FORWARD TO 2001, A VISION AND STRATEGY FOR CLEARWATER BEACH
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Clearwater Beach Blue Ribbon Task Force
. FORWARD TO 2001
A Vision
and Strategy
for
CLEARWATER BEACH
"11
V ision is the art of
seeing things invisible. "
Jonathan Swift
or corner side yards of the site where such parking Is highly viewable
from adjoining street rights-of-way.
5. Site IIghtina. All new construction In the Resort Commercial and Beach
Commercial zoning districts on Clearwater Beach shall be restricted to
site lighting of the following height:
a. Unrestricted lighting - 10 feet.
b. 90% cutoff lighting - 15 feet.
This restriction shall not Include the lighting for public parks, public
parking lots, and streets, although proposals for such lighting In these
locations should analyze these standards and their applicability for the
situations In which lighting Is to be used.
6. Streetscaoe architectural comoonents. All new construction In the' .
Resort Commercial and Beach Commercial zoning districts on
Clearwater Beach shall contain door and window openings consistent
with those found In the adjacent streetscape. Blank facade shall not be
permitted on any street frontage of the structure.
7. Architectural stvle. Architectural style In the Resort Commercial and
Beach Commercial zoning districts on Clearwater Beach shall be one of
three predominant types: "Cracker", Victorian, or Mediterranean.
"Cracker" architecture generally Includes such features as a pltche~
roof, street-side porches with relatively large porch overhangs, and
wood frame style construction. Victorian architecture Is generally
considered to be similar to the "Cracker" style, however, It may Include
more elaborate treatment of trim and other exterior features.
Mediterranean style Is characterized by a stucco exterior and may have
either a flat or pitched roof. Pitched roofs for mediterranean style shall
be constructed with barrel tile.
The staff would proposed to Implement these standards by adding a separate section
to the land Development Code which essentially enumerates the above requirements,
and establishing under the use limitations section of each Individual zoning district the
reference that structures within the Resort Commercial and Beach Commercial
districts on Clearwater Beach shall be required to observe these design standards.
CBBRTF .ss
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surrounding streetscape, shall not feature blank facades, and shall not be
out of scale with the original building. Parking, where possible, shall be
provided to the rear or along the Interior sides of the property.
To the extent possible, City landscaping standards shall be met unless full
compliance with the standards Is required by code.
B. New construction (including additions which exceed 50% of the floor area
of the original structure, Including multiple additions over a two year period
which exceed this 50% figure). For new construction, the following
standards would apply. Although the aesthetics of architectural style cannot
generally be computed In a literal sense and reduced to specific calculations,
the staff finds that the following design standards would tend to relate new
construction to the predominant characteristics to the tropical seascape
theme for Clearwater Beach.
1. Exterior buildinp materials.. Exterior building materials for all new
construction within the Resort Commercial and Beach Commercial
zoning districts on Clearwater Beach shall be limited to the following:
a. Wood frame or simulated woodframe (e.g. vinyl).
b. Stucco.
c. Shingles.
d. A combination of the listed materials.
2. Roof materials and oltch. All new construction within the Resort
Commercial and Beach Commercial zoning districts on Clearwater
Beach shall have the following roof characteristics:
a. Pitched roofs. Pitched roofs shell be a 4-12 or higher pitch and
shall be constructed of either metal or barrel tile.
b. Flat Roofs. Flat roofs shall be surrounded by a parapet of a
distinctive architectural style: the tops of such parapets shall be flat
or may be topped with tile for accent.
3. Facade orientation. The orientation of all new structures within the
Resort Commercial and Beach Commercial zoning districts on
Clearwater Beach shall follow the dominant orientation of structures
along the block face on which the structure Is located. For structures
on corner or double frontage lots, the facade shall be oriented to the
most heavily traveled adjoining roadway, based upon vehicle ADT
figures provided by the City Traffic Engineering office.
4. Location of off-street oarkina. All new construction In the Resort
Commercial and Beach Commercial zoning districts on Clearwater
Beach shall locate the required off-street parking In the Interior side or
rear yards of the site. No off-street parking shall be located In the front
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PROPOSAL
TROPICAL SEASCAPE THEME
CLEARWATER BEACH BLUE RIBBON TASK FORCE
The Clearwater Beach Blue Ribbon Task Force has recommended that a tropical
seascape theme be established for the Commercial and Resort Commercial areas of
Clearwater Beach. This proposal Is directed toward a staff-administered approach to
achieving the tropical seascape theme. Another possibility for addressing the theme
Issue would be the creation of a design review board. Ultimately, the staff feels that
this design review board approach Is highly desirable; however, our experience with
the North Greenwood Design Review Committee Indicates that there will be many
times In which a design review board for a particular area of the City will not have
plans to review. Consequently, we would recommend an Interim approach (as laid out
In this report), to be followed by the creation of a design review board In an upcoming
fiscal year (e.g., FY 93-94) which would Include the following areas of the City:',
North Greenwood Commercial District; Clearwater Beach: Harbor Oaks; Downtown
Clearwater; and yet-to-be-deslgnated commercial entryways Into the City. Separate
design guidelines would be established for each of these areas with one review board
handling all design reviews. This more comprehem~lve approach would result In a
situation In which design review Is Incorporated In the most Important areas of the
City for such an approach, and would allow a single board to handle design Issues.
The area covered by this proposed board would be large enough to ensure that the,
board would generally have plans to review at almost every meeting.
As currently proposed, however, under 8 staff administered design review, 'It
will be necessary to require specific ordinance requirements for those areas of
Clearwater Beach which are affected by design review. The staff would suggest that
these areas be limited to Resort Commercial and Beach Commercial zoning districts,
and only on Clearwater Beach (I.e. D.Q1lsland Estates or Sand Key). This approach
limits the design review to only those areas covered by the Clearwater Beach Task
Force report and will not create a design review Issue for single family or multi-family
residential areas on Clearwater Beach.
There are two areas In which staff administered design review regulations must
be addressed: additions to existing structures and new construction. These areas are
discussed separately below.
Additions to Existing Structures
A. Additions of less than 50% of the overall f100t area of the structure. Where
additions are proposed which do not exceed 50% of the floor area of the
existing structure, the additions shall be designed In a manner which Is
compatible with the existing structure In terms of rhythm, massing or scale,
facade orientation, and materials. The design may be contemporary in
nature, but should reference design features from the original structure
Including building materials, building openings (door and window) and
height. The addition shall not be constructed of materials not found In the
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CLEARWATER BEACH BLUE RIBBON TASK FORCE RECOMMENDATIONS
February 1994 Update
Beautification and Theme Issue
1. Recommendation - 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.
February 1994 Update - Staff did not follow up on this recommendation as indicated below. We
would now suggest that once the architectural guidelines are implemented and the streetscape
program has been completed, signs containing this theme would be erected at strategic locations.
October 1991 Response - Staff will forward this item to the City Commission for discussion/work
session in the Spring 1992 and if approved, the staff will add this item to their work plan. After
the implementation of "Tropic Seascape" as the architectural theme for the beach as discussed in
number 2, all appropriate city documents and promotional literature promulgated by the city will
begin reflecting the proposed promotional theme phrasing, "Clearwater Beach, One Small Place
of Enchantment. "
2. Recommendation - Approve changes to the Clearwater Land Development (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 anQ public development/redevelopment consistent with a Tropical
Seascape theme. (See committee's line drawings, Appendix D, representing present view and
possible future view of front elevation on section of Mandalay Avenue.)
February 1994 Update - Design guidelines developed by committee; town meetings held;
ordinance under development in cooperation with staff and committee. Anticipated date
for Commission consideration: April, 1994.
October 1991 Response - The proposed changes to the land development code to incOlporate the
"tropical seascape" design theme are not currently in the staff's work program for FY 91/92.
Specific design guidelines would abe developed for this area of the City. These design guidelines
must be developed and incOlporated into an upcoming fiscal year work program by either staff
or consultants.
The Land Development Code amendments would create a system similar to the North Greenwood
Neighborhood Community zoning district where the desired "tropical design"/design standards is
encouraged by relaxation of certain zoning standards. Staff would recommend that certain designs
would be required and certain designs would be prohibited. It should also be noted that "Tropical
Seascape" architectural theme could include building styles as different as Mediterranean,
Caribbean, or Victorian (like the Clearwater Beach Hotel).
Due to the extensive work involved in preparing the design guidelines, this item cannot be
implemented until FY 92-93 with the estimated date of June, 1993.
3. Recommendation - 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.
February 1994 Update - The Tropical Seascape Theme has been followed in the design of: Big
Pier 60; the Clearwater Marina building; restrooms on the beach; replacement of eight beach
guard towers (during FY 93/94); and Mandalay Avenue streetscape project. Upcoming upgrades
to public properties will incotpOrate the Tropical Seascape Theme whenever possible.
October 1991 Response - Public constroction projects would incotpOrate the tropical seascape
theme. Also, City staff has worked with the Task Force in the rebuilding of Big Pier 60 using
a Tropical Seascape Theme. The City's consulting engineers (CDM) are presently working on
the design, which should be reviewed by the City Commission in November. During the coming
fiscal year, the City staff will pursue the constroction of roofs in keeping with the Tropical
Seascape Theme for the four rest rooms recently constrocted on Clearwater Beach. This should
be completed by September 30, 1992.
4. Recommendation - Approve a Streetscape Plan incotpOrating landscaping, seating and other
pedestrian amenities.
February 1994 Update - Streetscape project along Mandalay Avenue has been implemented for
two blocks, with additional expansion of this theme scheduled for FY 93/94.
October 1991 Response - There is currently no "master" landscape/design plan for Clearwater
Beach (or other areas of the City) other than the landscaping requirements pertaining primarily
to landscaping not in street rights-of-way. This work should be coordinated with the
architectural/design review board discussed in items 2 and 3 above, as well as item 7 below (see
also item 1 under the Tourism Issue).
5. Recommendation - Expand City Landscaping; e.g., sidewalks, parking lots, unimproved public
lands and the beach down to the water line.
February 1994 Update - See comments for #4 above. The Public Works Department installed
a substantial amount of additional landscaping in the South Gulfview parking lots during the
conversion to attended parking operation. The Parks and Recreation Department has added a
fourth restroom and landscaping by the Adams Mark Hotel, planted 60 palms in the south beach
parking lot, completed landscaping and boardwalks associated with the north beach street ends
stormwater and beach access project, and installed 13 showers with concrete aprons for beach
users, including drinking fountains.
October 1991 Response -
a. During the previous fiscal year (1989/90), the City completed the landscaping of the
Memorial Causeway, installed two restroom buildings with landscaping in the Marianne
Street right-of-way and at Mandalay Park, and provided general landscape improvements
CLEARWATER. BEACH
BLUE RIBBON TASK FORCE
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FEBRUARY 1994
UPDATE
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on the beach.
b. The City recently repaved the marina parking lot using recycled plastic wheel stops,
additional meters installed and landscaping provided. This was completed in September,
1991.
c. During this current fiscal year, approximately 45 palm trees along with sea grapes,
fountain grass and oleanders were planted in the right-of-way that separates Gulf
Boulevard from the south beach parking lot. Also recently landscaped was the new
restroom which is constructed close to the Adams Mark Hotel.
d. The Capital Improvement Program includes monies to landscape the street ends that dead
end into the Gulf of Mexico along the north beach. Staff plans to prepare a landscape
drawing to serve as a prototype for each of these street ends. This project should be
completed by December 31, 1992.
e. The Marina has money in the budget to repair sidewalks along the seawall making the
sidewalk more architecturally pleasing.
f. Monies are included in the City's Capital Improvement Program to replace thirteen
showers along Clearwater Beach which are used by sunbathers. Current showers are
difficult to maintain as well as being unsightly and in poor locations. Each of the new
showers will consist of multiple shower heads with automatic cutoffs to conserve water.
Also, under each shower, plans are to install concrete or brick aprons. Drinking fountains
will also be installed. This project should be completed by September 30, 1992.
6. Recommendation - 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.
February 1994 Update - Gas lamps have been installed as part of the Mandalay Avenue
streetscape project; no work has been done on the causeway to install added theme lighting.
October 1991 Response - The same type fixture used on Cleveland Street downtown could be used
on Clearwater Beach around the Civic Center, along the new sidewalk to be built at the Marina,
and along Memorial Causeway median. Cost estimates for this work are being prepared by the
Traffic Engineering Group.
7. Recommendation - 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
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FEBRUARY 1994
UPDATE
February 1994 Update - Vending machine/newsrack ordinance adopted by the Commission in late
1993; implementation and enforcement is underway.
October 1991 Response - Newspaper machines, vending machines, and pay phones will be
included in the design review standards and system established, as described in number 2 above.
Vending machines and pay phones can be regulated, including complete prohibition against their
location in some places.
The City staff will begin researching the extent to which licensing/franchise fees can be
established for vending machines (including newspaper dispensers) and pay phones on sidewalks
and rights-of-way. If these fees are appropriately established, they may be used for funding
improved vending designs, including the possibility of incorporating these vending machines into
landscaped planters, benches, etc. on public rights-of-way.
Tran&POrtation Issue
1. Recommendation - 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
Harnden). This separates conflicting uses, beach users and tourists from through traffic.
February 1994 Update - In 1992, the City Commission decided against the resort zone operation
of Mandalay and South Gulfview. Crosswalks on both streets have been enhanced.
October 1991 Response - Many of the Transportation issues depend upon the City Commission
taking action on the one-way pair issue. Staff will forward the item concerning one-way pairs to
the City Commission for discussion/work session no later than January 1992. In addition, the
Police Department has completed a public opinion sUlVey with the results that are attached as an
appendix to this report.
2. Recommendation - 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.
North Beach: Change traffic control as follows: East Shore Drive to become two lands, 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-goors. South Beach: Coronado
Drive becomes two lanes, one-way south from First Street to Harnden; Harnden 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 Harnden Drive with center option
turn land and entrance/stacking lane to South Gulfview parking lots.
February 1994 Update - In 1992, the City Commission decided against the resort zone operation
of Mandalay and South Gulfview.
CLEARWATER. BEACH
BLUE RIBBON TASK FORCE
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FEBRUARY 1994
UPDATE
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October 1991 Response - The City Commission has not yet adopted a one-way pair plan (see
response #1 above). The East Shore/Poinsettia one-way pair for the North Beach was not an
improvement recommended by either the Post, Buckley, Schuh & Jernigan report of October,
1984, nor the Wade-Trim study recently completed.
3. Recommendation - 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.
February 1994 Update - In 1992, the City Commission decided against the resort zone operation
of Mandalay and South Gulfview.
October 1991 Response - See #1 above. The removal of the Mandalay/Causeway eastbound
signal would be dependent on the implementation of the one-way pair for the North Beach.
4. Recommendation - Eliminate the traffic light at Coronado and Gulfview by the Pier 60 lot to
allow smooth flow of north and south through traffic.
February 1994 Update - In 1992, the City Commission decided against the resort zone operation
of Mandalay and South Gulfview.
October 1991 Response - See #1 above. The removal of the Coronado/Gulfview signal is
dependent on which one-way strategy is selected. Considerations for pedestrian traffic trying to
cross at this point must also be made.
5. Recommendation - 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" .
February 1994 Update - This plan created technical concerns for the operation of South Gulfview
as an attended lot. Signage, including language, has been improved.
October 1991 Response - See #1 above. The proposed signage would be dependent on the one-
way pair system. However, an overhead sign for the Pier 60 parking lot has been installed.
6. Recommendation - 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.
February 1994 Update - Crosswalks have been enhanced, with additional work planned.
October 1991 Response - There are already several crosswalks, painted with high emphasis
CLEARWATER BEACH
BLUE RIBBON TASK FORCE
5
FEBRUARY 1994
UPDATE
"zebra" markings, along both Mandalay and South Gulfview. Florida Statute 316.130 requires
drivers to stop for pedestrians in a marked crosswalk.
7. Recommendation - Create bike paths, clearly marked on roadways at least five feet in width;
from Sand Key to Memorial Causeway along South Gulfview Boulevard and Harnden 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).
February 1994 Update - Existing right-of-way and pavement dimensions make this project difficult
to accomplish in the near-tenn.
October 1991 Response - See #1 above. Provisions for bicycles will be considered during the
implementation of the one-way pair, if it is adopted.
8. Recommendation - Install sidewalks where there are presently no sidewalks; on the east and west
side of Harnden and Coronado Drives. On South Gulfview, eliminate the west sidewalk if
necessary for a tram route and parking entrance/stacking lane. Improve the remaining east
sidewalk to 10' as per streetscape.
February 1994 Update - Existing back-out parking limits sidewalk continuity along Harnden and
Coronado. Key missing links are included in 1994 sidewalk contract. No improvement to east
sidewalk width is possible at this time due to insufficient right-of-way for 10 foot width in many
areas.
October 1991 Response - The installation of sidewalks would eliminate parking spaces and is not
recommended. The removal of the west sidewalk on S. Gulfview is a Police matter and is not
necessary for any traffic putpOses.
9.
Recommendation - Erect overhead directional signs using the designations NORm BEACH and
SOUTII BEACH, with arrows at:
* Entrance to Cleaxwater 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 Harnden: Through/Mainland Traffic right turn arrow, Public
Beach, Parking straight ahead arrow.
*
*
February 1994 Update - Ground-mounted "trailblazers" for Sand Key and mainland have been
fabricated; these should be installed in February. Marianne street overhead signing dimensions
in negotiation with FDOT, and may be affected by possible City takeover of Marianne.
October 1991 Response - Signage will be dependent on the traffic circulation plan adopted. The
City's Public Works Department will complete this within 6 months from the date of the adoption
of a traffic circulation plan.
CLEARWATER. BEACH
BLUE RIBBON TASK FORCE
6
FEBRUARY 1994
UPDATE
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10. Recommendation - Convert larger off-street metered parking areas to attendant parking; Le.,
Gulfview - 551 spaces; Pier 60 - 258 spaces; Marine - 246 spaces; Rockaway - 156 spaces. Keep
them open from 7 am to 11 pm (or midnight on Friday and Saturday).
February 1994 Update - Gulfview lot converted to attendant parking in March, 1993. Pier 60 lot
retained as attendant parking. Marina and Rockaway lots remain metered per Commission
direction. Hours vary by lot but the above limits are satisfied.
October 1991 Response - This item was forwarded to the City Commission on 10/17/91 and it
is recommended that there be no attendant parking and there be rate increases. A fmal decision
is expected to take place at the November 21st meeting after allowing time for public input.
There is parking available at Pier 60, So. Gulfview, the Civic Center and the Marina until 1:00
a.m., and other times when as needed.
11. Recommendation - Retain meters at small lots, but lease parking rights after 6 pm to private
enterprises nearby; Le., Civic Center - 62 spaces; Bay Esplanade - 84 spaces; AvalonlKendall-
56 spaces; Mandalay/Poinsettia - 58 spaces. The City will entertain any offers to lease Civic
Center parking on a case by case basis and require that parking be attended.
February 1994 Update - No action on leasing spaces.
October 1991 Response - The civic center lot is free after 6:00 p.m. The Bay Esplanade and
AvalonlKendalllots close at 10:00 p.m. for security reasons. The City will entertain any offers
to lease spaces at the parking lot.
12. Recommendation - Create parking entrances and exits at 3rd and 5th Street (on Gulfview) and
eliminate the entrance at the Adams Mark Hotel.
February 1994 Update - Recommended course of action did not provide efficient operation of
attended South Gulfview lot; alternative configuration implemented.
October 1991 Response - Entrances and exists to the parking lot at 3rd and 5th Streets currently
exist. We have experienced no problems with the entrance next to the Adams Mark. Adams
Mark visitors often use this entrance for evening events. The Police Department has no problem
with the current configuration which discourages cruising the can be utilized by existing
businesses.
13. Recommendation - Prohibit any additional parking on Memorial Causeway.
February 1994 Update - No additional parking has been permitted.
CLEARWATER BEACH
BLUE RIBBON TASK FORCE
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FEBRUARY 1994
UPDATE
October 1991 Response - There are no plans at present to add parking along the Causeway.
14. Recommendation - Eliminate street parking on South Gulfview Boulevard.
February 1994 Update - South Gulfview curbside spaces were reduced. The current configuration
provided for motorcycle and recreational vehicle parking as well as some regular spaces.
October 1991 Response - The City Commission will take fmal action on the one-way pairs issue.
The on-street parking has not created any problems. However, depending on which traffic
circulation scheme is adopted, this can be considered.
15. Recommendation - Increase parking fees on all Beach parking spaces and use revenue for Beach
improvements.
February 1994 Update - Rate increase implemented in early 1993.
October 1991 Response - This issue was scheduled to be considered by the City Commission on
10/17/91 with the fmal decision expected at the November 21, 1991 meeting.
16. Recommendation - Provide a tram service, similar to that at Disney World or Key West, from
the mainland to the Beach, with appropriate safety requirements.
February 1994 Update - There are technical concerns about this type of tram in mixed traffic on
Memorial Causeway. Such trams would be a design consideration for any potential new bridge.
October 1991 Response - The concept of providing for beach visitor transportation from a
mainland parking facility could help reduce congestion and parking problems on the beach.
However, some kind of marketing study should be conducted to see if the system would be
utilized and detennine the subsidy cost. A market study is contemplated to be conducted in
conjunction with the East End Development Project. Staff should complete this task by 1993.
This will be coordinated by the Economic Development Director.
17. Recommendation - Construct an attractive, comfortable, infonnative mass transit tenninal on the
mainland, adjacent to, or near, existing city parking facilities which are under utilized.
February 1994 Update - Fonner Beach Jolley Trolley stopped at Station Square Park. New
Trolley passes PSTA tenninal. No other action taken.
October 1991 Response - See #16 above.
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FEBRUARY 1994
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18. Recommendation - Provide tram selVice to the Beach by the most direct and efficient route.
February 1994 Update - Jolley Trolley selVice is now in operation from Downtown. See also #16
above.
October 1991 Response - See #16 above.
19. Recommendation - Maintain the Jolly Trolley system and expand selVice 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, sea gull, pelican, manatee, etc.)
February 1994 Update - New Jolley Trolley corporation formed to accomplish this.
October 1991 Response - See #16 above.
20. Recommendation - Maintain ferry selVice to and about the island. Encourage private owners to
expand on demand.
February 1994 Update - The Clearwater Ferry SelVice continues to be operated between the
mainland and Clearwater Beach. Commercial vessel owners have received police entry passes
for 1994 to cross police lines in the event of the evacuation of Clearwater Beach in order to assist
the City during times of evacuation or disaster.
October 1991 Response - Current plans call for the Clearwater Ferry SelVice to continue operating
around the island and mainland. The ftrst annual meeting to evaluate the ferry selVice has been
scheduled between city staff and the president of the ferry selVice. Additional selVice points will
be considered for the ferry operation.
21. Recommendation - Adopt a cruising control ordinance comparable to those enacted in California
and York, Pa., with fmes of at least $100 for the ftrst 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.
February 1994 Update - Cruising ordinance adopted and implemented.
October 1991 Response - The City adopted a cruising control ordinance and implemented an
aggressive enforcement program. Signs have been installed on Memorial Causeway and at the
entrances to the beach and the ordinance has been well publicized in the local media. The fme
schedule has been set by the local courts at $30.00 for the ftrst offense, with enhanced penalties
for each additional violation up to a maximum of $155.00 for the ftfth and subsequent convictions.
Because the requisite condition of gridlock has not occurred on any of the affected streets since
CLEARWATER BEACH
BLUE RIBBON TASK FORCE
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FEBRUARY 1994
UPDATE
the adoption of the ordinance, no enforcement action has been necessary.
22. Recommendation - Increase fmes 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 fmes 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.
February 1994 Update - Due to consistent enforcement of the noise ordinance on Clearwater
Beach, the Police Department has noticed a considerable decrease in the noise problem. The
Department has developed a tracking system for repeat offenders that results in enhanced fmes
for subsequent violations of the ordinance.
October 1991 Response - The local courts have assigned an enhanced fme schedule to the noise
ordinance, ranging from $30.00 for the frrst offense to $155.00 for the fIfth and each subsequent
violation. The Police Department has vigorously enforced the ordinance, citing 873 violators
from January 1, 1991 through August 31, 1991. Over 90% of those arrests have resulted in
convictions. We are tracking the violations so that offenders are assigned the proper fme. The
money generated by fmes and penalties is deposited in the City's general fund.
Pollution Issue
1. Recommendation - Continue to pursue the opening of Dunedin Pass.
February 1994 Update - Coastal Technology, Inc. has been retained as a consultant engineer to
assist the City in the permit applications for this process.
October 1991 Response - It is recommended that the City support actions by other governmental
agency that pursues the opening of the pass and work collectively with Pinellas County and others
with jurisdiction to review this option.
2. Recommendation - Construct a culvert system under the road along Memorial Causeway to
permit flushing action from one side to the other.
February 1994 Update - No change. If Memorial Causeway becomes a high-level bridge, there
is potential to remove much of the existing causeway to improve water flow.
October 1991 Response - The construction of culverts or bridges to allow for the mixing of waters
in Clearwater Harbor is a major capital improvement undertaking which is of benefIt to both
Pinellas County and the State of Florida. An undertaking of this magnitude does not seem
appropriately assigned to the City of Clearwater. The area-wide interest in Clearwater Harbor
would validate this project as more beneficial to a larger populace such as Pinellas County or the
State of Florida. The City of Clearwater has no plans to undertake such a project and, if
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instructed to do so, would frrst confmn that a culvert under Island Way near Memorial Causeway
might be more beneficial per dollar cost.
3. Recommendation - Support the rehabilitation of Stevenson's Creek in any way which will
maximize the water quality of storm water runoff.
February 1994 Update - No change.
October 1991 Response - The development of a Comprehensive Stormwater and Watershed
Management Master Plan for the City of Clearwater, and specifically the North and South
Stevenson Creek Basins, should not only improve the stormwater runoff to the Creek, but will
ultimately improve the water quality in the Creek and to Clearwater Harbor. This project is
underway under the direction of the Public Works Department.
4. Recommendation - Take action to assure that sewage treatment 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 stormwater runoff
areas.
February 1994 Update - City treatment plants exceed Advanced Wastewater Treatment standards.
Other than the Allen's Creek watershed, septic tanks pose only minimal environmental hazards.
Stormwater quality improvements to meet federal standards are being discussed as an
intergovernmental project.
October 1991 Response - The Public Works Department has the most technologically advanced
wastewater treatment system available. This system provides the highest degree of pollution
elimination as required in its operating permits with state and federal regulatory agencies. The
City continues to be sensitive to environmental needs and continue to consider new technologies
to further improve effluent water quality. In addition, as the Stormwater and Watershed
Management Master Plan is developed, those areas that have high phosphorus nutrient loadings
will be examined for septic tank problems. If it is determined that the primary cause of high
phosphorus levels is due to the influence of septic tanks, alternatives which consider the
conversion of septic tanks to City sanitary connection will be pursued with the County.
5. Recommendation - 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;
f1lters inside storm water pipes; underground retention ponds especially below downtown
commercial buildings.e
February 1994 Update - Staff is alert for technological advances that would make these systems
more feasible. Those that have long-term reliability at the present time will be included in a City
Environmental Review Manual will be brought to the Commission later this year, along with a
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more stringent stonnwater control ordinance.
October 1991 Response - This item will be addressed through the Comprehensive Stonnwater and
Watershed Management Master Planning efforts; the plan will be completed by December, 1994.
6. Recommendation - Designate parks and other public lands where stonnwater can be piped during
rains, turning the lands into wetlands.
February 1994 Update - This is routinely done where topographical conditions pennit. Examples
include major projects like the Clearwater Country Club golf course being used as floodplain for
Stevenson's Creek and minor projects like the north beach street ends along the Gulf of Mexico
that have been upgraded to include beach access areas and retention areas for stonn water.
Retention areas have also been developed in planters in the south beach parking lot.
October 1991 Response - This will be considered as part of the Comprehensive Stonnwater and
Watershed Management Master Plan for the City of Clearwater; the plan will be completed by
December, 1994.
7. Recommendation - Widen problem creeks and create retention areas along the run.
February 1994 Update - This is done when development, topographical and fmancial conditions
pennit.
October 1991 Response - As a result of the Comprehensive Stonnwater and Watershed
Management Master Plan, separate projects will be developed and funded by Stonnwater Utility
on a schedule not yet detennined.
8. Recommendation - Motivate people on the beach to throw their trash into trash cans or take it
home with them.
February 1994 Update - The Harbonnaster's office has installed two additional signs advising
people to properly dispose of their trash. These signs have been placed on the two new beach
guard towers on Clearwater Beach, in keeping with the "Tropical Seascape Theme. "
October 1991 Response - As part of their day-to-day duties, Clearwater Beach lifeguards
continually ask visitors to properly dispose of their trash on the beach. The Water Safety
Supervisor has been instnIcted to continue training the beach guards on this policy. The City
currently cleans the sand on Clearwater Beach seven days a week from around midnight to
approximately 9:00 a.m. using mechanical equipment, although this service has been temporarilylsuspended while the City awaits the reissuance of state pennits. This beach cleaning operation
ranges from the Adams Mark Hotel on the south to Somerset Street on the north. The annual cost
of this beach cleaning operation is approximately $103,000.
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9. Recommendation - Increase enforcement of littering laws while also increasing penalties for
breaking them.
February 1994 Update - There has been an increased effort at enforcement of the littering laws
on Clearwater Beach by the Police Department. Officers have been trained to be aware that
littering is a priority issue for residents and business owners. On some occasions, the Department
has even utilized plain clothes offices to enforce the littering laws. Additional trash receptacles
have been provided to reduce the littering problem.
October 1991 Response - Police Department personnel assigned to the Beach Patrol District have
been instructed to aggressively enforce the laws and ordinances pertaining to littering. The
penalties are set by the Pinellas County courts.
10. Recommendation - 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.
February 1994 Update - Parks and Recreation Department continues to monitor trash cans on the
beach sand. There are currently approximately 1 ()() containers between the Adams Mark Hotel
and the north beach street ends.
October 1991 Response - The City currently has 85 containers on the sand of Clearwater Beach
and the Parks & Recreation Department will monitor trash volume and add cans as necessary.
11. Recommendation - Institute an anti-litter campaign through a public education program, including
"advertising" signs in the Jolly Trolley.
February 1994 Update - Two new "adopt-a-shore" agreements to remove debris from shorelines
have been implemented. One is with the Adams Mark Hotel for the beach from the hotel to Pier
60. The other is with the Clearwater Beach Sertoma Club for the area around the Memorial
Causeway bridge. Parks and Recreation Department has also installed small signs on trash
containers asking people to "pitch in. "
October 1991 Response - The Public Infonnation Office will write to PSTA to seek pennission
for such advertising. Also, under a new statewide "Adopt-A-Shore" Program, the City recently
entered into agreements with volunteer organizations to remove litter and debris along shorelines.
Specifically, one agreement is with the Clearwater Beach Association which has adopted the
shoreline along the south side of the Memorial Causeway. The second agreement is with
"Clearwater Greens" which has adopted the north shoreline of the Memorial Causeway.
Discussions have been held with other volunteer organizations which may participate in this
program at other locations on Clearwater Beach.
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12. Recommendation - Train Beach Guards to encourage or remind people to pick up trash.
February 1994 Update - Beach guards are trained to remind people to observe proper trash
disposal practices as part of their regular training.
October 1991 Response - As part of their day-to-day duties, Clearwater Beach Life-Guards
continually ask visitors to properly dispose of their trash on the beach. The Water Safety
Supervisor has been instructed to continue training the beach guards on this policy.
13. Recommendation - Have the Sanitation Department pick up trash from dumpsters on Sundays and
Holidays.
February 1994 Update - The Solid Waste Division continues to seek out sufficient customers to
justify a Sunday route. .
October 1991 Response - The Solid Waste Division of the Public Works Department should be
notified of any situation where more dumpster capacity or more frequent pickup is needed. These
situations will be addressed. Public street trash baskets are already serviced on weekends and
holidays.
Tourism Issue
1. Recommendation - Redevelop the area between Poinsettia Street to the Bay and from Marianne
to Baymont to include: a low proftle, parking garage; a boardwalk along the bayside; combination
upscale shopping and entertainment area long the bay; large restaurant boats in the water nearby.
HarbOlwatch (in Baltimore) or Covington Landing (in Kentucky across from Cincinnati) could be
models. This should be voluntary with city assistance.
February 1994 Update - A commercial and residential area redevelopment plan is under
development by the Central Permitting Department. It is anticipated that this plan will be
presented to the Commission in April or May 1994.
October 1991 Response - A limited redevelopment plan for Clearwater Beach can be included in
the Planning and Development Department FY 92/93 work program. The area proposed for
redevelopment north of Marianne Street would be included in this redevelopment plan. Other
areas which could be considered for redevelopment would include Brightwater Avenue and other
areas in Clearwater Beach. Design/architectural issues could be addressed as part of this plan.
This will be considered for inclusion in the 92/93 work plan.
2. Recommendation - 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
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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.
February 1994 Update - Big Pier 60 is currently being reconstructed, with a planned opening in
April 1994. The service entrance to Pier 60 is also being improved with landscaping, new
benches and replacement of concrete areas.
October 1991 Response - The Pier Pavilion lease agreement expires on December 31, 1993. Due
to the expiration of a thirty-year period, this lease must be bid on the open market. Prior to
submitting the bid package, the City will evaluate and study what changes should be incorporated
at the location, keeping in mind the Task Force recommendations.
3. Recommendation - Convert the area around the pavilion to a shaded, grassy picnic and play area
with picnic tables, play sets and perhaps a shuffleboard court or two.
February 1994 Update - The Parks and Recreation and Public Works Departments are working
to provide additional landscaping and new tables and benches in an effort to improve the approach
to the new Big Pier 60.
October 1991 Response - The Pier Pavilion lease agreement expires on December 31, 1993. Due
to the expiration of a thirty-year period, this lease must be bid on the open market. Prior to
submitting the bid package, the City will evaluate and study what changes should be incorporated
at the location, keeping in mind the Task Force recommendations. Because of considerable
problems with sand blowing from northwestern winds, some of the proposed facilities may be
unsuitable for being placed around the Pier 60 Pavilion.
4. Recommendation - Funds for the cost of these improvements could be obtained by holding
concerts or similar activities in the Pier 60 public events area.
February 1994 Update - No change.
October 1991 Response - The Pier Pavilion lease agreement expires on December 31, 1993. Due
to the expiration of a thirty year period, this lease must be bid on the open market. Prior to
submitting the bid package, the City will evaluate and study what changes should be incorporated
at the location, keeping in mind the Task Force recommendations. It should be noted that
numerous special events sponsored by non-City groups have been conducted immediately south
of Pier 60 during the past several years. However, although the City recovers its costs, revenues
beyond costs have not been collected.
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5. Recommendation - Locate parking for handicapped and Pier 60 fishermen around the perimeter.
February 1994 Update - The Pier 60 lot offers validated parking for Pier 60 fishermen; lower cost
metered parking is available in adjacent metered lots and spaces. Handicapped parking is
available in the Pier 60 lot, as well as other adjoining City lots.
October 1991 Response - Currently there is limited parking outside the attended Pier 60 lot on
the east side of the pier pavilion for handicapped and Pier 60 fishermen. Pier 60 fishermen can
also park in the attended Pier 60 lot and pay at the pier. The Pier 60 lot is being recommended
to return to metered parking, which will accommodate more handicapped parkers.
6. Recommendation - Consider redeveloping the city marina and explore the possibility of
expanding the site by realignment of the adjacent streets.
February 1994 Update - The Clearwater Marina building is in the process of having a facade
improvement in keeping with the "Tropical Seascape Theme." The marina seawall sidewalks are
being replaced with concrete sidewalks with brick borders.
October 1991 Response - Two of the subcommittees for the Task Force recommended that the
City look at a ten year window for redeveloping and expanding the marina site to approximately
5.75 acres. The committees asked that the City show a willingness to faithfully discuss with
groups the possibility of working out a combined plan for the redevelopment of the area, which
would include the marina, memorial civic center and Beach Diner. Their recommendation would
include the removal of the Beach Diner and memorial civic center buildings and the constroction
of a new marina building/complex. The City could save several thousands of dollars by
discontinuing the memorial civic center building. The Beach Diner (Marriott COlp.) lease
agreement with the City will expire on July 21, 1997, and has no renewal option. This lease pays
the City $60,000 per year, plus percentage of gross.
The Task Force vision of the redeveloped site calls for the south causeway street heading from
the beach to the mainland to be moved to the north, thereby creating a large area for the new
marina building/complex with retail shops, convention center, parking, office space and top floor
restaurant. Also the existing marina boat docks would be studied for redesign and expansion with
this recommendation. The marina building will be forty years old next year, and although in good
shape, cannot be expected to last forever. The main terminal boat docks were rebuilt in 1988,
the east terminal docks were constrocted in 1975. The redeveloping of the City marina site has
many positive factors with a combination municipal building with shops, convention center, rental
office spaces, increased parking and restaurant. The City could generate revenue from the leased
spaces and have a centrally-located focal point for Clearwater Beach.
It is recommended that this not be pursued until the expiration of the Marriott lease agreement
on July 21, 1997.
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Collaboration with Downtown Issue
1. Recommendation - Emphasize the tram as the major link to make possible beach/downtown
relationships.
February 1994 Update - Tram route considerations will be discussed as part of the Memorial
Causeway bridge study.
October 1991 Response - This will be considered in the Downtown Redevelopment Plan by
December 1993. It is an ambitious and very expensive recommendation. Wheeled trolleys are
flexible and less costly to operate. Several stations could be established so that tourists could
drive their cars over, park them and use the trolley to go to the east end project area and other
areas of interest in and around the downtown. Of course, the East End Project is being planned
with more than adequate parking which would in a sense encourage tourists and other potential
users to drive to the project and park on site.
2. Recommendation - 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 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.
February 1994 Update - The Clearwater Beach Blue Ribbon Task Force was disbanded due to
concerns about the inefficiencies of the organization in meeting with other civic groups and public
bodies.
October 1991 Response - This concept causes an overlap with many existing city boards, possibly
including the Planning and Zoning Board, Marina Advisory Board, Parks and Recreation Board,
Development Code Adjustment Board, Beautification Committee, and the Environmental Advisory
Board. In addition, the City will hold an annual meeting on the Beach that will include the
original members of the Clearwater Beach Blue Ribbon Task Force and the public. The putpOse
to this meeting is for the City to provide an update on the Beach Task Force's original
recommendations and other city projects affecting the Beach.
3. Recommendation - 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.
February 1994 Update - CRA Director Pete Gozza has been advised of this recommendation.
CLEARWATER BEACH
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October 1991 Response - This recommendation would have to be carefully integrated and adapted
to fit with Recommendation 1, Beautification and Theme Issue, which is to adapt "one small place
of enchantment" and "tropical seascape" and with Recommendation 3, Beautification and Theme
Issue, which is to approve a streetscape plan along with landscaping and parking lots. This will
be accomplished in conjunction with the Redevelopment of the East End Project with an
anticipated completion date of December, 1993. C.R.A. monies cannot be spent out of the
district, which includes both the Beach and the Causeway.
4. Recommendation - Establish a major "welcome station" in downtown to provide a center for
infonnation and reservations, with a parking tenninal for tram rides. Perhaps the tourist and
convention bureau of the past could be a part of the Chamber of Commerce.
February 1994 Update - CRA Director Pete Gozza has been advised of this recommendation.
October 1991 Response - Welcome stations should be done by and through the Tourism Unit of
the Chamber of Commerce. They have a history of managing these kinds of endeavors. The
Downtown Clearwater Association in consort with the Downtown Development Board is setting
up locators which will be stocked with maps and brochures that will detail downtown interests.
This should be integrated with whatever efforts are made for a visitors welcome station.
5. Recommendation - Promote continued dialogue and cooperation on common concerns and
activities of both downtown and the beach; for example, Coachman Park event.
February 1994 Update - CRA Director Pete Gozza has been advised of this recommendation.
October 1991 Response - The history of the City Commission has been to set up task forces to
address issues of mutual concern to forge consensus of opinion accommodating all groups with
interests. The City Commission will continue in their mode on a case by case basis as issues
anse.
6. Recommendation - Encourage the use of coupon books for distribution downtown and on the
beach for both downtown and beach businesses.
February 1994 Update - CRA Director Pete Gozza has been advised of this recommendation.
October 1991 Response - This is a function that is more appropriately handled by the Chamber
of Commerce.
Zoning and Building Regulations Issue
1. Recommendation - Make the following modifications in the city's LDC for Clearwater Beach:
a. Grandfather in footprints for CR, multi-family and commercial uses,
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b. Maintain present minimum lot size and open space requirements.
c. Change height restriction to allow up to four stories on the waterfront and up to six stories
for non-waterfront parcels (including the parking level in all instances), in all zones except
CR-28 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.
a. February 1994 Update - Revisions to the "nonconfonnities" section of the Land
Development Code are undelWay. These revisions will not revise regulations so as to
grandfather footprints; density and intensity of use will be grandfathered.
b. February 1994 Update - Some revision to open space requirements in single family zones
are necessary to reduce frequently-granted variances.
c. February 1994 Update - A proposal to increase height requirements for multi-family zones
and the Resort Commercial zoning district on the beach will be brought fOlWard with the
proposed redevelopment plan for the beach.
d. February 1994 Update - An ordinance was recently adopted to allow rebuilding of existing
structures, allowing retention of density, regardless of whether the rebuilding is due to
disaster, isolated damage or redevelopment. The proposed revisions to the
"nonconformities" section will further clarify this issue.
e. February 1994 Update - The redevelopment plan for Clearwater Beach will address this
issue.
October 1991 Response - Several of the items discussed under this sub-issue are already in place
in the City's Land Development Code. The staff has under development a code amendment which
would "grandfather" existing densities and intensities for non-conforming properties in the CR-24,
CR-28 , and CB zoning districts. If added to the Planning Services Division FY 91/92 work
program, the staff can develop a comprehensive ordinance addressing structure height in the CR-
24, CR-28, and CB zoning districts by May 15, 1992.
2. Recommendation - 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. This is included in the work program for completion by December,
1992.
February 1994 Update - Revisions to the code to accomplish this have been implemented. No
further work, other than some possible additional signage restrictions, appears necessary.
October 1991 Response - The Planning and Development staff has prepared a Land Development
CLEARWATER BEACH
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Code amendment which is currently being reviewed by the City Attorney's office addressing
restaurants, gift shops and other ancillary uses in smaller hotels. It is anticipated that this
ordinance will reach the City Commission for the establishment of public hearing dates by January
1, 1992.
3. Recommendation - 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 anyone development, with these restrictions:
a. Build to new flood requirements as to height.
b. Confonn 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.
February 1994 Update - Increased density is not possible due to the State of Florida restrictions
on density increases on barrier islands. However, recent ordinance change allow existing densities
to be retained whether through damage or redevelopment.
October 1991 Response - The Planning and Development Department has recommendations a,c,d,
and e under review as part of its FY 91/92 work program. This is included in the work program
for initial consideration by the City Commission by March 1, 1992. Recommendation b will be
implemented in conjunction with the recommendation concerning the "Tropical Seascape" design
theme by June, 1993. Coordination with the Department of Community Affairs, The Pinellas
Planning Council, and the Tampa Bay Regional Planning Council will be necessary in order to
proceed with the implementation of this recommendation.
4. Recommendation - Allow motel owners to 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.
February 1994 Update - Increased density is not possible due to the State of Florida restrictions
on density increases on barrier islands. However, recent ordinance change allow existing densities
to be retained whether through damage or redevelopment.
October 1991 Response - The Planning and Development Department is scheduled to address this
issue within the upcoming FY 91/92 work program; the projected completion date for initial
consideration by the City Commission is March 1, 1992. This is a difficult issue in that it has
potential to increase residential densities on the beach. It is anticipated that objections to this
proposed change will come from various sub-regional, regional and state agencies.
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5. Recommendation - Request the Pinellas delegation of legislators to change the state law to
remove the "cumulative" rule.
February 1994 Update - Partly at the urging of the City of Clearwater, the state legislature revised
its deftnition of "substantial improvement" to refer to "cumulative" improvments made over a ftve
year period, thereby resolving this issue.
October 1991 Response - The City of Clearwater has taken the lead in addressing the
"cumulative" rule issue by adopting changes to its flood protection ordinance to delete all
reference to the "cumulative" provisions of state policy. The City's flood protection ordinance
confonns with the model ordinance for communities across the nation as prepared by the Federal
Emergency Management Agency (FEMA). The City Commission has talked individually to the
legislative delegation. In addition, the City Commission has made this a part of our legislative
package for this year. We have also assigned our lobbyist, Jim Massie, to make a top priority
of working on this issue with Rep. Muscarella.
6. Recommendation - Lead a movement with other beach communities throughout the state to lobby
the legislature to remove the "cumulative" rule.
February 1994 Update - Partly at the urging of the City of Clearwater, the state legislature revised
its deftnition of "substantial improvement" to refer to "cumulative" improvments made over a ftve
year period, thereby resolving this issue.
October 1991 Response - See #5 above.
7. Recommendation - Remove from the city's building code all wording concerning "cumulative"
and "over the lifetime of the structure," after the state does the same.
February 1994 Update - Partly at the urging of the City of Clearwater, the state legislature revised
its deftnition of "substantial improvement" to refer to "cumulative" improvments made over a ftve
year period, thereby resolving this issue.
October 1991 Response - See #5 above.
8. Recommendation - Allow routine maintenance, inclusive of roof replacement, without being
included in the 50 % computation.
February 1994 Update - Partly at the urging of the City of Clearwater, the state legislature revised
its deftnition of "substantial improvement" to refer to "cumulative" improvments made over a ftve
year period, thereby resolving this issue.
October 1991 Response - See #5 above.
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9. Recommendation - 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.
February 1994 Update - No further action has been specifically taken on this issue; however,
signage will be a major component of the Tropical Seascape design guidelines.
October 1991 Response - The Planning and Development Department has in its work program for
FY 91/92 a complete revision of the existing sign code. The staff will prepare changes to the sign
code which affect the entire City of Clearwater including Clearwater Beach and Downtown
Clearwater. Specific sign regulations will be developed for Beach Commercial and Resort
Commercial zoning districts.
10. Recommendation - Place in this code a sunset clause for current nonconfonning signs.
February 1994 Update - No further action taken; sign amortization program is scheduled to move
to Clearwater Beach in early February, 1994.
October 1991 Response - If what is meant by "sunset clause" is a provision to allow current
nonconfonning signs to remain past any amortization date, this appears to be a clear violation of
City Commission direction in this matter. If what is meant by "sunset clause" is a period in
which the nonconforming signs will be brought into compliance, this is already in existence in the
City of Clearwater sign regulations.
11. Recommendation - 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.
February 1994 Update - No further action taken; sign amortization program is scheduled to move
to Clearwater Beach in early February, 1994.
October 1991 Response - The current sign code is actively enforced on Clearwater Beach and
throughout the City. Many inspections have been conducted on the beach since the adoption of
the sign regulations in 1985 and numerous violations have been reported and corrected. Aside
from the routine inspection program, there also exists other efforts to beautify the beach through
strong sign control. For example, all field personnel have been instructed by the City Manager
to remove signs located in street rights-of-way, and, in addition, twice per month a crew sweeps
the beach specifically looking for and removing signs illegally placed in street rights-of-way. It
is noteworthy also that a significant funds and effort have been expended on the City's sign
amortization program. Between January and April of this year, every sign in the City was
CLEARWATER BEACH
BLUE RIBBON TASK FORCE
22
FEBRUARY 1994
UPDATE
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photographed, and the photographs interpreted to identify signs which are nonconforming. At the
conclusion of the inventory, owners of nonconforming signs were notified through the mail of the
October 1992 sign amortization requirement.
12. Recommendation - 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.
February 1994 Update - A comprehensive revision of the City's alcoholic beverage regulations
is underway; these revisions will incorporate Beach concerns.
October 1991 Response - The Planning and Development Department has in its FY 91/92 work
program a comprehensive revision to the Land Development Code concerning alcoholic beverages;
this is scheduled for initial consideration by the City Commission by January 1, 1992. Staffplans
to prepare proposed amendments to the current regulations and bring these amendments forward
for public hearings and discussions.
13. Recommendation - Declare Memorial Causeway's roadside to be public park land so that the
police can remove vagrants from the mangroves.
February 1994 Update - This is not needed as existing regulations are sufficient to handle the
problem.
October 1991 Response - Memorial Causeway has not been designated a city park, so ordinances
prohibiting sleeping in city parks or on city beaches cannot be enforced. However, in cooperation
with the Department of Public Works, the Police Department ensures that all debris that
accumulates among the mangroves is removed promptly. These regular cleanups have
discouraged vagrants from living there and from storing their belongings there. In addition, this
issue is under review by the City Attorney, who initially reports that the designation of this land
as a city park may not be necessary. His initial report is that this land is no different than any
other City owned land, where the City's enforcement powers should be similar.
CBTF-FEB.SS
CLEARWATER BEACH
BLUE RIBBON TASK FORCE
23
FEBRUARY 1994
UPDATE
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Clearwater Beach Blue Ribbon Task Force
February 18. 1991
Honorable Rita Garvey and Commissioners
City of Clearwater
112 S. Osceola Avenue
Clewarwater FI. 34616
Dear Commissioners:
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 ot' 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.
Sin~y yOJfrs, '.
l~/(i..uA. ~,~
Arthur X. Deegan II, PhD
Chairman
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FORWARD TO 2001
A Vision and Strategy for
CLEARWATER BEACH
TABLE OF CONTENTS
Section
I - INTRODUCTION AND EXECUTIVE SUMMARY
II - ASSESSMENT OF CURRENT SITUATION
Creation and Mission
Environmental Analysis
The Economy
Demographics
Transportation and Technology
Legal and Administrative Regulations
Travel and Tourism
Internal Assessment
Strengths
Weaknesses
Opportunities
Threats/Obstacles
Surveys of Residents and Commercial Establishments
Major Issues
III - ANALYSIS OF MAJOR ISSUES
Issue I - Beautification and Theme
Issue II - Transportation and Traffic
Traffic Flow and Configuration
Parking Opportunities
Mass Transportation
Cruising and Noise Control
Issue III - Pollution and the Environment
Water Quality
Trash
Issue IV - Tourism
Issue V - Collaboration with Downtown
Issue VI - Zoning and Building Restrictions
Development for the Small Motel Operator
FEMA Development Standards
Signs
Alcoholic Beverage Licenses
IV - RECOMMENDATIONS AND FINANCIAL IMPUCATIONS
Summary of Items Requiring Expenditures and Possible
Sources of Funds
APPENDICES
Clearwater Beach Blue Ribbon Task lForce
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LIST OF APPENDICES
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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)
Clearwater Beach Blue Ribbon Task Force
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TASK FORCE MEMBERS
Arthur X. Deegan II, PhD, Chairman
891 Island Way .
Clearwater FI. 34630
Appointed by a City Commissioner
John Doran, CPA (1)
662 Mandalay Ave.
Clearwater FI. 34630
Appointed by Clearwater Beach Association
Stephen R. Fowler (1) (2) (5)
1421 Court St., Suite 0
Clearwater FI. 34616
Appointed by Chamber of Commerce
Otto Gans (2)
868 S. Bayway Blvd., Apt #313
Clearwater FI. 34630
Appointed by a City Commissioner
Anne McKay Garris (6)
38 Acacia St.
Clearwater FI. 34630
Appointed by a City Comissioner
Phillip Henderson (5)
25 Causeway Blvd.
Clearwater FI. 34630
Appointed by a City Commissioner
John Homer (6)
767 Bay Esplanade
Clearwater FI. 34630
Appointed by ,a City Commissioner
Jay F. Keyes (3)
100 Devon Dr
Clearwater FI. 34630
Appointed by a City Commissioner
Lavonne Newcomer, Secretary
City Planning Department
(1) Beautification Subcommittee
(2) TrafficlTransportation Subcommittee
(3) Pollution/Environment Subcommittee
(4) Tourism/Commerce Subcommittee
(5) Cooperation with Downtown Subcommittee
(6) Land Use/Zoning Subcommittee
Clearwater Beach IBhJle Ribbon Task !Force
David Uttle (2)
1734 Case Jones Ct.
Clearwater FI. 34625
Appointed by a City Commissioner
Major Martin (3)
2384 Stag Run Blvd.
Clearwater FI. 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 Gulfvjew Blvd.
Clearwater FI. 34630
Appointed by Clearwater Beach
(Resort) Motel Association
Don Seaton (4)
445 Hamden Dr.
Clearwater FI. 34630
Appointed by Clearwater
Innkeepers Association
Julie Tiernan (4)
351 Gulfview Blvd. S.
Clearwater FI. 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
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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 Blue Ribbon Task lForce
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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
Re Pollution:
8. Pursue the opening of Dunedin Pass
9. Control pollution from Stevenson Creek and other stormwater runoff
Clearwater Beach Blue Ribbon Taslk: Force
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10. Construct a culvert system under Memorial Causeway to cause flushing action
Re Tourism:
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 ZoninQ and Buildina 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, PST A investment and/or private enterprise.
Clearwater Beach Blue Rlblbon Task !FOIrCS
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C~ealTWatsll' Beach Blue Ribbon Task !Foll'ce
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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
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from each other. A consensus mode was sought, and a strategic pl~nning 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 1 A, 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 cl,eanliness.
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.
CleallWater Beach Blue Ribbon Task !Force
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CleallWater Beach Blue Ribbon Task !Foll'ce
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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.
THEECa\lOv1V
Figure 11-1 presents selected data from a ten year forecast for the Tampa/St.
Petersburg/Clearwater metropolitan statistical are:! by the University of "Florida's
Bureau of Economi~ 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 "bailouts" 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.
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FIGURE 11-1
Forecast for Tampa/St. Petersburg Metropolitan Statistical Area
1990 2.000 Increase
($) ($) (%)
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
Djv/lnURents (millions) 9,709 20,809 114
(~OO 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
Cleal1'Wster Beach Blue Ribbon Task !Force
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.
of the City and (;;ounty.
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 upg,ade 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
(cort:lparable 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.
DEMOORAPHICS
"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 11-2, the slowdown in overall population percentage
increases for the State becomes even more dramatic for the County, the City and th~
Beach. In absolute numbers, the County can expect about the same 130,000 additional
1 Florida Trend, Dec. 1989
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Figure 11-2
Population Projections, City of Clearwater, 1987-2001
Year
1
Permanent
Popu lation
3
Peak
Seasonal
Population
2
Decennial
Growth Rate
1987
99,124
100,889
102,612
104,296
105,940
107,546
109,114
110,645
112,141
1 1 3 , 602
115,028
116,422
24.90
22.80
19,972
20,088
20,222
20,353
20,481
20,606
20,728
20,847
20,964
21 ,077
21,188
21,297
21,403
21,506
21,607
1988
1989
1990
20.80
21.90
1991
20.70
1992
1993
19.20
18.80
1994
18.10
1995
17.60
16.10
1996
1997
16.00
15.40
1998
1999
117,783
119,111
120,409
14.80
14.20
2000
2001
13.70
Source: Clearwater Department of Planning and Urban Development
119,096
120,977
122,834
124,649
126,421
128,152
129,842
131,492
133,105
134,679
136,216
.137,719
139,186
140,617
142,016
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persons over the next ten years a~ it experienced over th.e 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 persons compared with 207 in the past ten years.
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As for the make up of that population, s~ngle 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 mayor
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.
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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 c.ounty 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.
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. 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 landf,1I and garbage disposal. The average
person in the County generates 7 pounds per day. Recycling and incineration are
expected to take c~re of all needs in the foreseeable future.
These facts and expectations have the following possible implications for the
6each:
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.
1) Unless redesign of public structures, right-of-way and landscaping is done
jointly with planning for transportation improvements, the problem will only be
exacerbated.
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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 legaVregulatory 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.
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. 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 BeaGh, 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 outloo~ 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.
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c) With fewer retail establishments and qonvenient 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 $25 for each 300 miles driven (an increase of 3.6% in one year), with Florida and
Orlando being the most popular destinations
· Nearly half of Pinellas County visitors are here for the first time; almost 3/4 having
visited other Florida areas during the same trip, more visitors making Orlando their
first stop; travel agents assisted 54.6% of all Suncoast visitors
Foreign travel trends include:
· Canada sends 5.5 million tourists to American annually, with the bulk of them coming
to Florida and spending an average of 14 days
· Florida's second source of tourists is Britain, but the trend is now down
· Japan is now second only to Canada as the source of foreign visitors to the U.S., and
they spend heavily, including purchase of real estate
· A big influx of European (especially German) visitors can be expected for many
reasons
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· Inbound foreign traffic can be expected to increase 7% a year, if present trends hold
I Tourism in Florida is poorly supported by the State's budget, yet it contributes-
I I greatly to sales tax, to jobs, to direct and indirect economic impact on the State and our
area. Moderate growth during the next few years is predicted by the Dept of Commerce.
I Figure 11-3 traces projected increases in Florida and Pinellas tourist numbers
I FIGU RE 11-3
Florida Pinellas Tourist Projections, 1988-2001
I Year Florida Pinellas Expenditures Per Person Jobs
Tou rists Tou rists ($ Billion) ($ Daily) ( # )
I (million)
1988 36.97 3,625,543 1.77 54 61 ,803
I 1989 38.70 3,720,279 1.83 55 62,197
1990 40.18 3,816,006 1.S38 61 62,818
I 1991 41.97 3,916,248 1.94 67 63,447
1992 44.08 4,018,070 2.01 73 64,081
I 1993 46.06 4,122,540 2.07 79 64,722
I 1994 48.13 4,229,726 2.14 85 65,369
1995 50.30 4,339,699 2.21 91 66,023
I 1996 52.56 4,452,531 2.28 97 66,684
1997 54.93 4,568,297 2.35 103 67,350
I 1998 57.40 4,687,073 2.43 109 68,023
I 1999 59.98 4,808,937 2.50 115 68,704
2000 62.68 4,933,969 2.58 121 69,391
I 2001 65.50 5,062,252 2,67 127 70,785
I Source: Florida Department of Commerce
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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 11-4 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 11-4
Ages of Visitors to Pinellas County, 1989
Age
# Tourists
% of Total
Infant to 6 years
7 -17
18-25
26-35
36-45
46-55
56-65
66 and over
180,805
392,489
158,484
511,538
615,334
581,480
667,790
601,199
4.86
10.55
4.26
13.75
16.54
15.63
17.95
16.16
Source: Pinellas County Tourist Development Council
2 Wall Street Journal, "Florida -Hustles to Stave Off Tourism Slump", Nov. 21, 1990,
Page B1
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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
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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.
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INTERNAL A~SESSMENT (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.
STRENGTHS
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
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population centers, centered amidst world-reknoyvned tourist a.ttractions (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)
1) a base of power found in the economic value of Beach properties
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g) limited access (the two bridges) which provides some limit to the number of vehicles
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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
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e) a signific~mt number of deteriorating structures (including some downtown)
1) 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.)
I) inadequate enforcement of present code regulations
OPPORTUNmES
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 ancllor 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
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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
THREATSOBSTACLES
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
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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: potice traffic routing, parking, noise, large police presence
3. Resort area Clearwater Beach should be ~ like:
Residents: Itself; St Armand's Circle, SanibellCaptiva
Businesses: Sanibel/Captiva, Longboat Key, St. Armand's Circle
4. Resort area Clearwater Beach should be ~ like:
Residents: Daytona, Miami, Ft Lauderdale, Atlantic City
Businesses: Daytona, Miami, Atlantic City, Ft. Lauderdale
5. Location for convention center:
Residents
Downtown 45%
Clearwater Beach 1%
Sand Key 10%
None at all 45%
6. Location for a boardwalk:
Residents
Along shoreline 7%
Along parking lot 16%
Street/boulevard 3%
None at all 70%
Businesses
49%
31%
9%
11%
Businesses
29%
36%
36%
33%
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7. Should there be a family-oriented attraction such as a Water Slide?
Residents
Businesses
Yes
f\b
No answer
~28%
72%
2%
64%
36%
8. Which would you favor regarding parking?
Residents
Businesses
Convert beach to parking
Convert parking to beach
Neither of the above
3%
20%
77%
22%
20%
58%-
9. Which of the following would you favor regarding mass transportation?
Residents
Businesses
Mass transport direct to beach
Shuttles from downtown to beach
No mass transportation
20%
42%
40%
)
) 68%
32%
10. Whom should the city parking lots serve first?
Residents
Businesses
Tourists
Residents/locals
General public
No answer
10%
25%
60%
5%
40%
33%
28%
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
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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.
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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 fo~ 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 chang'es in land use planning, building and development codes, and the Iike,-
would be an aid in promoting t~e stated vision for the Clearwater Beach of the future?
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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 SPARKUNG CLEARWATER
BEACH?
SIGNIFICANTS FACTS
Commendable efforts have "been made in the area of beautification and land-
scaping, both public and private, but significant opportunity remains for improvemen~
in the aesthetic appeal of Clearwater Beach. A proliferation of signs, public and private,
distracts and aetracts, 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 propertie~ 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
3Letter from Director of Public Works dated 5/27/88
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Attorney, is that courts generally find newsracks may be subject to reasonable time,
place and manner restrictions.
Although two relatively recent and major commercial developmenVredevelop-
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 ~f 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.
DESIRED SITUATION
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.
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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.
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Development/redevelopment consistent with the ~heme and comb~ned 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 arid from a positive effect on property values.
Commercial interests in the rest of Clearwater would benefit from an improved
customer base, since tourists ~o not spend all th~ir 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.
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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 alli1 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.
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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 PUBUC 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
SIGNIRCANT 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 o! 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
bridg~ 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 sO,me streets, while others go relatively unused.
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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 RESOL VlNG 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.
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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 A~enue (Mandalay ~t. 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 plaQ for 2001: Mandalay Ave. Pedestrian traffic only; no vehicles except
limited freight service.
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,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;
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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 .e.as1 and ~
side of Hamden and Coronado Drives. On South Gulfview, eliminate the ~ sidewalk, if
necessary for a tram route and parking entrance/stacking lane. Improve the remaining
.e.as1 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
SIGNIACANT 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.
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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 C.auseway 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.
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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 unsigh~ly 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.
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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.
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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.)
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20. Maintain ferry service to anq 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 (espec!:::lIy 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; Le., 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
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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 ~pecific action.
As regards noise, the police department has the responsibility of enforcing
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 n,ot wish to mar the beauty of this small
place of enchantment by injecting strident noises or stressful traffic congestion.
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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,
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· with no warning tickets as that would' make enforcement extremely difficult
and mu!=h 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.
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ISSUE THREE: HOW CAN POLLUTION OF THE BAY BE CONTROLLED, WHILE
SAFEGUARDING COASTAL WETI.ANDS, RESPECTING DESIGNATED BIRD
SANCTUARIES AND PROTECTING ALL ASPECTS OF OUR ENVIRONMENT
FROM DANGER OF SPOILlATlON 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 oj 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.
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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, rl:)adway 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 ch~in 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
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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.s
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.
S Dept of Environment Regulations, V.9, p. 164, FL Statutes, Ch 387; Pollution of
Waters
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DESIRED SITUATION
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
vegetati,on, 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 scourinQ 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, bQat
conQestkm 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 bridQe openinQs at both Memorial and
Clearwater Pass drawbridges by an estimated 20-30%.
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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 "NQ
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.
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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 organizati,ons 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
7 St. Petersburg Times, March 7, 1989
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. The Pine lias 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.
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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 kil~. 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. (ihe 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.
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
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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 01) 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.
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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 a.n 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.
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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 BY WAY 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.S
.
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.
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The reunification of Germany will have a direct bearing on us, ~nd 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
playa significant role. We need, to satisfy them and keep them happy to have
repeat busines~.
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.
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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 deveioper 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 I) 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
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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
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Hut, Howl at the Moon Saloon, a yogurt place, Maggie's Famous Popcorn, SandB~r, 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 marginal9, 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.
RECOMMENDATIONS TO RESOLVE THE 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
9 CI. 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
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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.
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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 tr.3 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 qowntown, and will take 5-10 years
to complete.
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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 ~un 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.
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'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 t~at
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.
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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. ContinufiJ 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, Coachrill::ln Park events.
6. Encourage the use of coupon books for distribution downtown and on. the beach
for both downtown and beach businesses.
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ISSUE SIX: 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?
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, HV AC and exterior elevations. Most, however, is not, due to hotel room sizes
and the inability of installing amenities such as 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
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anticipated: they paid too much for the return they receive. The result is a trend to
change from motel to other commercial uses.
(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 o~ 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.
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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 follo~ing 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.
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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 anyone 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
SIGNIRCANT FACTS
Clearwater Beach is a barrier island as definea in the State statute; Le., 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
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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%.
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EXHIBIT 111-1
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, Boca Raton Sarasota
routine maintenance excluded Palm Beach Naples
Pompano Beach Bay County
New Smyrna County Lee County
4. 50% Improvement over life, Sarasota County Hollywood
routine maintenance excluded
if .nQ1 part of overall remodel
5. 50% Improvement over life, Martin County
routine maintenance included
architectural fees ucluded
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.
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RECOMMENDATIONS TO RESOLVE THE ISSUE
5. Request the Pine lias 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
SIGNIACANT 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 f::r 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.
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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
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
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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
SIGNIACANT 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 Memori~1 Causeway, getting drunk on liquor purchased with money
they have panhandled or obtained from selling blood at the blood bank downtown. Since
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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.
DESIRED SITUATION
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 ELEMENTS IN RESOLVING 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 ou~ 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.
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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.
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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 ana. 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.
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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 th.eme.
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 use~, 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 s,outh 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".
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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 Pine lias Trail (as a beach
loop).
8. Install sidewalks where there are presently no sidewalks: on the ~ and
~ side of Hamden and Coronado Drives. On South Gulfview, eliminate the ~
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. Cr~ate 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 saf~ty requirements.
17. Construct an attractive, comfortable, informative mass transit terminal on
the mainland, adjacent to, or near, existing city parking facilities which are
u nde rutil ized.
18. Provide tram service to the Beach by the most direct ~nd efficient route.
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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 1ram 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 sign age 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,
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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
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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 sup-port 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.
FIGURE IV-1
1990 VALUE AND TAX TOTALS
PROPERTY TYPE ~ # PARCELS ~ $ TOTAL TAXES ~
Residential Citywide 36,858 100 44,595,950 100
Beach 5,009 13.6 11,296,173 25.3
Non-Residential Citywide 5,092 100 36,382,574 100
Beach 413 8 5,794,620 15.9
All Properties Citywide 41,950 100 80,978,524 100
Beach. 5,422 12.9 17,090,793 21
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Source: Pinel/as County Appraiser's 1990 Value and Tax Rol/s, Dec. 4, 1990
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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 Co,mmission.
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 di~logue 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 c:!":d 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
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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 anyone 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 Pine lias 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.
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.
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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 financia'l 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 "face lift" 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 pre~ently 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
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· Landscaping for sidewalks, parking lots, unimproved la~ds, 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 face lift
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 Clearwa~er 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
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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.
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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
44% 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 djnner
safe swimming
convenient to airport
boating and fishing
fun
beautifully landscaped
casual attire
water view dining with parking for boats
good shopping malls
Comment: · Th~ 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"
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2. In your own words, what one thing are you most proud of about CI. Beach?
Mentions
ll.e.m
White, powdery, sandy beach and gulf
natural beauty, sunsets, climate, wildlife, birds
friendly, family oriented people .
small, laid back, low key, casual, quiet
Causeway and landscaping
Community involvement, Task forces
drug free, crime free, police protection
clean
open view
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 CI. Beach right now?
69
27
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1 0
9
9
8
6
5
1 each
l1am
cruising, noise, riff raff, mischievous youth, drinking in cars
traffic, Fri nights, Easter Chaos
overcrowded, hodge podge commercial area
police rudeness & barricades, cruising control, aides
unkept property, tacky rentals
honky tonk places like Wtngs, PickWick, t-shirt stores
trash
lack of cleaning North beach of seaweed
scientologists, taxes, not clean
dirty & fishless Mandalay Bay
unleashed dogs
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 ~ like CI. Beach to be like?
Mentions
56
40
"31
17
15
15
1 1
8
6 each
5
3
1 each
The most frequent answer was "Itselr, especially as it was years ago.
Other answers: St Armand's Key Palm Beach
Sanibel/Captiva Williamsburg
Sarasota Innisbrook
Naples Mackinaw Island
Vero Beach Pebble Beach
Bermuda French Riviera
Carmel Key West without fags
Heaven I
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?
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5. What resort area would you ~ like CI. 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, wi/ere 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
1 6 % 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% N:>
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.
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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
a 12 , 13 and 18
· Three suggested "converting T-shirt shops to parking areas".
· Three others suggested building a p2r!~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 notl" and "Where do you people get these
crazy ideas?" '
· Several of the No answers added: "Free only to Beach residents".
· M~ny 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 CI 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" I "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
- - - - - - - - - - ~ - - - - - - .0. _ _ _ _ _ _ _ _ _ _ _
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% More night time activities
1 6 % Less police visibility
c~earwatell' Beach lB~ue Ribbon Task !Force
90
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c~eall'Watell' Beach B~ue Ribbon Task !Force
91
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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)
1 0 % Small motels
1 0 % Large hotels
70% No more hotels/motels
1 0 % No answer
15. What is your view of tourism here? (Check one)
20% We need to promote it more
20% We need to promote it less
60% It gets the right amount of attention
16. Are you in favor of making the ~each a special planning or redevelopment district
like the Downtown Development District? (Check one)
27% Yes 37% No
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 not!"
10% No Answer
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. 1 4 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
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6.30 Cleanliness of residential areas
5.51 Number of drinking establishments
5. 1 2 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.
. Th'e 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 wa~ 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 require!":'lents
6.47 Limiting the cars coming to the Beach
5.43 Expanding publiC transport routes
4.75 Promoting the Beach as a resort area
Comment:
4.50 Relaxing building/remodelling limits
4.28 Attracting more special events
3 . 92 Adding more parking at public !ots
· 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 priodty.
· Note extremely high interest in pollution of the Bay.
ClealTWater Beach Blue Ribbon Task !Force
92
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c~earwatell' Beach Biue Ribbon Task !Foll'ce
93
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19. Would you favor relaxing height limitations on building construction or
renovation?
23% Yes
74% f'.b
3% No answer
20. Would you attend an open Town Meeting to discuss Task Force recommendations
before our report is finalized?
82% Yes
15% f'.b
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?"
I
I APPENDIX B
I CLEARWATER BEACH COMMERCIAL SURVEY, JULY 1990 N=47
I 1. Respondents' type of lfJusiness:
Retail 1 9
I Motel 13
Hotel 4
Restaurant/Snack Bar 7
I Service 5
2. Respondents' years in Business:
I 1-5 years 12
5 -1 0 13
11-15 8
I 16-20 9
28 1
30 2
I 40. 1
42 years 1
Average business experience: 13 years
I 3. Customer Base:
Tourist 36
I Out of state 9
Local/city 6
Foreign 3
I 4. Compared to customer base 5 years ago:
Foreign 29
I Tourist 1 0
Out of state 5
Local/city 1
I 5. Customers that spend the most money:
Tourist 23
I Foreign 13
Out of state 1 0
Local/city 7
I 6. Customer Preference:
I Tourist 15
Foreign 9
Out of state 7
Local/city 1 0
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c~eall'Watell' Beach Blue Ribbon Task !Force
95
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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 2 5
Students/young adults 5
Business 4
8. Type of customers compared to five years ago:
Same
, 9. Compared to five years ago, doing lii.s.s. business with:
Students/young adults
Business
Family
16 (by choice)
9
7
10. Percentage of customers that use city parking:
8 businesse~
4
4
1 1
12
8
,100%
60-95%
25-35%
5-15%
0%
no answer
11. Business activity times:
Morning
Afternoon
Evening
Night
17
22
1 7
5
12. Length of stay compared to five years ago:
Decreased
1 8
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 2~
Third: February 8
15. Business Activity:
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Weekends 28 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:
f\b 30 Yes 8
18. Repeat customer business compared to five years ago:
Increased 30 Decreased 1 1 Same 1
19. Customer ~ge group:
40-65 years 28
25 - 4 0 20
17-24 1
20. Compared to five years ago, are your customers demanding more quality,
, sophisticated, expensive products:
Yes
f\b
28
1 7
21. Reasons customers choose Clearwater Beach:
The beach 3 5
Friendliness 9
Family atmosphere 9
Sun/warm weather 8
Quality of Iife/
cleanliness 6
22. Most often heard customer compliment about the beach:
Beautiful, white sandy beach 2 2
Cleanliness 9
friendly atmosphere 4
23. Most often heard customer complaint about the beach:
Police traffic routing
Parking
Noise
Large presence of police
21
17
1 2
7
24. Activities customers want:
Night time activities
Family entertainment
Beach sports
Movie theater
Dancing, live bands
1 3
5
6
5
3
3&D'Watell' Beach BIlLIe Ribbon Task !Foll'ce
96
Amusement park
Outdoor concerts
Sight seeing
Museums
Craft shows
Quality shopping
Money exchange
25. Are your customers more price conscious today compared to 5 years ago?
3
2
2
Yes
32
f\b
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 1 3
Improved parking/traffic 1 0
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
VaiVAspen (Colorado) 2
Daytona Beach 2
Martha/s Vineyard 2
29. The resort you would IJJ21 want Clearwater Beach to be like:
Daytona Beach
Miami Beach
Atlantic City
Fort Lauderdale
26
7
7
6
cleal1'Water lBesch BiIJ.JIe Ribbon Task !Foll'ce
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30. Preferred convention center location:
Downtown
Beach
Sand Key
No center
22
14
4
5
31. The asset that draws most business to Clearwater Beach:
Beautiful white sandy beach 4 0
Family atmosphere 4
Friendliness 3
Weather 3
32. What would you improve in your beach community?
Traffic flow, traffic access to beach,
mass transportation 2 0
Landscaping, green space, sidewalks
store fronts/signs 1 5
Law enforcement, police image 1 4
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
Along parking lot
Streetlblvd
None at all
33 No
30 No
30 No
15 No
13 Yes
16 Yes
16 Yes
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
~
17
39. Mass transportation and shuttles from downtown to the beach with fewer
parking lots on the beach:
Very favorable
Mass transportation
17 Yes
13 Yes
7No
7No
40. Converting beach park lands into more parking lots:
Yes
8
~
32
tt. Converting existing beach parking lots into more parklands:
Yes
1 0
~
36
'~arwater Beach Blue Ribbon Task !Force
98
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clealTWateV' Beach BhJle Ribbon Task !Foll'ce
99
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APPENDIX C
Guidelines for Location of Newspaper Dispensers
May 27, 1988
Circulation Managers/Area News Publishers
Gentlemen:"
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
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GUIDEUNES 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):
.
Di,spensers may be located on sidewalk, on either side, oriented toward sidewalk
and leaving maximum clear center path
~leallWater Beach Blue Ribbon Task !Force
100
---
(please see next unnumbered page)
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APPENDIX D
Architect's Rendering of Mandalay Front Elevations
c~eallWatell' Beach BIUJle Rob bon Task !Foll'ce 1 01
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APPENDIX E
Architect's Streetscape Planter Sketch
(please see next nm unnumbered pages)
Clearwater Beach Blue Ribbon Task Force
102
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1111111 FAOWlER ASSOCIATES
RCHITECTS, I\JC.
II 1421 COURT STREET SUlE 0
CLEARWATER 34616 813 4
p'ROJECT ~ ~("~ FJ~'P.
COMM. NO.' ~4F
f.IU! NO. , \
DATE
---------------
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111111 FOWLER ASSOClA TES
11- ARCHITECTS, Ne.
II 1421 COURT STREET, SUTE 0
CLEARWATER Fl 34616 813/449-
~ROJECT~ ~~.
COMM. NO. ~a-
flU! NO. JJ-_ ."
DATE =tr I.
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APPENDIX F
Architect's Public Restrooms Sketch
(please see next unnumbered page)
CleaD'Water Beach BllUle Ribbon Task Force
103
I~
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\
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APPENDIX G
Proposed Changes in Auto Traffic
(please see next unnumbered page)
Clearwater Beach Bh.lle Ribbon Task FOl1'ce
104
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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.
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
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Clearwater Beach Blue Ribbon Task Force
106
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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 pro,blem 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.
OR Road
Right to travel, but not to cruise
It you 8&W the movie "American I
Graffiti," you can pretty well imag-
ine what York, Pa.'s downtown
Itreet8 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
soc:i8l ritual.
1'een-agers are not the best of
drivers, but York's cruisers are worse
than most. Inter-auto conversations
take prec:edence over traftic signals-
in8tead of I'nnning red lights they
stay put at green ones so as not to
interrupt the chat-and the volume
oftraflic can be so heavy that a trip
of two blocks can take 20 minutes.
Buses and emergency vehicles are
lOJDetimes 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
ardinance made it illegal to drive
put a "traftic-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 morniDg.
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.
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BY PAUL REIDINGER
y_.... He 'I
The heart of the cruisers' com-
plaint was that the ordinance was
nat 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 tramc problem did not impli-
cate the U.S. Constitution. The ap-
pellate court rejected both these
contentions.
Instead the court concluded
that "there uists an unenumerated
constitutional right of intrastate I
travel" that "grows out of substan-
tive due proc:esa. "But that right, the
12 MIA JOURNAL I JULY 1990
Trends in the Law
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: "[J]ust as the right to speak
cannot conceivably imply the right
to speak whenever, wherever and
however one please~ven 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 please~ven 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. ..."
TIM TI8lIN
The court also rejected an over-
breadth claim, noting that the ~
trine "has never been ~t
outside the context of the
Amendment. ..."
(Lutz v. City of York, No. 89-
5252, March 28, 1990.)
1
"
,
APPENDIX I
Proposed Eastshore Area Redevelopment Plan
(please see next unnumbered page)
Cieall'Water Beach B!lUIe Rlbboll1l Task FOll'ce
-
107
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APPENDIX J
Architect's Pavilion Sketch
(please'see next unnumbered page)
Clearwater Beach Blue Ribbon Task Force
108
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APPENDIX K
Community Redevelopment Agencies (CRA)
I. 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
ele,cted 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 ::i1ancially' rewarding (to buy down
the risk to the developer).
III. How a eRA 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
Cleal1Wster Beach Blue Ribbon Task Force
109
Clearwater Beach Blue Ribbon Task Force
110
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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 yea,rs 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:
I = 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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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 Aaency:
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 Band 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
C!eall'Water Beach Bh.ae Ribbon Task FOlTce
111
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.
C~eaD"Water Beach B~ue Ribbon TaSk Force
112
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/ Gordon McDougall (Comm. Regulski)
I ;<'" 815 Bruce Ave ., 34630
Jay F. Keyes (Comm. Nunamaker)
100 Devon Dr., 34630
. ClEAR~.ATER BEACH BLUE RIBBON TASK FORCE
, , (15 MEMBERS)
John Doran (Clw. Beach Assoc.)
0: 662 Mandalay Ave., 34630
H: 65 Verbena St., 34630
Don Seaton (Clw. Innkeepers Assoc.)
0: Sea Wake Resorts, 445 Harnden Dr., 34630
H: 520 Belle Isle Ave., Belleair Beach, 34635
stephen R. Fowler (Chamber of.Commerce)
0: Fowler Associates Architects
1421 Court St., Suite 0, 34616
H: 319 Roebling Rd. N., Belleair, 34616
Kenneth G. Rosenow (Clw. Beach (Resort) Motel ASSOC.)
0:' Aegean-Spyglass Resorts, 421 Gulfview Blvd., 34630
..H: 2341 Haitian Dr., #59, Top of ,the World
ph: 447-9579
ph: 442..9855
ph: 442-6123
ph: 596-4216
ph: 449..2021
ph: 461-2930
ph: 447-3464
ph: 796-0204
Julie Tiernan (Clw. Beach Merchants Assoc.)
0: Julie's Seafood & Sunsets, 351 Gulfview Blvd. S., 34630 ph: 443-5417
H: 479 East Shore Dr. #3, 34630 ph: 442-5352
Anne McKay Garris (Mayor Garvey)
38 Acacia St., 34630
Walter Wellborn, Jr., M.D.
150 Devon Dr., 34630
(Mayor Garvey) ~~
otto P. Gans (Comm. Regulski)
868 S. Bayway Blvd., Apt. 313, 34630
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(Comm. Nunamaker~'~Y'\ ~
34616
Arthur X. Deegan II (Cemm. Fitzgerald) ~\'
891 Island Way, 34630 ~\~~
-
Major Martin (Corom. Fitzgerald)
23~4 Stag Run Blvd., 34625
Phil Henderson, Pres. (COffin\. Berficld)
Anderson Bay Cruise, Inc.
0: 25 Causeway Blvd./P.O. Box 3335, 34630
H: 55 Rogers St. 1404, 34616
David R. little (Corom. Berfield)
1734 Casey Jones Ct., 34625
o
446-4410 0: 446-6723
446-0800 0: 937-4211
442-7044
441-4368
461..1747
441~3145 0: 791-8081
443-3950
797-5227
462-2628
442-7823
797-2074
:( ,1/ /f1! V
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