a special committee immediately to study the sign needs of Clearwater
Beach in light of the recommendation for architectural integrity and create a sign code to
apply to all of Clearwater Beach. This committee should consist of a planning official, an
architect, a representative of a reputable sign company and three Clearwater Beach
residents/business persons.
10. Place in this code a sunset clause for current nonconforming signs.
11. Begin enforcement of the current code at once with penalties for violations
which can be demonstrated to have occurred since the inauguration of the current code.
This might be done with the help, if necessary, of a volunteer committee of Beach
citizens.
Clearwater Beach Mue Ribbon Task Force 83
n
u
12. Make Clearwater Beach a separate zoning district with respect to the
Alcoholic Beverage Ordinance, and appoint a committee immediately to study the special
needs of the Beach and recommend appropriate distances or other restrictions which
would be applicable only to the Beach. This committee should consist of a planning
official, three representatives of the hospitality industry and three residents who have
no business interests on the Beach.
13. Declare Memorial Causeway's roadside to be public park land so that the
police can then remove vagrants from the mangroves.
FINANCIAL IMPLICATIONS:
The only expense to the city would be in staff time to revise the current land code
and enforce its provisions.
Summary of Items Requiring Expenditures and Possible Sources of Funds:
To make our vision of Clearwater Beach for 2001 become a reality, both private
and public financial support will be necessary. While determining exact dollar amounts
was beyond the scope of what this Task Force could research in the time available, we
would like to offer the following final general comments.
The largest expenditure involves the redevelopment of the Eastshore area, which
we hope will be attractive to private enterprise. A second major item requiring private
investment has to do with the recommended "facelift" for commercial establishments in
the core area to implement the suggested architectural theme. We would encourage the
Commission and the City staff to seek private developers to assume the risk of the
Eastshore project and to find some financial incentive for present property owners in
that area and in the core area to support our recommendations.
Implementing other recommendations will require the expenditure of public
funds not presently in the City's budget. While this is a ten year plan, we urge
immediate consideration of these ideas, so that appropriate budgetary action can be
begun. To be specific, public monies will have to be found for these expenditures:
• Streetscape, sidewalks, seating, restrooms, lighting
' Clearwater Beach Blase R bbon Task Force 84
• Landscaping for sidewalks, parking lots, unimproved lands, beach to water
line
• Streetlamps along causeway and core area streets
• Facelift of public buildings where needed to fit architectural theme
• Traffic signs, lights and paint to redirect traffic
• Bike paths and Par course
• New tram service and expansion of Jolly Trolley
• Culvert system under Memorial Causeway
• Pier 60 pavilion and concession area facelift
As possible sources of funds to support these projects, we recommend relying
heavily on user fees. To be specific, we have recommended the following:
• Licenses for vending machines, pay phones on public property
• Increased parking fees, leased parking rights and surplus from Parking Fund
• Fines for litter, cruising or noise violators
• Savings in present cost of police aides to control traffic
• Downtown CRA for Streetscape carry-over to Beach for tram stops
• Stormwater control fees
• Advertisements in the Jolly Trolley and new tram
We would like to see a Clearwater Beach Fund established in the city's budget,
with all revenue coming from beach sources deposited to that fund and used exclusively
for beach purposes. If that were done, for example, then revenue from Pier Pavilion
Inc. ($129,209 in fiscal 1989-90) and from South Beach Pavilion ($109,444 in the
same year) could be used for the beach improvements we are recommending, rather than
being put in the General Fund.
Further, we believe it might be possible to seek and obtain Tourist Development
funds and Penny for Pinellas funds for public building construction and improvements
(such as a tram terminal and a beach pavilion). We also think that financing the Jolly
Clearwater (Beach Blue Rfton Task Force 85
Trolley and the recommended tram service could qualify as a form of advertising for
tourists.
Finally, it is our understanding that the city has some $2 million worth of
surplus land in Hillsborough County which will not be needed for waste disposal and is
considered surplus. Just as a piece of such property has been offered as a swap for land
in Island Estates to be used for marina purposes, we would propose the sale of some of
that surplus land to underwrite some of the above expenditures.
Clsanwaler Beach Mue Ribbon Task force 86
APPENDIX A
Clearwater Beach Resident Survey, August 1990 N=155
1. Which of the following words help to capture what life on the Beach is all about?
(Check as many as apply)
78% White sand
70% Friendly
69% Family-oriented
65% Tropical climate
60% Clean
58% Wholesome
50% Remote
------------------
4 4 % Resort area
38% Easy to get to
31% Diverse interests
30% Near big city
28% Not Tacky
25% Small
1 1 % Compact
Other: no meters
my choice in world to live
natural beauty
people oriented
relaxed atmosphere
smiling faces
community involvement
miles of white sand beach
no drinking establishments
family resort area
no drugs/alcohol
safe from crime
quaint
prices of dinner
safe swimming
convenient to airport
boating and fishing
fun
beautifully landscaped
casual attire
water view dining with parking for boats
good shopping malls
Comment: - The top six mentions confirm' the values written in Vision Statement.
- Most of "others" sound the same refrain.
- "Not tacky" would have scored higher, but some thought they were asked
to describe the present and they felt this is not the case at present.
- Others added words about the present, such as "Ugly", "Expensive"
Clearwater Baaclh 9 ue Ribbon Task (Force 87
2. In your own words, what one thing are you most proud of about Cl. Beach?
I'.
u
Mentions item
69 White, powdery, sandy beach and gulf
27 natural beauty, sunsets, climate, wildlife, birds
1 5 friendly, family oriented people
1 0 small, laid back, low key, casual, quiet
9 Causeway and landscaping
9 Community involvement, Task forces
8 drug free, crime free, police protection
6 clean
5 open view
1 each trolley, diversity, boating/fishing, swimming,
where I live, our police, safety,
the North end is safe from greedy commercialism
3. What is your biggest complaint or disappointment about Ch Beach right now?
Mentions item
56 cruising, noise, riff raff, mischievous youth, drinking in cars
40 traffic, Fri nights, Easter Chaos
31 overcrowded, hodge podge commercial area
17 police rudeness & barricades, cruising control, aides
15 unkept property, tacky rentals
15 honky tonk places like Wings, PickWick, t-shirt stores
1 1 trash
8 lack of cleaning North beach of seaweed
6 each scientologists, taxes, not clean
5 dirty & fishless Mandalay Bay
3 unleashed dogs
1 each sidewalks, big hotel noise, raised bridges, pollution, no bus,
catering to young, no culture, building restrictions,
old fashioned thinking, Carlouel fence, McDonald's litter,
police state presence of police, boats parked in driveway,
beige sand starting to mix with white on North end,
traffic caused by police,
4. What resort area would you most like Cl. Beach to be like?
The most frequent answer was "Itself", especially as it was years ago.
Other answers: St Armand's Key Palm Beach
Sanibel/Captiva Williamsburg
Sarasota I n n i sb rook
Naples Mackinaw Island
Vero Beach Pebble Beach
Bermuda French Riviera
Carmel Key West without fags
Heaven l
Comment: Were the places listed chosen because of something distinctive
(reinforcing our effort to think of a theme, a unique characteristic),
or because they emphasized the natural beauty of the place?
(Clearwater Beach Blase Rfton Task Force 88
5. What resort area would you least like Cl. Beach to be like?
Fully one-half mentioned one of the places on Florida's east coast
(Daytona, Fort Lauderdale or Miami Beach).
Next came Atlantic City
Others: Coney Island (several)
Myrtle Beach (several)
Clearwater Beach as it now is (several)
Davis Island , Tampa
Provincetown Mass
Indian Rocks Beach
Venice, CA
St Pete Beach
Cuba
6. If Clearwater were to have a Convention Center, where should it be located?
(Check one)
45% Downtown
1% Clearwater Beach
10% Sand Key
45% No Convention Center
Comment: • Three people suggested buying out Maas Brothers as a site.
• Several preferred US 19 to Downtown. .
7. If Clearwater Beach were to have a boardwalk, where should it be located?
(Check one)
7% Along Shoreline
16% Along Parking lot
3% Street/Boulevard
70% No Boardwalk
Comment: "Have boardwalk put in at all entrances from street to cement wall --
similar to one Fred Thomas put in next to his house on Eldorado --
to avoid sandspurs."
8. Are you in favor of a family-oriented attraction on the beach or parking lot area such
as a Water Slide or beach entertainment pavilion operated for the benefit of the City?
28% Yes
72% No
2% No Answer
Comment: • The question might have been misleading to some, based on written
comments, such as "What has the city ever done for us?"
• We might have to seek further clarification by explaining that the
intent was that revenue should not go to a private interest, but be plowed
back to the Beach.
• Many explained No, because of added traffic problems.
• Four people suggested a movie theatre as a substitute.
CDsairwater Beach 0us Rfton Task Force 89
9. - Which would you favor? (Check one)
3% Convert beach are to parking area
20% Convert parking area to beach area
77% Neither of the above
Comment: • Compare this desire for no more parking with answers about parking in
Q12,13and18
• Three suggested "converting T-shirt shops to parking areas".
• Three others suggested building a pa:r!<ing garage
• One suggested more metered diagonal parking between 7-11 and Acacia.
10. Would you favor a toll on the Causeway to help pay for improvements on the Beach,
provided a special discount were given to Clearwater residents?
34% Yes 65% No 1% No Answer
Comment: • This question elicited the strongest comments in the margin, such as:
"Hell NOI" or "Absolutely not!" and "Where do you people get these
crazy ideas?"
• Several of the No answers added: "Free only to Beach residents".
• Many explained the No answer as meaning another form of tax, with
comments such as "My cash is lining too many politician pockets now",
or "Do mainland homeowners pay a toll to get home?"
• We might need to explore this one further by in depth questioning.
• "I would favor a toll only if it were $3.50 or more, with Cl Beach
residents free and a refund at motel or restaurants or shops if anything
bought. This would stop cruising and associated noise that benefits noone."
' 11. If Clearwater were to have some sort of mass transportation, which arrangement
would you prefer? (Check one)
20% Mass transport direct to the Beach
42% Mass transport to downtown with shuttles to the beach
40% No mass transportation
' Comment: Several of the No answers added comments, such as:
"We already have mass transport", "Mass transport never pays for itself"
12. Which of the following needs do we have on Clearwater Beach?
(Check all that apply)
61% Improved traffic flow
' 52% Improved store fronts and signs
50% Landscaping, green space
40% Improved sidewalks
' 37%
---- More police visibility
----------------------
--
34% --
Better traffic access to the Beach
30% Bus service to Publix and downtown
28% More parking for residents
22% More parking for visitors
' 20%
16% More night time activities
Less
olice visibilit
p
y
1 Qearwa4sr Beach iBius Ribbon Task (Force 90
Comment: • Attention to landscaping, store fronts and sidewalks confirms our p
priority to beautification.
• Again, relatively less demand for more parking.
• Compare the desire for more police visibility with complaints in Q 3
about traffic control measures on the week-end.
13. Whom should the city parking lots serve first? (Check one)
10% Tourists
25% Residents (locals)
60% General Public
5% No answer
Comment: • This was an attempt to see if there is need for parking OTHER THAN
WHERE IT NOW IS, and FOR WHOM. The question was not a good one,
because-answers indicated people thought of EXISTING city parking lots
and drew other comments such as:
"First come, first serve", and "no meters", and "keep them open longer"
• At least the answers showed no desire for special preference for those
who live on the Beach.
14. If Clearwater Beach should seek more hotels/motels, which type is preferable?
(Check one)
10% Small motels
10 % Large hotels
70% No more hotels/motels
10% No answer
15. What is your view of tourism here? (Check one)
2 0 % We need to promote it more
2 0 % We need to promote it less
60% It gets the right amount of attention
16. Are you in favor of making the Beach a special planning or redevelopment district
like the Downtown Development District? (Check one)
27% Yes 37% No 10% No Answer
27% Work jointly with Downtown
Comment: • Seemed to be a new idea to many people. Many questions, such as:
"How can this be done?"
• Also several strong comments: "Absolutely notl"
17. On a scale of 1 to 10 (10 = best), how satisfied are you with the following?
(Indicate level of satisfaction for each)
7.97 Jolly trolley services on the Beach
7.14 Emergency services to the Beach
6.83 Safety and security of your home
6.75 Cleanliness of Beach sands
6.55
---- Quality of restaurants on Beach
-------------------------
Vearwater Beach Mus Rbbon Task Fcrc® 91
n.
6.30 Cleanliness of residentiall areas
5.51 Number of drinking establishments
5.12 Noise control
5.11
---- Quality of retail shops on Beach
-------------------------
' 4.58 Traffic to and from CI Beach
4.54 Family entertainment on Beach
4.43 Traffic on Beach streets
4.41 Opening Dunedin Pass
' 4.35 General support from City personnel
3.85 Building restrictions
2.99 City taxes
Comment: • We are interested here in areas of relative satisfaction for most people,
so as not to be over-reacting to episodic or anecdotal information. The
' numbers shown here are the "average score" on the scale of 1 to 10.
The higher the number (e.g., 8.02) the more satisfaction (e.g., people
are most pleased with the jolly trolley) and less need to take action. The
lower the number (e.g., 3.02), the more dissatisfaction (e.g., people are
' most displeased with city taxes), and more need to take action.
• There's a top third of low priority for us; a middle third of some con-
cern, and bottom third of high priority.
' • The item on drinking establishments was a poor question. Some gave it
a high score, saying "we don't want any more of them"; while
others gave it a low score, saying "we don't need any more of them."
' • Opening Dunedin Pass was also a poor question. Some gave it a high
score, meaning they are pleased with no action, while others gave it a low
score, saying they don't want it opened.
' 18. How important is each of the following on a scale of 1 to 10 (10 = most important):
9.20 Controlling pollution of the Bay
8.60 Limiting property assessment increases
8.22 Eliminate cruising and association noise
8.08 Replacing Sand Key Bridge
7.24 Beautifying the main thoroughfares
--------------------------------
' 6
.86 Enforcing current code requirements
6.47 Limiting the cars coming to the Beach
5.43 Expanding public transport routes
4.75 Promoting the Beach as a resort area
--------------------------------
' 4.50 Relaxing building/remodelling limits
4.28 Attracting more special events
3.92 Adding more parking at public lots
' Comment: • This is the opposite of the previous question. We are looking for
relative priority. The numbers shown here are the average score on a
scale of 1 to 10. The higher the! number, the higher the priority to take
' action; the lower the number, the lower the priority to take action.
Again, there's a top third of high priority, a middle third of medium
priority and a bottom third of low priority.
• Note extremely high interest in pollution of the Bay.
Cisarwater [Beach BlIus Ribbon Task Force 92
19. Would you favor relaxing height limitations on building construction or
renovation?
23% Yes
74% No
3% No answer
20. Would you attend an open Town Meeting to discuss Task Force recommendations
before our report is finalized?
82% Yes
15% NO
3% No answer
Additional Comments to the entire survey:
• "Nothing will happen anyways"
• "We responsible dog owners would like a place to walk our dogs on the beach like other
areas offer".
• "Relocate bridge from mainland to Sand Key to avoid funneling traffic thru the Beach."
• "Secede from Clearwater" (six people).
• "What does the city do with taxes paid by people staying on the Beach? General Fund?"
Clearwater Beach BlIus Gibbon Task (Force 93
APPENDIX B
CLEARWATER BEACH COMMERCIAL SURVEY, JULY 1990
1. Respondents' type of Business:
Retail 1 9
Motel 13
Hotel 4
Restaurant/Snack Bar 7
Service 5
2. Respondents' years in Business:
1-5 years 1 2
5-10 13
11-15 8
16-20 9
28 1
30 2
40 - 1
42 years 1
Average business experience: 13 years
3. Customer Base:
Tourist 36
Out of state 9
Local/city 6
Foreign 3
4. Compared to customer base 5 years ago:
Foreign 29
Tourist 1 0
Out of state 5
Local/city 1
5. Customers that spend the most money.
Tourist 23
Foreign 13
Out of state 1 0
Local/city 7
6. Customer Preference:
Tourist 1 5
Foreign 9
Out of state 7
Local/city 1 0
N-47
OVearwater Beach Blue Ribbon Task Forge 94
Comment: Restaurants prefer locals because they are a year-round trade. Hotels/
Motels prefer tourists: they spend more money, make good guests.
'Hotel/motel operators usually raise their rates in season to make up
for off season. Restaurants in this area do not, probably because of
their local customers.
7. Type of customers:
Family 35
Couples 25
Students/young adults 5
Business 4
8. Type of customers compared to five years ago:
Same
9. Compared to five years ago, doing Lm business with:
Students/young adults 16 (by choice)
Business 9
Family 7
10. Percentage of customers that use city parking:
8 businesses 100%
4 60-95%
4 25-35%
11 5-15%
12 0%
8 no answer
11. Business activity times:
Morning 17
Afternoon 22
Evening 17
Night 5
12. Length of stay compared to five years ago:
Decreased 18 Increased 9 Same 3
13. Origin of customers:
Out of state 39 Foreign 11 Local 4
14. Best income months:
First: March 36 Second: April 22 Third: February 8
15. Business Activity:
Clearwaler Beach Bias Ribbon Task Force 95
Weekends 2 8 Weekdays 1 6 Same 2
16. Business activity is primarily:
Seasonal 38 Year round 9
17. Has business season changed compared to five years ago:
No 30 Yes 8
18. Repeat customer business compared to five years ago:
Increased 30 Decreased 1 1 Same 1
19. Customer age group:
40-65 years 28
25-40 20
17-24 1
20. Compared to five years ago, are your custome rs demanding more quality,
sophisticated, expensive products:
Yes ' 28 No 17
21. Reasons customers choose Clearwater Beach:
The beach 35
Friendliness 9
Family atmosphere 9
Sun/warm weather 8
Quality of life/
cleanliness 6
22. Most often heard customer compliment about the beach:
Beautiful, white sandy beach 22
Cleanliness 9
friendly atmosphere 4
23. Most often heard customer complaint about the beach:
Police traffic routing 21
Parking 17
Noise 1 2
Large presence of police 7
24. Activities customers want.
Night time activities 13
Family entertainment 5
Beach sports 6
Movie theater 5
Dancing, live bands 3
C?sarwatsr [Beach 31]ue R bbon Task Force 96
Amusement park 3
Outdoor concerts 2
Sight seeing 2
Museums
Craft shows
Quality shopping
Money exchange
25. Are your customers more price conscious today compared to 5 years ago?
Yes 32 No 6 No change
26. Most important business change in last five years?
Traffic problems 6
Less demand for business 5
Larger hotels 4
Lower quality of customers 3
European business 3
Shorter stay 3
Cruising 2
Less family business 2
More services offered 2
27. Changes in business you would want in the next five years:
Family entertainment activities 13
Improved parking/traffic 10
Improved city services (trash
sidewalks, police) 5
More latitude in building/
remodeling 5
Promotion and advertising 5
Upscale, quality shopping 4
Emphasis on importance of
tourism for Clearwater 3
28. The resort you would most like Clearwater Beach to be like:
Sanibel/Captiva 5
Longboat Key, St. Armand's Circle 4
Lahaina (Hawaii) 2
Vail/Aspen (Colorado) 2
Daytona Beach 2
Martha/s Vineyard 2
29. The resort you would r= want Clearwater Beach to be like:
Daytona Beach 26
Miami Beach 7
Atlantic City 7
Fort Lauderdale 6
8
Clearwater Beach Blue R!bbon Task force 97
30. Preferred convention center location:
Downtown 22
Beach 14
Sand Key 4
No center 5
31. The asset that draws most business to Clearwater Beach:
Beautiful white sandy beach 40
Family atmosphere 4
Friendliness 3
Weather 3
32. What would you improve in your beach community?
Traffic flow, traffic access to beach,
mass transportation 20
Landscaping, green space, sidewalks
store fronts/signs 15
Law enforcement, police image 14
Parking, lots open 24 hours, more
parking for residents, attendant
parking, remove meters 1 1
33. Who should the city parking lots serve first:
Tourist 17 Locals 1 4 Public 12
34, 35, 36, 37. Where should the boardwalk be located?
Along shoreline 33 No 13 Yes
Along parking lot 30 No 16 Yes
Street/blvd 30 No 16 Yes
None at all 15 No 26 Yes
38. Are you in favor of a beach attraction on the beach or parking lot area for a
Wet and Wild water slide or beach entertainment pavilion?
Yes 30 No 17
39. Mass transportation and shuttles from downtown to the beach with fewer
parking lots on the beach:
Very favorable 17 Yes 7 No
Mass transportation 13 Yes 7 No
40. Converting beach park lands into more parking lots:
Yes 8 No 32
41. Converting existing beach parking lots into more parklands:
Yes 1 0 No 36
C eairwat®r Beach CBDue R!bbon Task (Force 98
0
APPENDIX C
Guidelines for Location of Newspaper Dispensers
Circulation Managers/Area News Publishers
Gentlemen:
May 27, 1988
The City of Clearwater has from time to time received complaints from various citizens
and groups expressing concerns as to the existence of certain newspaper dispensers out
and about the community and requests that we seek their removal or relocation.
We have, when we perceived a significant degree of validity of the complaint (usually
relating to safety considerations), asked you on occasion to remove or relocate those
specific dispensers, and you have generally cooperated and done so.
Now, for some reason not known to us, we have for the past few months been deluged with
complaints relating not only to an occasional site-specific dispenser but containing
expressions of general displeasure with the numerical proliferation of the dispensers
and their impact on aesthetics. Complaints relative to safety have also greatly increased.
I myself have observed, as I never have before, that certain dispensers have even been
placed immediately adjacent to the street curblines on major streets, oriented toward
the motorists, presumably to invite motorists to stop in the outside traffic lane to
purchase a paper and, presumably, jump back into the car and proceed on their way.
Although we have a City ordinance which we believe clearly addresses the matter of
items of merchandising, or, for that matter, any physical substance, in the public
right-of-way, we have not, in deference to our respect for certain rights you enjoy,
applied it to you in any form beyond an occasional letter or phone call concerning a
particular dispenser.
It does now, however, seem advisable that we adopt a more structured approach to this
matter and.that guidelines be established which would address the safety of the public and
simultaneously recognize the unique and special consideration we believe due you.
Please attach the attached self-explanatory sketches which we have developed as
guidelines for dispenser placement. We believe them to be fair and reasonable. We
would hope that you might concur and honor the goals they were drawn to achieve.
Please also call or write my office should you have any comments or information which
would help us in any way. We would appreciate a reply by June 15, 1988.
We plan to begin enforcing a program of dispenser regulation after receiving your input
and arriving at what we can hopefully all agree is a reasonable form of monitoring.
Yours very truly,
William C. Baker
Director Public Works
ATTACHMENT
P
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Clearwatsr Beech Blue l1ften Task Fores 99
'
GUIDELINES FOR LOCATION OF NEWSPAPER DISPENSERS
1. Residential width sidewalk (3-5 feet),
with grass or shoulder area between
curb and sidewalk:
• Dispensers may not be located directly behind curb regardless of orientation
• Dispensers may be located in grass plot, adjacent to sidewalk and oriented
toward sidewalk
• Dispensers may not be placed in sidewalk path
2. Commercial width sidewalk (10 or more feet):
• Dispensers may be located on sidewalk, on either side, oriented toward sidewalk
and leaving maximum clear center path
CVearwater Leach Mus Mbbon Task Force 100
APPENDIX D
Architect's Rendering of Mandalay Front Elevations
(please see next unnumbered page)
Clearwater Beach Blue Ribbon Task Force 101
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Architect's Streetscape Planter Sketch
(please see next w unnumbered pages)
Usaawater Beach M us Mbbon Task Force 102
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Architect's Public Restrooms Sketch
(please see next unnumbered page)
Clearwater [beach Blue Mbbon Task Force 103
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APPENDIX G
' Proposed Changes in Auto Traffic
(please see next unnumbered page)
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APPENDIX H
Police Survey of Cruising Problem in Other Cities 12
The following is a summary of each agency's comments on their problems and the
solutions they have developed.
Clearwater, FL: Our experience is well known to all of us and I included it in the
survey as a point of reference for the other agencies. Our problem is primarily on
Friday and Saturday nights but also includes Spring Break and other holidays.
Clearwater has tried every possible method to curtail the problem with the traffic
diversion plan and Police Aides program being most successful.
Ft Lauderdale, FL: Their problems are weekends and Spring Break. They have tried
a variety of solutions. They attempted to enact an ordinance to control cruising but were
not able to as a result of an opinion from the Florida Attorney General indicating that
municipalities cannot control that type of activity on state roads. They are using a
traffic diversion plan that has brought the problem to tolerable levels. They also use
heavy enforcement of all laws and parking regulations.
Orlando, FL: Their problem is a weekend one and is centered on International Drive.
' The Drive is mostly hotels and shops that cater to the Disney World tourists. They use a
traffic diversion plan that is widely supported by the businesses in the area who pay for
the officers at a rate of $20.00 per hour for 15 officers and deputies. The businesses
opposed an attempt to make the Drive one way. All laws are heavily enforced. They
looked into an anti-cruising law but felt it would be unconstitutional and impossible to
enforce. They are satisfied with their efforts and although they still have cruisers, they
no longer have gridlocked traffic.
n
I I
0
Livermore CA: They had a long standing problem and had tried all other methods
without success. They enacted an anti-cruising ordinance which they heavily enforced
for about two months. Cruising increased during those months and media coverage was
intense. The ordinance proved effective and the cruising is gone. They found the
ordinance expensive to enforce, over $3,000 per night in overtime. They attribute the
success of the law to the heavy fines.
Los Gatos, CA: They too had a long standing problem and had tried all other methods
without success. Los Gatos enacted an anti-cruising ordinance, and amidst heavy media
coverage only wrote 13 citations. The business community did not support the ordinance
at first, especially those who were open while the cruisers were in town. Support
(grew) as the problem diminished. They view the ordinance as difficult and expensive to
enforce averaging $11,000 per weekend night. Although the problem is over, it sppears
it is returning.
Modesto, CA: This is another case of a city with a long term problem centering on
weekend nights. All other attempts to control it were less than successful. They passed
an anti-cruising ordinance and never had to enforce it because the cruising stopped.
They attribute the success to the heavy fine structure. They were prepared to issue
written warnings to every motorist that passed the check points and to divert traffic off
12 Excerpt of Memo to Chief of Police from Beach District Commander, 9/28/90
Clearwater (Beach (Blue Ribbon Task Force 105
of the street and into a parking lot to accomplish the task. They feel lucky that it was not
necessary to do those things as it would have been very time consuming and expensive.
Knoxville TN: Their problem lasted just one year. They employed the saturation
patrol and heavy enforcement method to the problem along with heavy media coverage of
a proposed anti-cruising ordinance that they never enacted. The problem has not
returned.
Mesquite TX: They had a problem for the past twelve years and had tried all other
methods with little success. They enacted an anti-cruising ordinance with a
misdemeanor of up to $500. Their ordinance does not require warnings and they felt
that issuing warnings would create a situation where the cruisers would continue to
cruise until they got a warning then park. They no longer have a problem although they
continue to monitor the area and are prepared to set up their check points whereever
necessary. The police used laptop computers to track the traffic so that citations could
be written when appropriate.
Renton WA: They had a long standing problem and had tried all other methods without
success. They enacted an anti-cruising ordinance and never had to enforce it but were
prepared to at all cost. They attribute the success of the ordinance to the heavy fine of
$250. They have a computer that tracks the vehicles going past the check points and
alerts the officer when a vehicle is in violation.
Recommendation: It is my opinion that an anti-cruising ordinance could be effective
under certain conditions. I believe that Florida State Statute 316.008 (t) allows
municipalities to enact laws that regulate emergency or special conditions. Cruising, is
most certainly a special condition. If the City chooses to enact an anti-cruising
ordinance then they must be prepared to propose a heavy fine in excess of $100 for the
first offense. A lesser fine would result in just another citation issued which we will be
able to count in the thousands. The ordinance should not include a requirement to issue
warnings prior to a citation for that would make enforcement extremely difficult and
much more intrusive in the community. The Community must be prepared for the police
presence necessary to endorce such a law with check points and signs and police officers,
for surely we cannot assume that the mere passage of the law will solve the problem
even as we hope that it will as it has in other communities.
York PA: The next unnumbered page from ABA Journal of July 1990 provides a
similar report on that city's experience, including a legal justification for such an
ordinance by a U.S. Circuit Court of Appeals.
Clearwater Beach [Blase Ribbon Task (Force 106
1
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BY PAUL REIDINGER
Trends in the Law
Off Road
Right to travel, but not to cruise
If you saw the movie "American
Graffiti," you can pretty well imag-
ine what York, Pa.'s downtown
streets look like on a summer's eve.
They are full of cars being driven
slowly and aimlessly by teens for
whom "cruising" is a time-honored
social ritual.
Teen-agers are not the best of
drivers, but York's cruisers are worse
than most. Inter-auto conversations
take precedence over traffic signals-
instead of running red lights they
stay put at green ones so as not to
interrupt the chat-and the volume
of traffic can be so heavy that a trip
of two blocks can take 20 minutes.
Buses and emergency vehicles are
sometimes held up.
None of this was good news to
the city fathers, who responded by
enacting an ordinance that prohib-
ited cruising-not only on summer
weekend nights but all nights. The
ordinance made it illegal to drive
past a "traffic-control point" (all of
them clearly identified) more than
twice in any two-hour interval be-
tween seven in the evening and 3:30
in the morning.
The cruisers responded with a
lawsuit that claimed the ordinance
was an infringement on their consti-
tutional right to travel. A U.S.
district judge dismissed their ac-
tion, and the U.S. Court of Appeals
for the 3rd Circuit affirmed, but not
before declaring that the doctrine of
substantive due process protects a
right of intrastate travel.
Yes mod me
The heart of the cruisers' com-
plaint was that the ordinance was
not the least restrictive means of
achieving the city's objective. The
city argued that even if there were
a constitutional right of interstate
travel, municipal regulation of a
local traffic problem did not impli-
cate the U.S. Constitution. The ap-
pellate court rejected both these
contentions.
Instead the court concluded
that "there exists an unenumerated
constitutional right of intrastate
travel" that "grows out of substan-
tive due process." But that right, the
court added, was subject to "time,
place and manner" restrictions akin
to those in First Amendment law.
Judge Edward R. Becker ac-
knowledged that "academic argu-
ments have been made for abandon-
ing the doctrine of substantive due
process altogether, either because
the Due Process Clause on its face
seems to regulate only matters of
procedure or because any doctrine of
implied fundamental rights argua-
bly intrudes upon the majoritarian
processes by which a democratic
society governs itself."
But he said that the Supreme
Court's complete repudiation of sub-
stantive due process was "an un-
likely prospect" and that it there-
fore fell to the courts to make
"unquestionably ad hoc judgments"
about what substantive rights the
due-process clause does and does
not protect.
"We conclude," he said, "that
the right to move freely about one's
neighborhood or town, even by auto-
mobile, is indeed `implicit in the
concept of ordered liberty' and `deeply
rooted in the Nation's history.'"
That right is not; absolute, how-
ever: "Must as the right to speak
cannot conceivably imply the right
to speak whenever, wherever and
however one pleases-even in pub-
lic fora specifically used for speech-
so too the right to travel cannot
conceivably imply the right to travel
whenever, wherever and however
one pleases -even on roads specifi-
cally designed for public travel."
The city's anti-cruising ordi-
nance was reasonable, Becker said,
because "York's interests in ensur-
ing public safety and reducing the
significant congestion caused by cruis-
ing are plainly significant," while
the ordinance "prohibits only cer-
tain repetitive driving around the
[downtown] loop...."
nm Tmm
The court also rejected an over-
breadth claim, noting that the doc-
trine "has never been recognized
outside the context of the First
Amendment...."
(Lutz v. City of York, No. 89-
5252, March 28, 1990.)
$Z ABA JOURNAL/ JULY 1990
APPENDIX I
Proposed Eastshore Area Redevelopment Plan
(please see next unnumbered page)
Usarwater Beach Mus Mbbon Task Force 107
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APPENDIX J
Architect's Pavilion Sketch
(please see next unnumbered page)
I Usarwat®r Beach Blase Ribbon Task Force 108
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APPENDIX K
Community Redevelopment Agencies (CRA)
1. History: The basic concept of using tax increment financing was first used in the
early 1950's in California. This concept was later refined and expanded
by the mid to lat 1970's in Washington, D.C. into the concept presently
used.
II. Purpose: The basic purpose of a CRA is to be the impetus (by means of condemna-
tion for private development and tax increment financing) of the
redevelopment of an area of "blight", by either private developers, the
local government or a joint effort between local government and private
developers.
For example, in area in Washington, D.C. has deteriorated to a point
where properties were unsafe and abandoned, store fronts burned out and
crime rampant. The area had basically ceased to exist as a retail, office
or residential market. Thus, in the early 1970's the Pennsylvania
Avenue Development Corp was established to formulate a plan and method
to complete the plan for the redevelopment of this area. (Parcel 254-A,
National Square). The plan envisioned 410,000 sq. ft. of office, 774
motel rooms, 75,000 sq. ft. of rental, 1700 seat theatre and 450 parking
spaces. The plan was adopted by Congress in 1975 and vested for the first
time to a Public Corporation (rather than a government composed of
elected officials the following:
1. the "expanded" powers of Eminent Domain
2. the ability to raise funds by various techniques (tax increment
financing, special taxing district, etc.)
3. the right to oversee and approve both public and private development
4. the right to enter into Development Agreements within the district on
behalf of the local government
5. the right to purchase, hold or lease land and buildings, while
assembling for large scale development
6. the right to provide financial support and financing to the developer in
order to make the development more .1ancially rewarding (to buy down
the risk to the developer).
III. How a CRA Operates:
1. The local government establishes the Agency by ordinance. In Clearwater this
was done by Resolution No. 81-68.
2. The local government establishes the need for the redevelopment and
establishes the area to be developed. In Clearwater Resolution No. 81-67
established the "blighted district" which was to be made available for
redevelopment.
3. The local government, through its CRA, establishes the sources of revenue.
These sources would include tax increment financing, community
CVeairwater Beach Blue Mbbon Task Force 109
development block grants, urban development action grants, special
assessments, etc.
4. The local government, through its CRA, advertises for developers through a
Request for Proposal (RFP).
5. The local government, through its CRA and developer, awards a developer with
the project and signs agreements.
6. The local government, through its CRA and developer, completes feasibility
studies.
7. The local government, through its CRA then assembles and clears the site for
the developer.
8. Development commences.
IV. Tax Increment Financing
Tax increment financing became popular in the late 1960's as federal funds for
urban projects became scarce. This mechanism uses projected increases in property tax
revenues in a development area over a specific period of time to back bonds that are used
to finance project costs in the area. Only the tax base - not the tax rate or the tax
revenue - is frozen during the years when a tax increment program is in effect. All tax
increments realized during that time by all taxing entities with jurisdiction- in the
development area are turned over to the local development agency to be used to retire the
tax increment bonds. The decisions about whether and how to use tax increment
financing are made entirely by local officials.
The tax increment district is usually a deteriorating area of the city where
redevelopment or new private development requires some kind of municipal incentive to
take place. With the adoption of a redevelopment plan for the area, there are to be
included in the tax increment district is established and the tax base determined.
The tax base is the assessed valuation of teach property in the tax increment
district or redevelopment project area at the time of the last equalized tax roll. Each
taxing jurisdiction continues to receive its percentage of the taxes collected based on the
level of assessed valuation at the time the plan was adopted, but any increased taxes (the
increment) resulting from increased property value or new construction are allocated to
pay for improvements in the project area. The formula used to determine the amount of
the tax increment is:
1=r(n-i)
where:
I = the tax increment
r = the tax rate
n = the new assessed valuation produced by development
i = the assessed valuation at the time the plan was adopted
Tax increment financing can be used for long term debt service or direct capital
costs. Typically, it covers land acquisition and site preparation, relocation expenses,
public improvement, public facilities, administration costs, and consultant costs. After
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u
i
I 0
i]
C
u
n
0
F
J
0
u
project related indebtedness is paid off, the increased tax increment then reverts to
general revenues (unless earmarked for another potential project):
Using Clearwater as an example of how tax increment financing operates:
the district was defined in 1981 and generally encompasses from Drew St. on the North
to basically Park St. to the South to Fredrica on the East to Osceola on the West. The ad
valorem taxes in 191 were $84,658,490 when the ordinance was enacted. The ad
valorem taxes for the 1989-90 were $158,802,070. The tax rates for Pinellas
County and Clearwater totalled approximately 13 mills. Using the formula "I = r(n-i)"
I (tax increment) = tax rate x (1989-90 assessment - 1981 assessment)
= 13 mills x $74,143,590
tax increment = $964,000
Thus Clearwater Community Redevelopment Agency has approximately $964,000 to
spend on projects within the district for the year 89-90. This amount could also be
bonded to create a lump sum for redevelopment in the millions of dollars.
V. Benefits of a Community Redevelopment Agency:
1. To the City:
A. A blighted area is redeveloped into a more attractive, vibrant market
B. As a result of the new development, higher taxes are created, both
sales taxes and property taxes
C. As a result of the. new development, new jobs are created within the
district.
2. To the developer:
A. Land assemblage is provided for him by the CRA. whose condemnation
powers are vastly expanded in a blighted redevelopment district.
B. Favorable terms could be extended to the developer in purchasing or
long term leasing of the land assembled for development by the CRA.
C. Favorable financing could be provided to the developer by the CRA;
from buydowns on the interest to assistance in his up-front development
costs. (The combination of B and C help reduce the risk to a developer.)
D. As an added incentive, the city may become a tenant in the new
development. By doing this, the developer further reduces risk and also
obtains a lease which can be used to finance more of the development.
Vi. Liabilities of a CRA
1. To the City:
A. The tax increment which is reinvested into the district never reaches
the general operating fund of the city. Thus, as the years progress and the
cost of the city services increase throughout the city, those areas not
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within the redevelopment district incur a disproportionate share because
any increase in property taxes from the district is reinvested only within
the district for development purposes.
B. If the redevelopment project underwritten and financed by the CRA is
not successful, the agency could be required to continue to pay on an
obligation .for years in the future.
C. If a redevelopment district is established in an area where true
"blight" does not exist, a negative business environment would be created
for the business within that district.
D. There could be tunnel vision on the part of a CRA, whereby only one
type of development is selected (such as only office buildings will be
built) or a project beyond the economic constraints of the district is
undertaken, which would jeopardize any future activities if the project is
unsuccessful.
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