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05/17/1999CITY COMMISSION WORK SESSION CITY OF CLEARWATER May 17, 1999 Present: Brian J. Aungst Mayor/Commissioner Ed Hooper Vice-Mayor/Commissioner J. B. Johnson Commissioner - departed 1:12 p.m. Robert Clark Commissioner Ed Hart Commissioner Also Present: Michael J. Roberto City Manager Richard L. Hedrick Deputy City Manager Bob Keller Assistant City Manager - arrived 9:30 a.m. Pamela K. Akin City Attorney Cynthia E. Goudeau City Clerk - arrived 9:41 a.m. Sue Diana Assistant City Clerk - departed 9: 42 a.m. Patricia O. Sullivan Board Reporter The meeting was called to order at 9:00 a.m. at City Hall. Service Awards Three service awards were presented to City employees. PR PARKS AND RECREATION Contract for development of Cherry Harris Park to Macre Construction, Inc., for $489,430.64, including 10% allowed for contingencies, and approve subsequent change order deduct in the amount $72,827.95, and approve transfer of $169,681.20 from other capital improvement projects at mid year Plans to renovate Cherry Harris Park have been discussed for since 1997. Renovations will move forward One City. One Future. initiatives in the North Greenwood community. Primary elements include demolition of the picnic shelter and restroom, construction of two picnic shelters, restrooms, concrete sidewalks, and installation of curbing, decorative lighting, benches, trash containers, a decorative entryway, monument, drainage and 22 asphalt parking spaces. Staff will remove existing sidewalks, curbs, pavement and base on Washington Avenue, and provide earthwork, reclaimed water, irrigation, landscaping, sod, drinking fountains, horseshoe pits, and other site amenities. The projected total cost of $474,783.20 includes a 10% contingency and has a shortfall of $169,681.20. If approved, the shortfall will be funded at mid-year by transferring funds from projects, which have been completed or can be accomplished with other resources. Enhancements to the original budget reflect the desire of residents and staff to construct a new restroom, additional parking spaces, and new entryway features. Parks & Recreation Director Art Kader said the park is a focal point of the community. Over the last 3 years, residents have helped redesign the 3-block long linear park to include a decorative entryway, wider walkways, larger picnic shelters, a new restroom, enhanced amenities, and a monument to Cherry Harris. The traffic pattern has been altered for safety. The increased budget is due to enhancements. Money from other department projects will be redirected to this park. In response to a concern that other projects not be impacted, Mr. Kader said the development of Lake Chautauqua Park cost less than budgeted. A $50,000 grant was used to construct the bicycle trail. The City is meeting all other commitments in North Greenwood, including improvements and lighting replacement for business district parking. In response to a question, the City Manager said all homes around Cherry Harris Park have been noticed and a large board has been posted regarding the traffic changes. No opposition has been received. The park will be completed in mid-September. PW PUBLIC WORKS Contract for Clearwater Beach Adam's Mark Seawall Repairs to M&J Construction Company of Pinellas County, Inc., $173,831.35 This contract will construct an 80-foot T-WALL retaining seawall and a 45-foot rubble-mount jetty. The structure will replace a failed system. The rubble-mount jetty ties together riprap adjacent to the Adam’s Mark property and jetty. Work will include the delivery of T-WALL precast units to the site. To install the wall in dry conditions, the contractor shall use one-sided sheet piling with dewatering. The rubble-mound jetty extension into the Gulf will complete the gap and be shaped in accordance with permits. Beach backfilling and regrading will match the new seawall and existing beach areas. The project will be completed within 75 days. In response to a question, Public Works Administrator Rich Baier said following discussions with staff, issues related to the bidding process were resolved to the satisfaction of the person who had complained. In response to a question, the City Attorney was unaware of added exposure related to constructing the jetty without a light. Staff will consider risk management issues and determine if other action is needed. In response to a question, Mr. Baier did not know of any grants that could be used to cover this maintenance issue. Contract to purchase real property from Edwin L. Lee, 1012 Seminole St., Pine Crest Sub., part of Blk 6, $105,000 plus costs for environmental audits, termite inspection, survey, closing expenses & partial demolition estimated at $6,500, for total not to exceed $111,500 from available Open Space and Recreation Land Impact Fees In 2001/02, construction of the North Greenwood branch library and a community recreation facility are planned for Ray Green Field, a 4.55 acre City ballfield at the North Greenwood/Palmetto intersection. Edwin Lee’s property abuts the ballfield on the south, providing direct access to the parcel from Seminole Street. The purchase would enlarge the parcel by 14,260 square feet and facilitate planned development. The property is being marketed for $139,000. On March 29, 1999, Richard Tobias, MAI of Valuation Services, Inc. appraised the site and estimated the current market value to be $94,500 based on “comparable sales,” and $105,000 based on the “replacement cost.” Mr. Lee has agreed to sell the property for the higher figure and pay his related closing expenses. The City will raze the smaller masonry building at a cost of approximately $2,000. The larger warehouse will provide interim storage and possible long term uses. In response to a question, Mr. Baier said 5 people own the 6 remaining lots. Prices for those lots will vary. In response to a question, the City Manager said the City can use Brownfields money for environmental audits if desired. PRESENTATIONS Downtown Plan Charles Siemon, of Siemon, Larsen & Marsh, said the library's location will be a key element to downtown's redevelopment. He said downtown must become a destination. The demographics within 10 miles are strong. The bridge must be constructed to provide convenient access to downtown. He recommended Myrtle Street be developed as a north/south boulevard to access downtown and restructure Fort Harrison as a local downtown street with wider sidewalks and a comfortable pedestrian environment. Downtown needs to be a distinctive destination. The institutional district to the south is a major draw. The bluff is a major resource. The north end could support a mixed use of light industrial, offices, and light retail. He said between 250 and 500 downtown living units would solidify day and night activities. He suggested the area east of the Town Pond to Court Street could include a mix of public and private uses. Objectives include providing Cleveland with a distinctive character that makes it a destination. The convenience of the automobiles needs to be subordinated to pedestrians. The quality of the downtown experience is more important than the road's level of service. Proposed changes would result in traffic delays counted in seconds. Mr. Siemon recommended improving the facades and sidewalks and recommended a uniform look include similar trees, street lights, park benches, bicycle storage, seating outside restaurants, and ground level greenscaping. Parallel parking should remain. He suggested planting major oak trees on periodic medianss to introduce shade and interrupt the turn lane for pedestrian crosswalks with pavers. FDOT (Florida Department of Transportation) will allow the changes after the SR 60 designation is changed to Court Street. He said the recommended changes have a sense of urgency. Within several years, the bridge will be completed and the end of Cleveland Street will be closed. The City cannot wait until that time to redevelop downtown but needs to provide direction and sense of momentum. He recommended a one -two block pilot project begin soon. He said Myrtle Boulevard can be designed to be attractive. Its intersection with Cleveland Street will provide a sense of "being there." He recommended planting additional trees along Fort Harrison. That street's right-of-way is too narrow to allow parallel parking. Mr. Siemon said the City cannot wait for a private catalytic development to spark downtown's renaissance. The City needs to construct parking garages, new main library, and actively recruit a major redevelopment project. He said the primary downtown redevelopment area has been identified between Drew Street and Cleveland, and Fort Harrison and the bluff, which offers water views. Locating the library on the bluff will impact redevelopment opportunities. He said the Harborview Center can be enhanced. Many developers may have ideas on ways to incorporate that structure into a major project featuring entertainment and mixed-uses that attract interest. Redevelopment items could include structured parking and an amphitheater and other improvements to Coachman Park. He recommended a mix of entertainment, residential, parking, retail, and restaurants. The City controls much of the property on the bluff although development would require referendum approval. He felt residents would support a clear plan and worthwhile project. Downtown's east side also needs redevelopment. He said public investment could create another downtown anchor. Constructing the new library on Myrtle Street also would create redevelopment opportunities. Modeling traffic needs will take time. Mr. Siemon recommended a strategy to close Cleveland Street now and immediately pursue the Myrtle bypass option to realign Alternate US 19 off Fort Harrison. Without pedestrians, the downtown's west end will suffer. The Commission needs to make policy decisions regarding a catalytic redevelopment project and the bluff to communicate to developers the type of projects that could be considered. After those decisions are made, he recommended publishing an RFP (Request for Proposals) for a developer to be selected based on credentials. Design work should be done with citizen input. The only uncertainty is the outcome of a referendum regarding bluff development. He recommended including the Harborview Center and new library in the RFP to cast a broad net and maximize opportunities. In response to a question, the City Manager said Assistant City Manager Bob Keller currently is working on a downtown residential component. He estimated a total of 1,000 units are needed within walking distance or less than a 5-minute drive from downtown. Mr. Siemon said the private sector must be informed of the City's direction. The City Manager said the biggest failure of government is to design projects in a vacuum without public input. In response to a question, Mr. Siemon said the farther downtown redevelopment falls behind efforts on the beach, the harder it will be to accomplish. The City's future will be defined within the next 10 years. In response to a question, the City Manager said staff would hold a presubmittal conference for the RFP as its marketing is important. If aggressive, the RFP process can be completed in 6 months. The design process with Commission and public input will take another 6 months. In response to a question, he said plans are to design the new library in 2000 and construct it the following year. Mr. Siemon said he would like to give as many developers as possible the opportunity to leverage funds and maximize the return on City dollars. Mr. Siemon said the RFP or RFQ (Request for Qualifications) would be clear regarding the referendum requirements related to the bluff. In response to a question, he said while the need for a referendum may be a disincentive, it is not a deterrent. He said Stein Mart could remain in the Harborview Center and be a retail anchor of significance. Other possible uses for the facility could include additional retail space, a cinema, or IMAX. The facility also could be converted to function as a library museum or provide a civic anchor to redevelopment. He recommended the City leverage its existing resources. Concern was expressed upgrades to Cleveland Street not take 20 years. In response to a question, Mr. Baier estimated it would take 2 years to redesignate Myrtle Avenue as Alternate US 19. In response to a request, the City Manager said staff is applying for a grant to improve Pinellas Trail in downtown. The railroad has expressed interest in reinforcing its track. Mr. Siemon said a major effort is needed to extend the trail to Clearwater beach. Concern was expressed the quality of the new library should not be jeopardized by tying it to downtown development or the Harborview Center. Support to beautify Cleveland Street was expressed although hesitation at considering bluff development was stated. In response to a question, the City Attorney said staff is reviewing title work related to the bluff for reverter clauses and development restrictions. She said lease terms will impact the bidding process. Currently, the charter limits leases to 60 years. It was suggested Cleveland sidewalks could be widened with parking relocated behind the buildings. Mr. Siemon indicated the new library must serve the City's 21st century needs. The meeting recessed from 10:58 to 11:17 a.m. Library Master Plan Assistant Library Director John Szabo reviewed the background of the City's library system and master plan. The current main library has 49,435 square feet of which two-thirds is usable for library purposes. It is recommended the size be doubled to handle its large collection and headquarters duties such as maintaining information on the City's award winning web site, mailing overdue notices, and acting as a depository for federal documents. The North Greenwood branch, built in 1950, houses the City's African-American collection and had 31,000 visits last year. The beach branch, opened in 1961, features the Wickman Books of the Sea and had 93,000 visits last year. The East Library was constructed in 1985 as the first full service branch. The Countryside Library, built in 1988, is the City's newest and busiest and shares the same floor plan as East. One-third of that branch's circulation is to County residents. The library experiences heavy use by children. Library standards recommend full service libraries be constructed at least 3 miles apart and neighborhood libraries serve a 1-mile radius. Clearwater's library system is rated 32 of 395 library systems in cities with populations greater than 100,000. The City's library has a 1.2-million annual circulation with 82,000 borrowers. Library programs include Internet training. All City libraries exceed the standard number of reference questions. Only the beach and North Greenwood branch have annual circulation below the norm. The City's cost of providing library service is well below the national average. Currently, only the Main Library is adequately staffed. The Countryside Library has outgrown its space and needs a separate children's area, computer lab, and more hours of service. The building was designed to expand to the west. It was recommended expansion be delayed until plans are final regarding the fire station next door. A future bond issue is suggested to finance future construction. The East Library was constructed on a small lot and has no room to expand. It was recommended that branch be sold and relocated to SPJC (St. Petersburg Junior College) or Clearwater Mall. Sharing space with the college would save operating costs, permit expanded hours, and increased resources. It is anticipated a new North Greenwood branch will be constructed with Penny for Pinellas funding. Staff has applied for a grant for the library, which will be next to a new recreation and aquatic center planned for 2001 at Ray Green Field at the intersection of North Greenwood and Palmetto. The Beach branch's move to Pelican Week has been well received. It is estimated the replacement should have 65,000 square feet. The new branch could include a community room, visitors' center, police substation, Jolley Trolley offices, and a parking garage. A previous task force had recommended a new Main Library to be constructed in 2001. They had felt its present location is ideal as it has public transportation, convenient parking, and attracts pedestrian traffic to a place where people naturally converge on a daily basis. The ideal location is near a concentration of retail and offices but not in a government center. The location does not have to be in the City's geographic center unless other criteria require that. In 1993, a 90,000 square-foot facility on the current site at a cost of $12-million was recommended. In 1996, 25 focus groups reviewed that plan and found it did not offer enough and recommended a separate area for teens, additional meeting rooms, a reading courtyard, computer lab, and parking garage. It was suggested the library could be attached to the Harborview Center. This design would have 112,000 square feet. In 1998, architects, Harvard, Jolly, Clees, and Toppe, and architect Robert A.M. Stern began work on a schematic design for the bluff location. It was felt a 90,000 square foot building would be adequate if enough public meeting space existed near by. The cost for that building is estimated at $20.9 million. Services were reviewed that could not be included in a smaller building, including a computer lab, security guard station, a Friends of the Library work room, and adult literature training, and children's area. Sites under consideration: 1) NW corner of Court and Myrtle - $5.2- $5.5-million; 2) SW corner of Cleveland and Myrtle - $4.9-million; 3) Cleveland Street Dimmitt property - $5.3-million plus remediation costs; 4) current bluff site - $300,000; and 5) Harborview Center option - $21 - $26-million. Harborview Center add ons could include a $4-million exhibit hall, $1.9-million museum, or $4.1-million retail arcade. Land costs will affect construction costs. The library will require 3 acres for landscaping and 360 parking spaces to meet code. Estimates do not include remediation, asbestos removal, or complications that may occur during demolition. Available funding includes $1.2-million in current Penny for Pinellas funds for the architectural design, $10.8-million in new Penny for Pinellas funds, and $500,000 from the Eleanor Slenker trust, for a total $12.5-million. If the East Library is joined with SPJC, $1.5-million in Penny for Pinellas set aside for a new East library could be used for Main. It was suggested $1.5-million in Penny for Pinellas funds budgeted for the Town Pond also could be used if that project receives a grant. Private contributions will need to be raised once the site and schematic design are finalized. If a final decision is made in June 1999, the new Main Library could open in summer 2003. Quality of Life Administrator Arlita Hallam said the decision on the future of the Countryside Library can wait. She recommended resuming negotiations with SPJC so the college can submit a funding request to the State. In response to a question, Dr. Hallam said the library can be designed as a signature building. The bluff location is near retail which will attract pedestrian access and offices where many library clientele work. She said access to community rooms is important. She expressed concern the library retain control of meeting rooms if the facility is attached to the Harborview Center. Expanding the Harborview Center into the west parking lot had not been considered. The previous task force had preferred the annex site where IMR is now constructing its headquarters. John Toppe, of Harvard, Jolly, Clees, and Toppe, said the Library could be a catalyst for downtown development. Dr. Hallam requested City Commission direction, and asked them to limit site selection to one or two sites. The City needs to prepare a referendum if the City borrows money to construct the library or chooses to build on the bluff below 28 feet. The Penny for Pinellas funding will not be available until 2007. Deputy City Manager Rick Hedrick said the least expensive options would be to construct the library on its present footprint or as a part of the Harborview Center facility. All other options increase the cost to more than $20-million. Concern was expressed the library's cost continues to increase. It was felt the City should not sacrifice quality for quantity. Support for the Dimmitt property site was expressed. It was noted all but one of the City's paid consultants had recommended the bluff site. It was felt the project should not be delayed while an RFQ for downtown is published. If the library is less than 2 stories high, development across the street will have vistas from higher floors. Dr. Hallam noted the current library does not take advantage of the bluff or vista. She said it makes sense to construct a facility that cascades down the bluff. It was stated parking will have to be buried below the bluff if the asphalt along the harbor front is removed. The majority of the City Commission directed staff to resume negotiations with SPJC for a joint-use library. In response to a question, Dr. Hallam said plans for the future of the Countryside Fire Station are in a discussion stage only. It was stated the City should not be driven into financial straits due to construction of the library. It was stated a report on Harborview Center activities is needed before that facility can be considered. The City Manager said an update is planned. Concern was expressed the development potential along Osceola may preclude locating the library at its current site. It was stated the City can build a quality library attached to the Harborview Center which can serve 2 purposes. A tradeshow space without columns could be added. The City wants to retain Stein Mart and will work to resolve parking issues. It was stated the City should not jeopardize the relationship between the Harborview Center and USF (University of South Florida). It was felt pursuing a RFQ will not negatively impact the library project. In response to a question, Assistant City Manager Bob Keller said blocking view corridors will have a negative effect on redevelopment possibilities. If the library is a signature building, it has a tremendous potential to attract people downtown. Mr. Keller said the City currently has a great deal of meeting space. He supported Mr. Siemon's recommendation to spend several months to determine downtown’s development potential. Mr. Siemon said while the library should be located downtown, the facility is not enough to guarantee downtown success. It was noted the City is between $5- and $6-million short of funding to construct the library it wants. In response to a question, the City Manager said an outline of a RFQ could be presented on June 3, 1999. Mr. Siemon said the RFQ would take up to 45 days to develop and distribute to a good list of likely candidates. He anticipated replies would be received by August. All charter restrictions must be considered. The meeting recessed from 12:44 to 12:55 p.m. Mandalay Streetscape Charles Siemon, of Siemon and Larsen, said the level of service on Mandalay Avenue is acceptable. Problems exist during peak days such as Spring Break and July 4th when demand exceeds capacity at intersections. He said as a retail street, Mandalay is neither functional nor attractive. Mr. Siemon said decreasing the number of lanes will not affect the road's level of service but will affect its character. On-street parking provides a barrier between pedestrians and the travel lane. Mr. Siemon reviewed options for Mandalay: 1) 4 lanes of traffic, parallel parking on both sides, 5-7 foot sidewalks; 2) 4 lanes of traffic, no parking, 15-foot sidewalks; 3) 3 lanes with center turn lane. parallel parking on both sides, 15-foot sidewalks; 4) 2 lanes of traffic, parallel parking on both sides, 15-foot sidewalks; and 5) 2 lanes of traffic, parallel parking on one side, 15-foot sidewalk. He said wide sidewalks and on-street parking will support a successful retail street. Median landscaping is possible. Wide sidewalks could feature an arcade of sidewalk cafes. He said one lane in each direction will carry enough volume to provide a high level of service. Lanes would be wide enough to allow passing someone waiting for a space. Option one offers narrow sidewalks and little retail street function. Option 2, with no on-street parking, preserves the high traffic flow but will expose pedestrians to street traffic. He said this option will not generate pedestrians for retail. Mr. Siemon said this option would not provide a sense of place. Option 3 would reduce the level of service on Mandalay to D+. The advantages of the option are wide sidewalks, on-street parking, enhanced aesthetics, and the best retail function. Option 5 would create inconvenience due to one-way traffic which would impact on the retail function. It was felt new development would dislike this option. Mr. Siemon said limiting Mandalay to 2 or 3 lanes is reasonable, aesthetic, and will help attract retail. He said it is critical to maintain the momentum of beach development. Opposition to Option 5 was expressed. Resident opposition to one lane in each direction was noted. It was suggested a parking garage constructed behind Pelican Walk can remove parking from the street and permit wider sidewalks while maintaining 4 lanes of traffic. It was stated residents of the north end of the beach have no alternative routes. Mr. Siemon disagreed 4 lanes are necessary for smooth traffic flow and said they would be incompatible with the street's retail function. He said traffic backup is not due to the number of lanes but is caused by the causeway intersection. Concern was expressed regarding current problems with double parking along that stretch. Mr. Siemon suggested the road could be restriped for a trial period of time. Parallel parking could be removed and later replaced. If no changes are made, progress will not occur. Concern was expressed trucks currently block one traffic lane in that area. Preference for Option 3 or 4 was noted. In response to a question, Mr. Siemon said the option for 2 lanes of traffic will include some bypass capacity. The City Manager will bring forward ways to restrict the size of delivery trucks or the hours of delivery on the beach. Concern was expressed cafes not cause pedestrians to walk near the street. The City Manager said some potential redevelopment opportunities exist for cafes on widened sidewalks. In response to a question, the City Manager said upgrades to Mandalay are planned after completion of the roundabout. Mr. Siemon said development proposed by Cheezum would revitalize or replace structures on the west side. That decision will be based on flood elevation requirements. Concern was expressed high speed evening traffic needs to be controlled north of the Clearwater Beach Hotel. In response to a question, Mr. Baier said a pedestrian cross signal with pavers and signage is planned midblock near the Hilton Hotel. Concern was expressed removing the parking along Mandalay will encourage speeding. The City Manager said a series of public meetings will provide the opportunity for community input. In response to a question, Mr. Siemon said the roundabout will lose gaps once the new bridge is complete. Gaps can be created by stopping traffic at Island Way. In response to a question, Mr. Baier said laneage is adequate to handle an evacuation. On-street parking would be removed. Concern was expressed gridlock conditions exist on Mandalay on most weekends. OTHER CITY ATTORNEY ITEMS In reference to the title loan business, the City Attorney stated Hillsborough County is considering an ordinance to limit usury rates. While Pinellas County has discussed the issue, no legislation has been proposed. Hillsborough County has suggested its ordinance be an area model for uniform regulation of the industry. Pasco County also plans to consider legislation on this issue. The City Attorney will check the status of a broader ordinance in Duval County that is in litigation. It was suggested a uniform policy for the region makes sense. The City Attorney reported staff is working on listing options related to swimming pool enclosures. The City Attorney requested an attorney/client session regarding Rifkin versus the City be scheduled for June 1, 1999, at 9:00 a.m. Consensus was to so schedule. City Manager Verbal Reports The City Manager reported City involvement is important on a new committee which combines the Wages Coalition with the Work Force Development Board. Staff will attend the first meeting on May 19, 1999. A tentative schedule of future meetings was requested. Commission Discussion Items The CAP (Civil Air Patrol) has requested to locate a temporary building at the Airpark for meetings. Harbormaster Bill Morris said the Airpark master plan will be completed in September. The City Attorney said a temporary building is permitted while construction is occurring. The CAP wants the structure to remain up to 3 years. In response to a question, the City Attorney said the code would have to changed to permit the CAP's temporary building during time other than construction. As much as the City Commission wants to help the CAP, concern was expressed approval would cause many other problems. The City Manager said staff will work on other options. Other Commission Action Commissioner Hooper stated downtown property values have increased. Commissioner Hooper referred to a problem related to a fence permit. The resident, Mr. Paterson, claims staff now indicates the fence is in the right-of-way and must be removed. Acting Planning & Development Director John Asmar said it is not known who moved the stakes into the City right-of-way between the time of approval and fence installation. The problem was discovered at final inspection. The City Attorney suggested, due to the size of the right-of-way, the City may consider vacating a portion of it. Commissioner Hooper reported he cannot attend the June 8, 1999, budget meeting. Rescheduling will be considered Thursday night. Commissioner Clark thanked Acting Planning & Development Director Asmar for addressing downtown problems promptly. Adjourn The meeting adjourned at 2:32 p.m.