LAND DEVELOPMENT REGULATIONS - CRITICAL ASSESSMENT ISSUE REPORT
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LAND DEVELOPMENT
REGULATIONS
CRITICAL ASSESSMENT ISSUE REPORT
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FEBRUARY 25, 1998
PREPARED BY:
SIEMON, LARSEN & MARSH
Strategic Land Planning & Management
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City of Clearwater
Land Development RegulationS
CRITICAL ASSESS:MENT ISSUE REpORT
Prepared by:
Charles L. Siemon & Wendy U. Larsen
Siemon, Larsen & Marsh
I. INTRODUCTION
In 1996 a Land Development Code Revision effort was commenced, led by City staff and
supported by a citizen's advisory committee. A summary report of proposed changes was presented
to the City Commission in early 1997 and a general consensus was reached about many of the
recommendations. In October 1997, the City entered into a contract with Siemon, Larsen & Marsh
to complete the Code Revision work. One of the first tasks of this project was to review existing
legal and planning documents, interview elected officials, staff and key participants in land use in
. the City, including those who worked with the City on the Land Development Code Revision effort.
This report is a summary of this first phase, a written critical assessment of "existing conditions" in
the City in regard to land use controls, identifying procedural and substantive issues which should
be addressed during the completion of the revision of the City's regulations.
The next phase of the Code Revision work is the preparation and discussion of a strategic
land management approach for the City, an annotated outline of new land development regulations
and a tracking matrix, identifying the proposed location of existing land development regulations
in the new code.
This Assessment R~port is organized into three sections in order to highlight what we see as
the most significant issues which need to be addressed in this revision effort: Overall Formatting,
Process and Substantive Issues.
CITY OF CLEARWATER
CRmCAL ASSESSMENT ISSUE REPORT
FEBRUARY 25, 1998
PAGE 1
II. OVERALL FORMATTING
The existing format of the LDRs undermines their useability. No interviewee expressed
satisfaction with the organization of the existing land development regulations. In fact, every
interviewee (City staff as well as interested "users") agreed that the LDRs are difficult to use. At
least in part this is attributable to the overall organization of the LDRs which rely upon frequent
cross references (some of which are readily apparent and some of which are not)l and haphazard
placement of some sections.
Simple organizational improvements would greatly enhance the useability and overall
"friendliness" of the LDRs. Included with these "simple" improvements are:
1) a general reorganization,
2) consistent organization of the elements of individual sections,
3) section numbers in the margin of the printed page,
4) the use of headers and/or footers which indicate the substance and section
number of the page, and
5) expanded use of tables and graphics.
A. ORGANIZATION
A logical format reflected in a detailed table of contents is a key way of making the LDRs
more useable by the public and the City's administrators. The existing organization is typical of
many codes that have not been comprehensively revised in many years. The distinction, for
example, between the Zoning Code (in Chapter 40) and the other regulations relating to the use of
land no longer makes any sense to many communities, including those interviewed in the City of
Clearwater. While an extensive revision of the overall organization is undoubtedly necessary, it is
important to remember that many users of the Code are professionals whose view of what is a logical
framework may well differ from that of the ordinary citizen. A balance needs to be reached which
accommodates the needs of both groups.
The following draft Table of Contents reflects many discussions held prior to and during this
revision effort. (For comparison purposes, see Appendix A which summarily describes the existing
organization of the LDRs.) Note that the overall organization flows from very general provisions
which would govern overall applicability and transition issues, to zoning districts, to development
F or example, there are cross references in the Use Limitation Section of each zoning
district to "Rules Concerning the AdministrCi.tion of the Countywide Future Land Use Plan as
amended" apparently incorporating additional substantive limitations. If the substantive purpose of
this cross reference is still appropriate, then the additional "substantive limitations" should be
incorporated in the LDRs in an understandable format.
CITY OF CLEARWATER
CRITICAL ASSESSMENT ISSUE REpORT
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PAGE 2
standards, to process (decision makers and development review procedures), to miscellaneous
provisions (including enforcement, vested rights and nonconformities), and finally by all definitions
and a comprehensive index. One of the next steps in this revision process will be the development
of a detailed annotated outline of the new LDRs which would show specifically where current
provisions would be placed. This annotated outline will more clearly show how many of the
organizational concepts in the Land Development Code Revision project will be incorporated (for
example, that effort recommended that the code group development standards into goals, community
character, incentives and tools and techniques).
LAND DEVELOPMENT REGULATIONS
Table of Contents
I. General Provisions
A. Applicability
B. Transition
II. Land Use Districts
III. Development Standards
Adult Use Standards
Airport Hazard Standards
Bulk Regulations
Coastal Construction Control Line
Corridor Standards
Design Standards
Dock Standards
Erosion and Siltation Control
Fences and Walls
Flood Hazard Reduction
Historic Preservation
Housing Code
Land Clearing and Grubbing
Landscapingffree Protection
Parking
Recreation and Open Space Standards
FEBRUARY 25, 1998
PAGE 3
CITY OF CLEARWATER
CRITICAL ASSESSMENT IsSUE REpORT
Sidewalks
Signs
Special Downtown Standards
Standard Building Codes
Subdivision Standards
IV. Development Review and Other Procedures
Building Permit
Occupancy Permit
Occupational Licenses
Site Plans
Permitted Uses
Conditional Uses
Notice and Hearing Requirements
Traffic Impact Study
Concurrency Management
Subdivision
Appeals
Annexation
Transfer of Development Rights
Developments of Regional Impact
Text Amendments
Zoning Atlas Amendments
Comprehensive Plan Amendments
V. Administrative and Decision-making Review Bodies
City Commission
Community Development and Redevelopment Board
Development Review Committee
Municipal Code Enforcement Board
City Manager
City Attorney
Development Code Administrator
Building Official
City Engineer
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CRITICAL ASSESSMENT ISSUE REpORT
FEBRUARY 25, 1998
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City Staff
Hearing Officer
VI. Miscellaneous Provisions
A. N onconformities
B. Vested Rights
VII. Enforcement
VIll. Definitions
INDEX
B. GRAPHICS
Graphics can be used to greatly improve the appearance and overall useability of the LDRs.
Charts and other graphics are being successfully used around the country to simplify regulations and
make them more understandable and useable. Other techniques include uniform page formatting,
the use of differing font types to improve readability, standard numbering, section-referenced
pagination and similar means would vastly improve the overall effectiveness of the regulations. Use
charts in particular allow a substantive review of the use associations in each of the City's existing
zoning districts by highlighting inconsistencies, missing or inappropriately permitted uses. (See
Appendix B to this Report) Examples of these approaches are included in Appendix C but please
note that existing regulations are used in the illustrations without improvement, including existing
terminology and listed uses.
C. DEFINITIONS AND INDEX
An important key to effectively utilizing any set of regulations is being able to understand
as clearly as possible the intended meaning of pertinent regulations and to be able to quickly fmd
the appropriate regulations. Organization can help a great deal in achieving this result, but one of
the most frustrating aspects of using any set of regulations is when defmitions are scattered
throughout the Code (usually as a result of repeated amendments) and where there is no effective
indexing system. The City of Clearwater's Code suffers from both characteristics. Definitions are
found in many parts of the Code (e.g. Sections 35.11, 36.141, 36.171, 42.54, 44.05 and 52.02) and
while they may appear to apply only to the section in which they are located, they are frequently
applicable to other sections and Chapters as well. Moreover, there are many additional definitions
as well as graphic examples which would improve the overall useability of the Code.
CITY OF CLEARWATER
CRITICAL ASSESSMENT ISSUE REpORT
FEBRUARY 25,1998
PAGES
The recommended organization set out in the prior section places the definitions just before
an index, where many readers "expect" them to be, based on experience with other texts. This
approach has a disadvantage in that it makes separate publication of particular topics, such as
landscaping and signs, more difficult. However, we believe that the advantages for the user of the
entire code exceed this inconvenience. Similarly, a computerized indexing system can vastly
improve the ability of a user to access germane sections. At some point in the future, it may be
appropriate to use a computerized data base to make it easy for an ordinary user to access the LDRs
by entering an address, property index number or identifying a parcel of land on a GIS screen. In
anticipation of that possibility, the LDRs should be presented in a format which is easily adaptable
to computerization.
Appendix D contains examples of definitions with graphics and a page from a computerized
index for a Land Development Code of another community.
III. PROCESS
There is almost complete agreement that the process for obtaining development approval
from the City is unnecessarily complex and that streamlining should be a significant goal of this
revision effort. While most interviewees conceded that considerable improvement has been achieved
in recent years, all agreed that much more can be achieved. In part this complexity is due to the
sheer number of reviewing boards and decision making bodies and in part to a process which is not
clearly set out in the regulations themselves, thereby generating inappropriate expectations and
confusion by all affected.
A. BOARD CONSOLIDATION
The Land Development Code Revision effort which was commenced in 1996 recommended
to the City Commission that the existing Boards be consolidated into two with the following
functions:
Development Review Board:
Planning & Zoning Board (development review functions)
Development Code Adjustment Board
Board of Adjustment and Appeals for Building and Flood
Design Review Board
City Commission (sign variances)
Planning Board:
Planning & Zoning Board (planning functions)
Environmental Advisory Board
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CRITICAL ASSESSMENT ISSUE REPORT
FEBRUARY 25, 1998
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Historic Preservation Board
A variation to this previously suggested reorganization which should be thoroughly
considered is the creation of a single board which would handle all functions either as a committee
of the whole or through subcommittees. Such an approach would allow the maximum amount of
coordination and synergy.
However reorganization is accomplished, the overall concept makes a lot of sense and has
received wide-spread support. Caution needs to be exercised, however, in the implementation of this
consolidation to ensure that any board which remains interrelate with each other to guarantee that
each is informed by the thinking and experience of the other. The role and basic procedures of each
entity needs to be thoroughly described, both narratively and graphically, standardized, and to the
extent possible, parallel.
B. DESCRIPTION OF REVIEW PROCESSES
Many interviewees commented that the LDRs either inconsistently or incompletely describe
development review procedures. For example, the quasi-judicial procedures required under existing
legal requirements need to be incorporated into the appropriate processes and the site plan provisions
need clarification regarding their relationship to particular required development approvals. Much
improvement can be made through more thorough explication, consolidation and standardization.
Moreover, submission requirements are incomplete or missing entirely. While procedures
need to be flexible enough to allow a reviewer or decision-maker to ask for additional materials
during the development review process as unanticipated issues become apparent, care needs to be
exercised to ensure that an application is completely reviewed by staff and other interested parties
in advance of the [mal decision.
c. STREAMLINING OF REVIEW PROCESSES
Streamlining of development review, universally identified as a major goal of this review
effort, will be partially achieved as part of the consolidation of Boards. However, more can be
accomplished by:
.:. examining the types of approvals which require Commission and/or Board approval
and eliminating those approvals which if there were specific standards to be
implemented, do not require more than staff review and approval;
.:. eliminating unnecessary steps in the review process (e.g. Development Agreement
section has many more steps than required by state law);
.:. establishing time frames for review;
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CRITICAL ASSESSMENT ISSUE REpORT
FEBRUARY 25, 1998
PAGE 7
.:. incorporating existing expediting processes into the revised LDRs;
.:. narrowing appeals from staff and Board decisions;
.:. amending development standards which have required frequent variances;
.:. allow a wider range of discretion for staff to apply (e.g. setbacks for nonconforming
uses);
(. decrease the number of piecemeal approvals by allowing simultaneous approvals
(e.g. site plan and variances; design review and conditional use approval; sign
permits and other required approvals);
.:. the development of good checklists and submission requirements; and
.:. ensure that small additions to existing properties are as painless as possible.
Recognition needs to be made, however, of the tension between eliminating multi-tiered
review and allowing flexibility, also a frequently identified goal of those who were interviewed.
Considering the issues discussed regarding Board consolidation and overall streamlining
issues, the "players" involved in the Development Code are:
DRC
LDCA
CDRB
CC
HO
Development Review Committee
Land Development Code Administrator
Community Development and Redevelopment Board
City Commission
DOAH Hearing Office
l.
The following graphic portrays how those "players" interact with the three types of
development review:
Levell:
Those development proposals which are appropriately reviewed and approved at an
administrative level.
Level 2:
Those development proposals which are more complex and involve the use of greater
discretion by an appointed board accountable through the appointment process to the
City Commission.
Level 3:
Those actions which state law requires the action of the City Commission.
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CRITICAL ASSESSMENT ISSUE REpORT
FEBRUARY 25, 1998
PAGE 8
DEVELOPMENT REVIEW
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IV. SUBSTANTIVE ISSUES
The City's Comprehensive Plan is intended to provide a framework for implementation of
its goals and policies. As part of this Revision effort, SLM prepared a matrix of the comprehensive
plan's goals and policies which should be reflected in the LDRs (See Appendix E). As indicated,
there are a number of goals and policies which could be more faithfully reflected in the Plan. Other
planning studies for the City have come to a similar conclusion.
Many of these "issues" are directly related to the fact that the City is essentially developed.
Since most future development will involve redevelopment, there are a number of substantive issues
which should be considered from that perspective. Moreover, there are on-going planning efforts
in the Downtown, the Beach and along Gulf-to-Bay which undoubtedly will require amendments
to existing regulations in order to implement. The timing of these efforts will allow inclusion of
those amendments into this Revision effort.
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CRITICAL ASSESSMENT ISSUE REPORT
FEBRUARY 25,1998
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A reoccurring theme in the interviews was that the City's regulations are reactive and not
proactive and that greater flexibility is needed, particularly in the character-defining area, to allow
for innovation and creativity. While substantive flexibility is undoubtedly important, particularly
in the redevelopment context, concern has been expressed about the effect of flexibility on existing
staff, both in terms of workload and in terms of available expertise. This overall issue will need to
be addressed in the context of specific regulations.
The general character and approach of the existing LDRs focuses on the conversion of raw
land into developed land. In light of the City's status as a mature or developed community, the focus
should be shifted to facilitating orderly change and improvement of commercial and residential
neighborhoods. It makes no sense, for example, to impose a rigid minimum lot size requirement
when lot size was long ago decided by the market and there are few practical opportunities for
reassembly of land. In this context, performance standards which are designed to ensure
neighborhood and community compatibility, no matter what the lot size, are more important than
an abstract, ideal lot size. In other words, the LDRs need to recognize what is and establish a "value
creation" environment where "what is" can be revitalized or replaced according to the best interests
of all concerned - the property owner, neighbors, the neighborhood and the community at large.
A. REVITALIZATION
The foundation of any community are its residential neighborhoods. Clearwater contains a
number of existing attractive and reasonably affordable residential neighborhoods. Some of those
neighborhoods are stressed by adjacent land uses which are incompatible, through traffic and poorly
maintained or deteriorated structures. In order to promote private re-investment in the City's housing
stock, diversify the City's economic base and strengthen the overall community, the positive
attributes of Clearwater's neighborhoods must be protected and the negative factors eliminated. The
changes necessary to achieve these objectives must be carefully managed to avoid adverse impacts
on community character and property values.
Traditional planning and zoning policies are focused on preserving that which exists.
However, for a mature neighborhood, the preservation of the status quo often means a downward
trajectory. The concept of neighborhood conservation is grounded in an understanding that with the
exception of exclusive or "high-end" areas, evolutionary change is an essential ingredient of the
long-term integrity of a neighborhood in the face of time. For example, in some communities, large
Victorian houses adjacent to traditional community centers, fashionable in another time, have been
converted into multiple units in response to changing demographics and housing preferences. In
other communities, dysfunctional housing units have been replaced with "infill" units which reflect
contemporary lifestyles and market realities. In other cases, revitalization involves reductions in
intensity to provide neighborhood amenities such as parks, parking and or access.
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CRITICAL ASSESSMENT ISSUE REPORT
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PAGE 10
There are a number of opportunities for encouraging revitalization and redevelopment in the
City. While regulatory reform opportunities may only represent a small component of an overall
revitalization strategy, regulations can effectively stifle any program.
Good examples of this overall point were included in both the North Greenwood Commercial
District and Economic Development Opportunity Study (Florida Center for Community Design &
Research September 1994) and the North/South Greenwood Residential Infill Study (Florida Center
for Community Design & Research February 1995) which concluded that the zoning regulations for
the residential districts and the CNG district needed to be revised as it was virtually impossible to
develop in either North or South Greenwood. Interviewees confrrmed those prior conclusions.
While some amendments have been recently adopted, there are other substantive amendments which
may facilitate revitalization efforts that should be considered in this Revision effort. For example,
the infrastructure required (e.g. right-of-way) by the subdivision manual may be excessive in an infill
situation. Moreover, many of the issues involved in infill housing, such as parking, setbacks and
small lots could be addressed through the process of reviewing an infill housing conditional use or
other flexible review process.
Commercial revitalization involves similar challenges. Contemporary mobility has dealt
traditional commercial/retail uses developed along the region's arterial network a very weak hand.
Access to malls and discount centers have undermined the integrity of neighborhood shopping as
local, "over-the-curb" retail traffic competes for limited road capacity on streets where on-street
parking and sidewalks have been reduced to a minimum to in favor of regional travel demand. As
a result, investment and re-investment in businesses along traditional commercial strips declines and
the overall quality and character of these areas and their constituent communities is adversely
affected. Worse still, regional travel demand is interrupted by local business traffic.
The adaptive reuse of the great American commercial strip is, as it is throughout the country,
one of the most intractable planning and development challenges in Clearwater. Developed on
narrow, shallow lots along major streets and roads, individual commercial buildings and shopping
centers compete for tenants in an environment awash with too much retail capacity. In most cases
the properties -- land and buildings -- are poorly suited for adaptive reuse and suffer a fate which is
the commercial-retail equivalent to the "slum-landlord" ownership. This is often exacerbated by the
fact that such uses were developed with little or no off-street parking and many localities require that
renovation or expansion of structures and uses meet contemporary access and parking standards,
making it all but impossible to redevelop. And, the economics of redevelopment are problematic.
The cost of land assembly, demolition of obsolete buildings and environmental remediation,
particularly in areas with infrastructure deficiencies, makes it practically impossible for a mature
community to compete, unless special attributes - e.g., superior schools, attractive housing,
institutions of higher learning or transit - are available.
There are two general approaches to the revitalization of traditional commercial-retail strips
-land assembly and clearance and revitalization through incremental actions. Unfortunately, the
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CRITICAL AsSESSMENT ISSUE REpORT
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PAGE 11
first approach is very complex and expensive, and is warranted only where a large, affluent
population has safe and convenient access to the redevelopment site - a circumstance which does
not pertain in Clearwater. That is not to say, however, that the second approach is substantially less
difficult. Some communities have facilitated the "re-invention" of strip commercial by relaxing
access and parking standards or by making it easier to satisfy access or parking needs. For example,
it is not uncommon for commercial uses along a major street to abut residential uses, sometimes
across an alley. In some communities, qualifying redevelopment along a commercial strip is
permitted to provide off-street parking on land within the first tier of residential lots, in some cases
with vehicular access by way of the alley or the adjacent street which was previously residential.
There are many revitalization opportunities in the City of Clearwater both for the residential
and nonresidential sectors. The challenge of this revision effort is to ensure that the LDRs do not
inhibit such efforts and to the extent possible promote them.
B. UPDATING USE CATEGORIES
Issues regarding use categories are both definitional and involve the way permitted uses are
grouped into zoning districts. Clearwater's regulations reflect both issues. One of the characteristics
of dysfunctional LDRs are large numbers of land use districts, usually as historical anomalies or
special purpose districts created as a "band aid" solution to a particular problem. Our view
generally is that fewer is better and we favor a shift from a large number of pre-set districts to a
smaller number of more flexible districts dependent on effective performance standards to ensure
neighborhood and community compatibility.
The City's use categories do not contain some of the problems of other cities, many of which
have extensive laundry lists of uses which either are antiquated in terminology and/or reflect
distinctions which do not make any sense. However, there are some uses which need to be
"renamed" to reflect existing law and economic trends. For example, the whole area of group homes
and residential treatment centers needs to be examined for appropriate terminology and substantive
treatment. Moreover, there are a number of instances where a particular use is listed more than once
with one or more distinguishing characteristics the purpose of which is not readily apparent. For
example, convention centers are listed in the CR-28 District as permitted but in the UC Districts as
permitted but with accessory outdoor displays. Another more extensive example of distinctions
between districts and particular uses are restaurants. Appendix B shows that there are thirteen
different iterations of restaurants (plus snack bars and luncheonettes) which are permitted in
numerous different districts.
There are other areas in the existing LDRs where particular newer uses, such as
telecommunication towers, have not yet been defined or addressed substantively. And, there are
uses which need some clarification (e.g. whether recreational facilities are to be treated as
nonresidential).
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PAGE 12
The most significant issue involving the City's use categories is whether the distinctions
between the districts themselves still make sense. A number of interviewees raised the issue of
whether there are too many zoning categories and whether this revision effort could consider
combining and/or eliminating some zoning districts. For example, reference to Appendix F reveals
that these are minimal differences between the RS-6 and RM-8 Districts. Moreover, the RM
Districts generally seem to have small differences that if eliminated would result in fewer districts.
Similar comments can be made about the nonresidential districts. Thirty-four zoning districts in a
City the size and character of Clearwater may well be "over-kill" compounding what is already a
complex administrative challenge.
C. MIXED USES
Particularly in the context of cities which are experiencing redevelopment, mixed uses are
likely to be a significant component in the future patterns of development. Recognition is
widespread nationally of the vitality that mixed use development brings to any community,
particularly downtowns and many communities are now mandating mixed uses in particular areas.
Indeed one of the foundations of "neotraditional town planning" and "new urbanism" is the
mixing of uses. The comer store and other neighborhood-serving uses, long the bane of Euclidean
zoning are now understood as an important part of the fabric of a neighborhood. Similarly, "store
over residential" is a key revitalization use that has been effectively deployed to stabilize and
strengthen existing residential and commercial neighborhoods. The concepts of "performance
zoning," developed for the emerging suburban environment are in fact essential in the redevelopment
of the mature city where "how you do things" is more important that "what you do." Mizner Park
in Boca Raton -- residential, office, institutional, commercial and entertainment uses in a single
neighborhood -- is a classic example of a contemporary use of mixed use zoning to facilitate
redevelopment.
There is a DowntownlMixed Use District in the City of Clearwater and a variety of
opportunities to mix uses through the Planned Development District and a number of other districts.
The DIMU district is limited to areas of at least four acres and has never been actually used.
The City has an existing and a proposed mixed use "formula". Various interviewees
indicated that neither worked. Attention needs to be addressed in this revision effort to ensure that
land development regulations do not impede the establishment of mixed uses.
D. ROLE OF DESIGN STANDARDS
There is a lot of historical public support in the City for character defining regulations. A
good example is the sign code which has been tenaciously defended by many in the City. In
addition, there is a design review board which is authorized to apply design guidelines for certain
areas of the City, adopted by the City Commission, to apply architectural design requirements for
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Cleveland Street between particular streets (within the Urban Center District), and to determine
whether a particular use is entitled to a density/intensity bonus, based on its contribution to the
architectural character of the area.
There are a number of issues related to design review, not the least of which is that the
flexibility required to accommodate individual expressions and interests in design depends on
discretionary standards that are at least suspect under ordinary due process considerations. It is
fundamental that due process oflaw requires that a person whose individual interest (as opposed to
interests shared with the public at large) will be affected by a public action has a constitutional right
to meaningful participation in a public hearing prior to the action. Notice and opportunity to be
heard are well-known due process rights in the zoning arena. Another, not so well-known right is
that the opportunity to participate in the process must be meaningful and decisions must be based
on the merits. Those twin rights translate into a requirement that the decision be based on definitive
standards so that affected persons will understand what information will be relevant to the decision
to be made and so that a reviewing court can ascertain whether a particular decision was made on
the merits. Definitive standards are problematic for design review because of the inherently
subjective nature of the criteria of what is acceptable or unacceptable. If the standards are definite
enough to pass constitutional muster, they may be sufficiently inflexible to accommodate design
review objectives.
There are a couple of solutions to this conundrum. One is a more effective process and the
other is the use of non-traditional standards.
1) More effective process. Procedural due process is, when you strip away the
legal jargon, nothing more than a doctrine of fundamental fairness. If you are unable to
provide definitive standards, then the only other way to provide safeguards that ensure
fundamental fairness is through a more effective and balanced process. The less definite the
standards, the more critical the process for land use decision making becomes. From our
experience the following elements can be very effective in improving the development
reVIew process:
a) Simplification of the process and definition ofterms. Zoning is often
more lore than law because procedures used for development review and terms used in
ordinances are frequently not defmed in the ordinance. In far too many communities, "that's
the way we have always done it" has more significance than the text of the Code. As
indicated earlier in this report, by clarifying the terms of the zoning ordinance and clearly
specifying the development review process, substantial fairness can be injected into the
process. And that goes not just to the applicant but also to affected or interested citizens.
One of the most difficult aspects of design review is that many proposed designs are different
and therefore often suspect in the eyes of citizen activists. If the process is not fundamentally
fair to all interested persons, including neighbors and interested citizens, then the possibility
of political action in opposition to a particular development proposal becomes a probability.
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PAGE 14
One large city gives notice to adjoining landowners of a step in the development review
process where no one but the developer is allowed to participate. Public input comes at a
different point in the process. What happens is that the concerned citizen gets notice that
some change is proposed in his neighborhood and will be considered by the planning
commission on a particular day. Concerned neighbors show up at the meeting but are told
that only the developer is allowed to make a presentation at the meeting: "the time for public
input will be at the public hearing that will be held in about a month." The reaction of course
is that "something stinks" and the neighbors become opponents of the project on the basis
of what appears to be unfair more than the merits of the proposal. If the applicable
ordinances are revised to include more extensive procedures and clarify when and how
public input can be received, a lot can be achieved even with inherently subjective design
standards.
b) Modification of the application reQuirements to ensure that the
application is meaningful to technicians. lay decision makers and the general public. All too
many regulations target application requirements to professional staff so that the application
is three hundred pages of technical information that is of little assistance to a concerned
citizen or lay decision maker. The technical information is needed but there should also be
application requirements that ensure that the technical information is digested into a form
that the general public can appreciate. A simple example of this is including a requirement
that design elevations, contextual perspectives and information in regard to colors and
materials be provided in a reduced form that can be easily handled and reproduced.
Another aspect of this issue is a clear requirement in regard to staff
analysis and recommendation. The analysis and recommendation should itself be targeted
to general public understanding (a picture is worth 1 000 words) and should be made
available for a substantial period before the hearing on the matter. One of the most unfair
aspects of many contemporary development review processes is the availability of staff
analysis at the last moment. The case law is replete with circumstances where a staff report
was made available to the developer less than two days before the hearing on the proposal
and more than 7 months after the application had been filed. The developer thought he had
been stabbed in the back and the staff "went to the mats" to defend its position and opposed
the developer's request for an extension.
I -
c) De-legalization of the development review process. Twenty years ago,
it was uncommon for a lawyer to be involved in the zoning game until after development
approval had been denied. Today, the development review process is an adversarial
proceeding where the lawyer is center stage and all too often it is the traditional zoning
lawyer whose perspective is that development permitting is a matter of the "good guys
against the bad guys." One way to make the process more fair, is to make the development
review process more collaborative and cooperative. There is an inherent contradiction in this
recommendation in light of the Florida Supreme Court's determination that these decisions
CITY OF CLEARWATER
CRITICAL ASSESSMENT IsSUE REpORT
FEBRUARY 25, 1998
PAGElS
are "quasi-judicial." The Court's holding means that the development review process is
more fair with sworn witnesses, cross-examination and the other trappings of administrative
due process. These are important procedural safeguards but are problematic when concepts
like design review are necessarily embedded in a discretionary decision.
d) Mediation or arbitration alternatives. One of the difficulties of
American land use controls is what Dick Babcock described as "trial by neighborism," the
passions of the moment that attend any significant proposal for change. The passions are
particularly potent where a matter may be viewed as higWy subjective, such as use of a
flexible development regulation. A technique that might be considered is embedding some
sort of mediation or arbitration process in the development review process so that there is an
alternative to solving an impasse by litigation. In one south Florida city where the criteria
for architectural review were notably subjective, the City mitigated the potential for abuse
with an optional arbitration process whereby the developer, if at any point in the
development review process, believed that his proposal was being unfairly judged in regard
to compliance with the subjective design standards in the district, could request non-binding
arbitration by a panel of neutral design professionals. The ordinance provides that the city
would maintain a roster of design professionals willing to serve as arbiters and that if a
developer chose to invoke arbitration, the developer would pick an arbiter from the roster,
the city would pick a second and the two arbiters would then select a third. The panel would
then review the design issues, giving all interested parties, induding the developer,
neighbors, and decision makers, to present their perspectives, and make a recommended
decision. The arbiters' recommendation was not binding, however, it was judged that the
persuasive value of a neutral judgment would have significant value in guiding a final
decision. The idea was not to supplant the judgment of the ultimate decision maker, but to
provide a process that was fundamentally fair and ensured that the applicant would get a fair
opportunity to be judged on the merits.
Mediation is another concept that might be considered. For example, Pennsylvania's
Municipal Planning Code provides that mediation is an appropriate voluntary process where
an impasse with an applicant is observed. Mediation is not binding, but is offered as an
alternative to the adversarial process that leads to a win or lose decision and often litigation.
2) Use of Nontraditional Development Standards. The second solution involves a
shift in perspective in the preparation of development review standards. Traditionally, a
lawyer or planner tries to set down in words a thing that is inherently subjective and not
amenable to narrative description. How do you write a standard for attractiveness? One
answer is not to write it at all but to use pictures to demonstrate what is good or bad about
different forms and patterns of development. There are after all many ways to "skin the cat"
and instead of trying to narratively describe acceptable solutions, one alternative is to simply
refer to a series of photographs or drawings of examples of what are good results and those
which are bad results. In many ways, some of the aspects we are trying to regulate in this
CITY OF CLEARWATER
CRITICAL ASSESSMENT ISSUE REpORT
FEBRUARY 25, 1998
PAGE 16
context are like pornography -- "we don't know how to define it but we know it when we see
it." The use of pictures responds directly to that th:~sis. Pictures have been used very
successfully to manage development, particularly in the area of signs. In one special mixed
use district the City gave up in their attempt to define what was acceptable in terms of
"Mediterranean revival style" and compatible signage and included a series of pictures in the
district that showed a variety of developments and signs that were consistent with the design
objectives of the community. The designers of new projects in that district are now able to
see what was, at least in the minds of the City, the good, the bad and the ugly and design for
what would be acceptable. Their designs are all different; however, the overall design
objective is being achieved.
Other character defining concepts in the City of Clearwater, such as special corridor
treatments, have not yet been translated into specific regulations. While there is a lot of support for
"character defining regulations", there is also concern about the length and complexity of the overall
development review process, the need to promote redevelopment and the need to provide flexibility
to landowners while ensuring that the City's character is enhanced. This revision effort needs to
carefully evaluate the most effective way to promote good design in the City.
E. MISCELLANEOUS DEVELOPMENT STANDARDS
There are a number of development standards which should be reexamined in this revision
effort to determine if they should be changed to better achieve the City's objectives. Some of these
standards include but are not limited to:
Parking. Except in the Core Subdistricts of the Urban Center District, the parking
provisions do not contain a sharing formula similar to those in successful use in other
cities which are in the "redevelopment mode." Moreover, the parking and sidewalk
standards do not encourage the use of more diverse surface treatments (other than
concrete and asphalt) which could help create some of the "character" which is being
discussed as desirable by some in the City.
Density transfers. The City has a transfer of development rights provision which
is very restrictive. While the objectives of this provision (Sec.42.06) are broad,
including environmental, redevelopment and design, some of the basic provisions
effectively dampen the likelihood that they will ever be used. First, the provisions
require City Commission approval as well as common ownership to effectuate a
transfer. Most important, however, no increase in density/intensity on the receiving
parcel appears to be permitted. In order to make use of this concept, substantial
changes to the LDRs, as well as the County's Rules will need to be made.p
Minimum property standards. Chapter 55 contains downtown property standards
and Chapter 49 contains the City's Housing Code. There is considerable sentiment
CITY OF CLEARWATER
CRITICAL ASSESSMENT IsSUE REpORT
FEBRUARY 25, 1998
PAGE 17
that these standards are just a starting point and that the City could benefit
substantially from greater attention to this subject. Enforcement of such standards
can be an issue, however, if they are not sufficiently definite.
CITY OF CLEARWATER
CRITICAL ASSESSMENT ISSUE REpORT
FEBRUARY 25, 1998
PAGE 18
I
~~ater
u~
~
Appendix A
Existing Organization of the LDRs
CITY OF CLEARWATER
CODE OF ORDINANCES
SUBPART B: LAND DEVELOPMENT CODE
TABLE OF CONTENTS
Chapter 35. General Provisions
Chapter 36. Administration and Enforcement
Chapter 37. Annexation
Chapter 38. Reserved
Chapter 39. Code Text Amendment
Chapter 40. Zoning
General
Zoning Districts
Zoning Atlas Amendments
Chapter 41. Special Land Uses
General
Conditional Uses
Alcoholic Beverage Sales
Other Special Land Uses
General
Accessory Uses
Waterfront Development
Townhouse Development
Docks
Home Occupations
Temporary Uses
CITY OF CLEARWATER
ApPENDIX A
FEBRUARY 25, 1998
PAGE 1
;~rwater
u~
~
Appendix A
Existing Organization of the LDRs
Reserved
Model Homes
Family Group and Congregate Care Facilities
Recreational Vehide Parks
Outdoor Cafes and Side walk Vendors
Parking Garages
Adult Uses
Chapter 42. Uniform Development Regulations
General
Uniform Regulations
Historic Preservation
Chapter 43. Site Plans
General
Application and Review
Amendments
Chapter 44. Signs
General
Permit and Inspections
Standards
Chapter 45. Variances
General
Application and Review
Special Requirements
Chapter 46. Subdivision and Condominium Planning
General
Application and Review
~.
CITY OF CLEARWATER
APPENDIX A
FEBRUARY 25, 1998
PAGE 2
~~ater
o~
~
Design Standards
Appendix A
Existing Organization of the LDRs
SUBPART C: BUILDING AND DEVELOPMENT REGULATIONS
Chapter 47. Buildings and Building Regulation
General
Building/Flood Board of Adjustments and Appeals
Standard Codes
Permits
Inspections
Certificates
Unsafe Buildings and Systems
Sidewalks
Chapter 48. Reserved
Chapter 49. Housing Code
Chapter 50. Land Disturbing Activities
Land Clearing and Grubbing
Erosion and Siltation Control
Chapter 51. Flood Damage Prevention
General
Flood Hazard Reduction
Chapter 52. Tree Protection
General
Removal
CITY OF CLEARWATER
APPENDIX A
FEBRUARY 25, 1998
PAGE 3
~~rwater
u~
~
Appendix A
Existing Organization of the LDRs
Chapter 53. Marine Improvements
General
Docks
Chapter 54. Recreation and Open Space Land Dedication
General
Recreation Land and Facilities
Open Space Land
Chapter 55. Downtown Property Standards
Appendix
Schedule of Fees, Rates and Charges
Listing of Franchises
Code Index
CITY OF CLEARWATER
ApPENDIX A
FEBRUARY 25,1998
PAGE 4
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APPENDIX C
~mrwater
u~
~
Section 1-1
Single-Family Residential "One" District (RS 1)
SAMPLE PAGE FORMAT
CITY OF CLEARWATER
LAND DEVELOPMENT REGULATIONS .
FEBRUARY 25, 1998
SECTION I-I/PAGE 1
~mrwater
u~
~
Appendix C
(SRI) District -- Development Standards Summary
GRAPHIC SAMPLE: SINGLE-FAMILY RESIDENTIAL "ONE" DISTRICT (SRI)
(DEVELOPMENT STANDARDS)*
(5.b.2) 18
SWIMMING POOL FEET
MINIMUM SETBACK: SIDE
(4)
MINIMUM
LOT DEPTH
(5.a.3)
PRINCIPAL STRUCTURE
MINIMUM SETBACK: REAR
(5.b.3)
SWIMMING POOL
MINIMUM SETBACK: R
NIMUM
LOT AREA
43,560/
DWELLING UNIT
(6)
MAXIMUM
HEIGHT
30'
(ADDITIONAL
PROVISIONS)
(7)
MAXIMUM BUILDING
COVERAGE
25/. I
(8)
MINIMUM
OPEN SPACE (i.)
LOT: 60'/.
FRONT YARD: 75%
(5.
ACCESSORY STRUCTUR
MINIMUM SETBACK: REAR
(5.a.2)
ACCESSORY STRUCTURE
MINIMUM SETBACK: SIDE
(5.a.2)
PRINCIPAL STRUCTURE
MINIMUM SETBACK: SIDE
15
FEET
(5.a.l)
ACCESSORY STRUCTURE
MINIMUM SETBACK: FROM ANY STREET ROW
(5.a.l)
PRINCIPAL STRUCTURE
MINIMUM SETBACK: FROM ANY STREET ROW
(5.b.l)
SWIMMING POOL
MINIMUM SETBACK: FROM ANY STREET ROW
35
FEET
35
FEET
38
FEET
* ALL NUMERICAL REFERENCES ARE TO SUBSECTIONS OF SECTION 40.036
DRAWING NOT TO SCALE
CITY OF CLEARWATER
APPENDIX C
FEBRUARY 25,1998
PAGE 2
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Appendix D
Definitions
PRIMA/:'( N:CE5S
(FWM GENERAL
TlW'FIC C1~LATlON)
Alley
PERMITTED
NUMBER
OF UNITS
"-
HEIGHT i
t!'!
.~;;<-:::':::
<t"",,,,,,," '
''-:'"
',-:. I
~,
Density
Alley means a public thoroughfare which
affords only secondary means of access to
abutting property.
Density means units per gross acre.
Dwelling, multiple-family means a detached
building designed or occupied by four or more
families.
Dwelling, single-family means a detached
building or a unit in a townhouse structure
designed for or occupied exclusively by one
family; no portion of which building interior,
including any complete kitchen, shall be so
designed, arranged or closed off in a manner
that eliminates access thereto or exit therefrom.
As used in this development code, a complete
kitchen is one which contains a cooking unit
such as a range, stove, oven, microwave oven or
similar device; a refrigeration unit; and a sink,
either together as a unit or as separate
component parts.
Dwelling, three family means a detached
building designed for or occupied exclusively
by three families, commonly called a triplex.
Dwelling, two-family means a detached
building designed for or occupied exclusively
by two families, commonly called a duplex. A
single-family house or dwelling becomes a
duplex when the building interior, including any
complete kitchen, shall be so designed, arranged
or closed off so as to eliminate access thereto or
exit therefrom. A complete kitchen is one
which contains a cooking unit such as a range,
CITY OF CLEARWATER
APPENDIX D
FEBRUARY 25, 1998
PAGE 1
;~ater
(j~
~
Appendix D
Definitions
DWELLING -- MULTI-FAMILY
~ W
DWELLING - SINGLE FAMILY
W
DWELLING - THREE FAMILY
~ W
DWELLING - TWO FAMILY
Dwelling
FLAT ROOF
9lCSJiij
II
HIGHEST FINISHED
ROOF SURFACE
EXISTING GRADE
GABLE OR HIP ROOF
f MIDPOINT
5: (MAIN ROOF)
\!)
W
:r:
-+- EXISTING GRADE
OTHER STRUCTURES
r
[
HIGHEST POINT
!il1n ~ L'n~GAA~
Height
stove, oven, microwave oven or similar device;
. a refrigeration unit; and a sink, either together as
a unit or as separate component parts.
Dwelling unit means a building or portion
thereof providing independent living facilities
for one family including provision for living,
sleeping, and complete kitchen facilities. As
used in this development code, a complete
kitchen is one which contains a cooking unit
such as a range, stove, oven, microwave oven or
similar device; a refrigeration unit; and a sink,
either together as a unit or as separate
component parts.
Height means, for buildings, the vertical
distance from the mean elevation of the existing
grade to the highest finished roof surface in the
case of a building with a flat roof, or the vertical
distance from the existing grade to a point
representing the midpoint of the peak and eave
heights of the main roof structure of the roof of
a building having a pitched roof. F or other
structures, the vertical distance from existing
grade to the highest point of the structure above
such existing grade. Where minimum floor
elevations in flood prone areas have been
established by law, the building height shall be
measured as though the required minimum floor
elevation constitute existing grade except when
the bonus provisions of section 42.23(1) are
applied.
CITY OF CLEARWATER
APPENDIX D
FEBRUARY 25, 1998
PAGE 2
~~rwater
u~
~
UTlLmES
RAILROAD I
l
Appendix D
Definitions
+--+
I RIGHT-OF-WAY I
f'lWPER"TY
Right-of Way
STREET
l
i RIGHT-OF-WAY I
Right-of-Way means all that area dedicated to
public use or otherwise owned by a
governmental agency for public street purposes.
The term includes, but is not limited to,
roadways, parkways, bicycle paths and
sidewalks.
CITY OF CLEARWATER
APPENDIX D
FEBRUARY 25, 1998
PAGE 3
EXAMPLE OF A COMPUTERIZED INDEX FORA LAND DEVELOPMENT CODE
Nightclub. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. II-53, IT-54, VII-132
Nonconunerci~crreenhouses . ..... ........ ......... .......... ...... ....... VII-146
Nonconforming ................ 1-8, IT-43, IV-138, V-I, V-3-V-1O, VII-53, Vll-90, VII-133
Nonconforming Accessory Uses.. . . . . . . . . . . . ... . . . . . . . . . " . . . . . . . . . . . . . . . .. ... V-8
Nonconforming Structures. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . V-4, V-7, VII-90
Nonconforming Uses. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . IV-138, V-3, V-4
Nonconforming Vacant Lots.. . . .. . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . .. V-9
Nonconformities .........,................................... V-I, V-3, V-H, V-12
Nonilluminated . VII-lO, VII~13-VII-15, VII-I 7, VII-19-VII-2l, VII-23-VII-26, Vll-28, VlI-30,
VII-3l, VII-35, VII-36, VII-38, Vll-39, Vll-4l-Vll-44
N onwater Dependent Purposes ............................................. Vll -180
NT District. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. VI-72, VII-37, Vll-55, VII-154
Nursery. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. IT-55, 11-69, Vll-67
Nursery School. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11-69
Nursing Homes .............................................. VI-4l, VlI-42, VII-50
Oculists .................................................................. II-58
Off Street Loading ......................................................... VII-50
OP District . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . .. VI-86, VII-2l
OPB District. . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. VI-36, Vll-19
Open Space 1-4, IT-I 8, 11-56-11-58, IT-63, IT-69, IT-89, 11-92, IT-93, IV-81, IV-108, IV-142, VI-7,
VI-26, VI-60-VI-62, VI-96, VI-97, VI-99, Vll-65, Vll-119
Ophthalmologists. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-58
Optician ................................................................... IT -67
Opticians ................................................................. II-58
Outdoor Equipment Storage Facilities. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Vll-117, Vll-159
Outdoor S~es . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . II-58, Vll-117, Vll-155
Parking Agreement .....................................;................. VII-59
Parking Garages. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Vll-20, Vll-59
Parking Lot. II-59, VI-97, Vll-69, Vll-77, Vll-97, Vll-l02, Vll-122, VII-126, VII-129, VII-13l,
VII-I 83, Vll-184
Parking Lot Landscape Areas ............................................... VII -77
Parking Requirements ...... IV-137, V-12, VI-4, VI-97, VI-98, VII-48,VII-49, Vll-52-VII-54,
VII-57, VII-147, Vll-148, Vll-150-Vll-161
Parking Space. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11-60, Vll-55, Vll-56, Vll-59, Vll-71
Party Status ......................................... ..... . . . . . . . . . . .. IV-72, IV-73
Pedestrianlbicycle ................................................... VI-97, VI-99
Perimeter Banners ......................................................... VII-6
Permitted Uses. . . . . 1-8,11-21, IV-86, IV-138, VI-4, VI-27, VI-30, VI-34, VI-36, VI-39, VI-41,
VI-43, VI-45, VI-47, VI-49, VI-51, VI-53, VI-55, VI-57, VI-59, VI-63, VI-67,
VI-69, VI-71, VI-72, VI-77, VI-80, VI-82, VI-84, VI-86, VI-88, VI-91, VI-94,
VI-96, VII-9l, VII-140
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