COMPREHENSIVE PLAN ELEMENTS EVALUATION & APPRAISAL REPORT JUNE 1985
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June 1985
Comprehensive Plan
elements
Evaluation &
Appraisal Report
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EV ALUA TION AND APPRAISAL REPORT
COMPREHENSIVE PLAN ELEMENTS
LAND USE
HOUSING
CONSERV A TION
TRANSPORTATION
PARKS AND RECREATION
CITY OF CLEARWATER
LONG RANGE PLANNING DIVISION
r-. ,.."
PLANNING AND URBAN DEVELOPMENT DEPARTMENT
JUNE. 1985
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EVALUATION AND APPRAISAL REPORT
Clearwater Comprehensive Plan
Table of Contents
Preface
. . . . . . . . .
. . . i
Part I. Land Use Plan.
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....1
Part II. Thoroughfare Plan
. . . . . . . . . .
. . . .21
Part III. Housing Element.
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.33
. .48
Part IV. Conservation Plan. .
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Part V.
Parks and Recreation Plan.
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.6U
List of Maps
fo 11 owl ny
page
Map 1.
Service Areas . .
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. . . 2
Map 1.A Corporate Limits.
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. 2
Map 2.
Map 3.
Annexation and Development, 1980-85 .
.....b
Annexation and Development, 198U-85 (Reduction)
. . .21
Map 4. ADT Compari son. . . . . .
. . . . . . . .22
Map 5.
Map 6.
Major Thoroughfare Plan .
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. . . .
.25
Assisted Housing Locations. .
.36
Map 7. Recreation/Open Space. . .
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. . . .70
Prepared by:
Long Range Planning Division
Planning and Urban Development Dept.
City of Clearwater
June, 1985
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Li st of Tables
Table l. Phase 1 Capi tal Projects . . . . . . . . . . . . . . 26
Table 2. Housi ng Supply . . . . . . . . . . . . . 43
Table 3. Households . . . . . . . . . . . . . . . . . . . 44
Table 4. Housing Condi ti ons . . . . . . . . . . . . . . . . . 45
Table ~ . Population . . . . . . . . . . . . . . . . . 61
Table 6. 198U Section Populations . . . . . . . . . . . . . . 62
Table 7 . Recreational User Age Categori es . . . . . . . . . . 63
Table 8. Developed Parks. . . . . . . . . . . . . . . . . 64
Table 9 . Recreation Facilities. . . . . . . . . . . . . . 6~
Table 1U. Numerical Objectives for 1985. . . . . . . . . . . . 70
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PREFACE
Local governments are required by Chapter 163 of the Florida Statutes
to guide and plan for future growth, and to review and update their adopted
plans. This report addresses five of the most important topics to the
City's overall development. They cover the land and its resources, and
human shelter and mobility.
Clearwater's plans were prepared in the late 1970's, and have generally
met the policy needs of the City during the intervening years. Based on the
implementation experience, the current regulatory constraints, and infor-
mation from the 1980 census, the City's plans can be updated to provide a
better blueprint for the future. These reports review pro~ress to date and
set out the premises which will guide the preparation of updated plans.
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CLEARWATER COMPREHENSIVE PLAN
EVALUATION AND APPRAISAL REPORT
P ART I
LAND USE
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PART 1 - LAND USE
The Clearwater Land Use Plan was prepared in 1978 and adopted in 1979.
This element covers a land area of 21 square miles, which is referred to
throughout the plan as the Clearwater Service Area. About 2/3 of the
service area is ~thin the corporate limits of the City of Clearwater. Much
of the unincorporated land is composed of vacant tracts which were formerly
used for agriculture or pioneer family homesteads. Other portions were
recently developed adjacent to municipal boundaries and some are older
developed enclaves currently surrounded by incorporated territory. The
Clearwater Land Use Plan is binding only on those areas which are incor-
porated. However, important socio-economic and service dimensions of the
community are common to the overall urban area. Because of the irregular
dimensi ons of the City's boundaries, there is no visual or physical separa-
tion of incorporated and unincorporated properties, and dimensions such as
population, labor force, education, and income are most appropriately
considered for the entire Clearwater urban area. Annexation, as currently
enabled by State law, is almost entirely dependent on the will of the
property owner.
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For purposes of evaluating the existing land use plan and establishing
the framework for plan update, it is initially appropriate to consider the
boundari es of the planning area, which are generally: Belleair Road on the
south; the Gulf of Mexico on the west; Union Street (to Hercules Avenue),
Beltrees Road, extended (to Belcher Road), S.R. 580 (to U.S. 19) and Curlew
Creek Road (to McMullen-Booth Road) on the north; and McMullen-Booth Road
(to Alligator Creek) and Tampa Bay on the south. There are several excep-
tions to these generalized boundaries.
Clearwater has positioned its functional service capabilities to be
able to provide service in the area described above which is generally
recognized as the "Clearwater Service Area". The map which follows delin-
eates the specific functions and land areas covered by existiny service area
agreements. Police and fire services are dispatched through recently con-
structed facilities in the northern portions of the City. Sewage treatment
capacity is extended within the City and, by contract to Safety Harbor.
Parks and recreation and library facility needs have been planned on the
basis of service area population proJections.
Locati on of publ i c safety faci 1 i ti es, gas and sewage capaci ti es
indicate that Clearwater could provide selected services to land outside the
current service area boundaries in a cost-effective and timely fashion. At
this time, fire service and utility system contracts involviny service
extensions are currently in place, and further study would be needed before
maki ng any recommendations regarding boundary expansion beyond the current
service area limits. However, there has never been any formal rati fi cation
of the planning area boundaries which Ciearwater and several other jurisdic-
tions have used and implemented by custom. This should be done, to formally
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recognize planning in the same manner that other urban services are
addressed. Transfer of jurisdiction from the County to the City generally
occurs in an orderly transition, with development rights being granted in
accord with applicable land use plans. The City and County land use plans
are consistent in the generalized patterns of use, but frequently differ on
a site sped fi c basi s or in the densi ty ranges whi ch may be appl i ed to an
individual property. In evaluating the success or failure of Clearwater's
Land Use Plan, it must be remembered that Clearwater's plan is only advisory
and serves as a guide in processing annexation requests. However, because
adjacent properties are both indistinguishable from the City and because
property owners seek annexation, the City needs to plan for and prepare to
serve these areas. Annexation law is made at the state level, and the City
must work within the structure (or lack thereof) which is imposed. To
faci 1 i tate orderly effectuati on of the adopted comprehensi ve pl an,
Clearwater's service area boundaries as currently constituted should be
formally recognized by all relevant jurisdictions. Annexation within those
boundaries should be encouraged.
Since Clearwater1s Land Use Plan was adopted in 1979,1493 acres have
been annexed in separate actions. Each annexation entails a minimum of the
following actions:
one receipt and referral by the City Commission
one physical posting of the property
public hearing notifications mailed
two advertised public hearings
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two ordinance readings by the City Commission
one request to Pinellas County for transfer of jurisdiction
redrawing and distribution of new atlas sheets
Processing fees totalling $150 - $450 are assessed to partially defray
the admi nistrative processing expense. Although each annexation requires a
public hearing and a vote of the City Commission, over the past 10 years the
City has denied only one request for annexation; this record indicates that
annexation is probably over-regulated and inefficient under current state
law. In initiating the evaluation and appraisal of Clearwater1s land use
plan and implementation, it is helpful to revisit the context in whi ch plan
administration must function. Implementation efforts would be more effi-
cient and less costly if municipal service area boundaries were formally
acknowledged and if annexation within those boundaries were faci litated.
According to State law, the plan must be measured against the following
criteria, which provide the format for the remainder of this report:
(a) The major problems of development, physical deterioration and the
location of land uses and the social and economic effects of such
uses in the area.
(b) The condition of each element in the comprehensive plan at the
time of adoption and at date of review.
(c) The comprehensive plan objectives as compared with actual results
at date of report.
(d) The extent to which unanticipated and unforseen problems and
opportunities occurred between date of adoption and date of
report.
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A. Major Problems of Development, Physical Deterioration and the
Location of Land Uses and the Social and Economic Effects of Such
Uses in the Area.
In the years since Clearwater's fi rst binding plan was adopted, the
City has continued to experience problems associated with rapid growth in
the eastern and northeastern portions of the City, and problems associated
with obsolete land uses and physical deterioration in some western portions
of the City. Consumption of vacant land has occurred at a rate of about
200-250 acres per year. New construction has occurred in all forms of
residenti al and commercial structures. The map which follows indicates the
locations for which site plans and/or subdivision plats have been approved
since 1980.
Current zoning and land use plan regulations have governed all develop-
ment except for a portion of the privately held parcels on Sand Key. Recent
court action upheld a previous annexation and zoning contract and permitted
construction of density and building mass which exceeds currently permitted
limits. Primary development corridors are Sand Key, U.S. 19, and the
eastern portions of S.R. 60. Nearly all sectors of the City have experi-
enced some measure of new development or redevelopment.
No new development has occurred in several older areas of the City.
Notably, the northwestern, the mid-central and the southcentral portions of
Clearwater had virtually no new development during the past five years. In
the case of the northwestern portion of Clearwater, other problems of poor
housing, crime and socio-economic conditions indicate that problems of
physical deterioration and decline persist, and are influencing the re-
development potential of nearby districts.
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The southwestern portion of the City has experienced a strong trend of
revitalization, with expansion of office and industrial developments. Thi s
redevelopment was facilitated by proximity to Morton Plant Hospital,
favorable zoning, and the availability of some well-located parcels of
vacant land. Redevelopment of several older commercial centers has also
occurred during the past five years. A related pattern has occurred with
the creation of IInewll development sites in parking lots of existing centers.
Requests for resubdivision to designate these new out-parcels has created a
special case of in-fill development.
A comparison of the 1970 and 1980 census statistics indicate that
Clearwater's growth has resulted in no major socio-economic changes. The
average age of the population has declined somewhat, from 47.6 to 44.2 years
old. Although the black population increased numerically from 5,627 to
7,156, the high rate of growth of the white population resulted in a
decrease in the black percentage of the total population, from 11.5% to
8.5%. The population residing in group quarters more than doubled, from 877
to 2,247; as a percent of total population, the change was from 1.7% to
2.6%. The overall population increased by 6% per year from 51,624 to
85,528.
The number of persons per household decreased from 2.41 to 2.23 between
1970 and 1980. The percentage of one-person households increased from 25%
to 30%. Deleting one-person households from the computation, a statistical
inference can be made that the IIfamilyll size fell from 3.0 in 1970 to 2.9 in
1980. The median fami ly income in 1980 was $18,564; this was 7% above the
statewide median. On a per capita basis, income in Clearwater also exceeded
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the statewide median by 13%, ($8223 Clearwater; $7270, State of Florida).
The number of persons below the poverty level stayed approximately the same;
6,193 in 1970,6,123 in 1980. The local income distribution remained the
same, although inflation caused the entire range of values to increase, as
illustrated below:
COMPARATIVE INCOME DISTRIBUTIONS
1970 and 1980
35
30
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Income,(OOO's/year)
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Economic statistics indicate that all sectors of the economy grew
between 1970 and 1980, in relatively the same porportions. Touri sm remai ns
the primary economic activity. As regards the land use plan and traditional
economic analysis, tourism is an "invisible" industry, that is, tourist
activities lap into the retail and services sector rather than being
classified as separately designated industrial uses. Therefore, when
comparing Clearwater's land use statistics with national or regional
averages, it would appear that the City has an oversupply of restaurants,
amusement facilities and retail establishments when compared to the existing
resident population. However, hotels, shops and restaurants are needed to
accommodate tourists, and are thus functioning as industrial uses, from the
standpoint of Clearwater's economic base. Land use analysis must be
oriented toward Clearwater's unique economic base, if a productive growth
management policy is to be an outgrowth of the planning process.
B. The Condition of Each Element in the Comprehensive Plan at the Time
of Adoption and at Date of Report.
None of the many di cti onary defi ni ti ons of "condi ti on" seems approp-
riate in the context of the phrase noted in the State law. As a substitute,
the followi ng operati onal defi ni ti on wi 11 be used to interpret thi s cri-
terion for plan evaluation:
1) Did the plan meet the minimum legal requirements when adopted, and
does it meet them now?
2) Did the plan adequately meet the needs of the community to guide
decision-making when it was adopted, and does it provide valid
policy guidance now?
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The Land Use Plan which was adopted in 1979 met the requirements of
State law at the time of adoption. At the time of enactment, Clearwater had
no bi ndi ng pl an. It was important to have a basi s on whi ch to address the
zoning for individual parcels. During the intervening four years after plan
adoption, the zoning and land use classifications were systematically bei ng
reconciled. Currently, the Land Use Plan also meets the requirements of law
in that there is conformi ty wi th zoni ng requi rements. It further desi gnates
future general di stri buti on, locati on and extent of the uses of 1 and for
housing, business, industry, agriculture, religion, conservation, education,
public buildings and grounds, other public facilities, and other categori es
of the public and private uses of land, as required by law.
Although the planning and zoning categories are essentially reconciled,
the qualitative dimensions of the land use plan have gone largely unimple-
mented. Preservati on of envi ronmenta 11 y sensi ti ve 1 ands, whi ch retai ned
deve 1 opment ri ghts but were desi gnated by the lIell symbol s on the pl an, has
not in all cases been satisfactorily addressed through the site plan
approval process. The implementation procedures established in the adopted
Envi ronmental Management Program and Conservati on Pl an di d not prove
uniformly effective in safeguarding the areas sensitive features, and this
deficiency was not corrected in the Land Use Plan.
Downtown is another special treatment area which was addressed in the
1979 Land Use Plan. The Plan for Downtown Clearwater was included as a
portion of the citywide plan. Liberalized zoning rules have been passed
consistent with the downtown plan, and some implementation projects have
begun. But liberal zoning is a necessary but not sufficient condition for
downtown redevelopment; in particular, residential development has lagged.
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The economic and regulatory ci rcumstances which existed when the downtown
plan was written have changed. It can be concluded that the Land Use Plan
does not respond to the IIcondi ti onll of the mi d-1980 IS. It does not recog-
nize those plan elements, such as the Coastal Zone Management Plan and
Thoroughfare Plan which were written after 1979. The regulatory and
economic climate has changed since 1979, and development within the City and
County has led to an increased population base. Several areas of importance
which the plan sought to address have not responded to the previous plan
implementation techniques.
C. The Comprehensive Plan Objectives as Compared with Actual Results
at Date of Report.
The Land Use Plan included ten sets of goals, policies and objectives.
These objectives were written in non-quantifiable terms; although evaluation
i mpl ementati on is hi ndered by thi slack of speci fi ci ty, a two-phased
approach can be used to consider their effectiveness: how well has the City
done in achieving the desired end-state defined in the objective, and how
well does the objective express a desirable and achievable end-state. An
analysis of the Land Use Plan's objectives and implementation results
follows.
ENVIRONMENTAL RESOURCES - Retain, to the maximum extent legally permissible,
shorelines, wetlands, vegetation, wildlife, streams and lakes, in thei r
natural state.
The City has effectively protected most of the immediate shoreline
areas during the past five years. Ordinances implementing the Coastal
Construction Control line set effective limits to beachfront development.
Streams and lakes are addressed through floodplain zoning which was approved
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in early 1984. Development review activities have allowed some limited
alteration of wetlands. Vegetation and wildlife, however, have been
supplanted when urban development is permitted for an area.
This objective must be more carefully worded in the revised Land Use
Plan. An environmental objective needs to be more specific as to the types
of resources which it is desirable to retain, especially as regards vegeta-
tion and wildlife. Also, inclusion of the term Illegally permissiblell does
provide an element ci rcular reasoning, since the City is often the agency
which writes the laws.
ECONOMIC DEVELOPMENT - expand industrial and professional opportunities
within the City, while retaining natural amenities to prevent erosion
of the tourist base.
As determined from Census Department and independent reports, it
appears that progress has been made toward this objective. The number of
business establishments in Clearwater has grown, and the City is a net
importer of labor. Hotel occupancy figures indicate that Clearwater Beach
has occupancy rates among the highest in the region, for any given reporting
peri od.
This objective is adequately written to address the topic of economic
development. However, it must be noted that economic development does not
receive a great deal of direct municipal attention; the functioning of the
economy is largely left to the private sector.
HOUSING - To provide means to maintain the existing stock, while at the same
time allowing maximum choices of density ranges and site configurations
+or new development.
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The efforts of the City, through administration of Community Develop-
ment Block Grant funds and support of the Neighborhood Housing Services
program has provided means to maintain the existing housing stock. New
developments have been built at all density ranges. Thus, it appears that
this objective has been implemented in practice.
However, the objective is written in very narrow terms. There are
persistent housing deficiencies in Clearwater that extend beyond the
objective stated above. Also, the social context of housing is changing,
with congregate housing becoming a significant factor in Clearwater, and the
number of single-person households increasing substantially. Thus, this
objective needs to be more carefully written to provide better policy
direction.
REDEVELOPMENT - To encourage inner-city redevelopment efforts consistent
with The Plan for Downtown Clearwater.
Progress to this objective has begun, but has been slower than antici-
pated. In particular, residential redevelopment has not evolved as ex-
pected. The Plan for Downtown Clearwater needs to be reconsidered to
respond to the current regulatory and economic conditions. The Plan for
Downtown Clearwater included specific targets for redevelopment space needs.
By referencing that specific document, this objective provides adequate
definition for policy guidance.
TRANSPORTATION - To expand thoroughfare capacity and provide for alterna-
tives to the private automobile.
Since the Land Use Plan was adopted, the City has initiated or com-
pleted expansion to the thoroughfare system. The Druid Road expansion has
been initiated, as has been the widening of S.R. 60 near Clearwater Mall.
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The extension of Drew Street is expected to begin in 1986-87, and Missouri
Avenue was widened between Court and Cleveland Streets. However, during the
same peri od of time population has increased substantially and expansion of
road links is needed. Any failure to carry out this objective does not lie
with the City alone; many of the overcrowded road links are under County or
State jurisdiction.
PUBLIC SERVICES AND FACILITIES - To provide the existing level of services,
or expanded service ranges where indicated, within the City throughout
the period of the plan horizon.
Progress toward this goal has continued for the majority of services.
Several examples can be noted. Sewage transmission and treatment have been
faci litated in the eastern portions of Clearwater, where a large force main
was recently installed. Older transmission lines in the downtown have been
the focus of an extensive relining program which rehabilitates their
effective function. Library services will be expanded with the completion
of the east branch, which is under construction near Belcher Road. At the
same time, services have been expanded at the existing branches located in
the western portions of the City.
Examples of services in which population growth and demand has out-
stripped services are marina slip space and certain locations where roads or
sidewalks are inadequate. Marina space and thoroughfares are both the
subject of individual plan elements.
The objective written in the ~and Use Plan is clearly written, but is
not written in specifically quantifiable terms.
CULTURAL/RECREATIONAL - To provide at both scattered and centralized loca-
tions, sites where a wide range of activities may be pursued.
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Recreational and cultural opportunities are offered at scattered sites
throughout the community. Recent decisions will result in the development
of soccer fields in Countryside and the acquisition of a site for a rec-
reation center in Morningside. The only area where there is a specific
deficit is north of Druid Road in eastern Clearwater, which lacks any public
swimming facilities. Cultural activities are provided by both municipal and
other special interest groups; notably P.A.C.T. which operates Ruth Eckerd
Hall located in east Clearwater.
This objective is easily interpreted, as written, and represents a
desirable end-state.
MANAGEMENT - To provide for systematic maintenance and improvement of the
City's physical plant, and for increased efficiency in governmental
operati ons.
Maintenance and improvement of most City facilities continues as an
ongoing function. The City does, however, have several buildings in need of
attenti on. The Mari na bui 1 di n9 on C1 earwater Beach has been in servi ce,
primarily as a leased commercial facility since the early 1950's. This
bui 1 di ng and pa rki n9 lot occupy a hi gh 1 y vi si b 1 e 1 Clcati on on C1 earwater
Beach, and although this building is not unsafe, it is in need of modern-
i zati on. The 01 d Ci ty i nci nerator, located in the North Greenwood nei gh-
borhood, is no longer functional and should be considered for removal.
Increased efficiency has occurred in several areas. Recently a com-
puteri zed acti on order system was created to track i nqui ri es and requests.
Better service to citizens has resulted from this method. The establishment
of remote stations for police services and the proposp.d centrally located
Public Works yard will lend to increased efficiency.
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PLAN IMPLEMENTATION - To minimize bureaucratic delays of private development
proposals by establishing regulations which are easily interpreted
without sacrificing the achievement of qualitative objectives.
The City has not adopted the revision of the land development regula-
tions, which was contemplated when the land Use Plan was adopted. A draft
of the new land Development Code has been presented to the City Commission
and hearings are expected to be completed during 1985. As they are current-
ly adopted and administered, the land development regulations are neither
clear nor consistent. The occasionally unproductive delays often create
needless duplication. However, almost all land development codes carry some
inherent inefficiencies.
This objective states a desirable set of conditions--the attainment of
a higher quantitative capacity without sacrificing quality. The objective
needs to be more clearly stated to provide better policy guidance.
INTERGOVERNMENTAL COORDINATION - Facilitate the City's compliance with
externally imposed regulations and to utilize avenues for local input
to forward local concerns.
Progress toward this objective continues to be good, and the objective
itself is clearly written. There needs to be a set of clear objectives for
intergovernmental coordination, in order to direct lobbying efforts. In the
revision of the Land Use Plan, intergovernmental needs will be more ex-
plicitly stated.
To summarize this review of plan objectives, Clearwater has made
pro~ress toward achieving its objectives in almost every area of addressed
in the land Use Plan. External constraints have limited progress toward
some objectives. In instances, such as road construction, where funding
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constraints have existed, other financing mechanisms are being explored.
However, as the City refined and adopted all of the other elements of the
Comprehensive Plan, the objectives to be achieved through the Land Use Plan
should become more specific to land use planning, with a de-emphasis of the
other functional areas such as recreation, transportation, and the like.
(D) The Extent to Which Unanticipated and Unforseen Problems and
Opportunities Occurred Between Date of Adoption and Date of
Report.
Several plan implementation problems and opportunities have arisen
since the adoption of the Land Use Plan, which have affected the implemen-
tation of plan objectives. An enumeration of the problems are:
1) Unfavorable judicial action which prevents the reduction of land
use intensity on Sand Key.
This permits land use and development patterns which are more intensive
than those establi shed when the Land Use Plan was adopted. Currently, the
City is pursuing the appeal of these decisions to the Florida Supreme Court.
2) Designation of environmentally sensitive areas was accomplished by
applicati on of a symbol over the underlying use category depicted
on the plan.
The symbols were intended to call attention to envi ronmental con-
straints on land use and their locations were determined based on the City's
conservation element. However, the symbolic method has proved to have
several drawbacks in practice; they are not all-inclusive and omit smaller
areas, they do not depict the size and configuration of the resource, and
they carry with them the presumption that the underlying category of use is
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appropriate to the site. It was intended that the envi ronmental restric-
tions would be carried forward as an administrative consideration in site
plan review. In practice, this has not always occurred in a timely fashion.
An alternative used by many other jurisdictions is the establishment of
a separate land use plan category (color) which conforms to the size and
location of the resource to be preserved.
3) The downtown plan has not been implemented according to the project
schedule and development program which was proposed. Office and
retai 1 redevelopment have made some strides, but there has been no
interest in the residential component, although the City/C.R.A.
advertised for proposals.
The major infrastructure expenditures which were proposed involved
traffic re-routing and improvements to the bayfront park. The traffic
re-routing was studied in detail, but to date no funds have been committed
to its effectuation. Bayfront park renewal was proposed for a general
obligation bond issue in 1984, but the referendum did not pass. In light of
the lack of progress toward beautification, transportation and downtown
housing objectives, alternative plans and strategies should be considered.
4) Intergovernmental discrepancies have led to a categorically-induced
set of plan implementation difficulties.
As has been noted earlier, the County plan is binding on all unin-
corporated areas, and jurisdiction may be retained by the Board of County
Commissioners for two years follo~ng annexation. In administering zoning
and land use plans, categorical conflicts have arisen. Clearwater1s Land
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Use Plan has eight categories, and the symbol for envi ronmentally sensitive
lands. The County land use plan has 23 categories. The differences between
the City and County plans generally occur as a function of intensity of
development; for example, the County plan has nine categories for residen-
tial development, where the City plan has three categories. In general the
City has supported lower intensity designation at the time of development
approval, and with the cooperation of the applicant residential annexations
can generally be processed with little delay. Annexation has been delayed
due to interpretation problems arising from these differences in instances
where the Board of County Commissioners has considered the transfer of
jurisdiction application at the maximum density permitted for the category,
rather than the actual proposed density, which was substantially lower.
Plan implementation can be more complicated when environmentally
sensitive lands are at issue, or when commercial development rights are
being requested. When the County plan is less restrictive than the City's
plan, the County's plan is considered the binding document. This has
resulted in commercial centers being sited on locations the City's plan had
designated as non-commercial. Examples of such instances where the County
policy has dictated the location of commercial designations can be found on
U.S. 19 and Belcher Road. However, when the City and County have worked
together, a powerful force for plan implementation has been created. This
has occurred in the maintenance of a scenic/non-commercial corridor desig-
nation along McMullen-Booth Road.
Opportunities to further plan implementation have occurred in the
following instances:
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1) An act of the legislature in 1980 established a mechanism for
creation of a community redevelopment trust fund to be funded in
part by tax increment financing. This has yielded the primary
source of public implementation funding for The Plan for Downtown
Clearwater.
2) Impact fees applicable to almost all major new development have
been adopted, to establish trust funds to purchase recreation and
open space lands. Administration of these Ordinances provides
earmarked sources of funds to purchase envi ronmentally sensitive
parcels, land for landscaped open space, and construction of
recreation facilities.
3) Plan implementation was enhanced by the analysis and funding
formulas derived during the review of the Application for Develop-
ment Approval which was required to authorize Park Place, a 1+
million square foot office and retail development of regional
impact located near the intersection of U.S. 19 and S.R. 60. The
development order sets levels of public improvements ~hich must be
in place to allow construction to continue for subsequent phases of
this development. Thus, the City and developer are joined in the
necessity to adequately provide intrastructure to meet the needs of
this important area of the City.
To summari ze the evaluation and appraisal of the Land Use Plan, the
most important task which faced the City at the time of adoption was
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bringing the zoning into conformance with the plan. This has been accomp-
lished. Downtown redevelopment has begun to be accomplished consistent with
the plan. The economic base appears to have remained healthy, and some
environmentally sensitive lands have been preserved.
Challenges which remain include strengthening the downtown redevelop-
ment efforts, protecting and enhancing the community's economic base,
refining the land use plan categories for appropriateness and ease of
implementation, and insuring that the goals of the other adopted plan
elements (housing, conservation, historic preservation, etc.) are reflected
in the land use plan categories and implementing ordinances and land
development code.
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CLEARWATER COMPREHENSIVE PLAN
EVALUATION AND APPRAISAL REPORT
P ART II
THOROUGHFARES
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PART II - THOROUGHFARE
The Thoroughfare Plan of the Clearwater Comprehensive Plan was adopted
in 1980. At that time, it was acknowledged that serious deficiencies
exi sted in the traffi c ci rculati on system, that those defi ci enci es exi st
throughout the county, and that many of the deficient links are under the
juri sdi cti on of the County or State. In an envi ronment such as
Clearwater1s, which experienced a 6 percent annual growth rate between 197U
and 1980, it is cri ti ca 1 to keep up wi th change. As can be seen in the
evaluation and appraisal which follows, the responsible jurisdictions have
not funded road improvements at a level commensurate with population growth.
Growth has occurred in both residential and commercial land uses. Map
3 displays the location of major developments which have been initiated
since 1980. Faci lities such as Ruth Eckerd Hall, Countryside High School,
Holiday Inn Surfside and Cypress Point Shopping Center have created notice-
able impacts, and have required adjustments to adjacent road links. In
addition to growth-responsive planning considerations, service dimensions
such as mass transit, pedestrian movement, and bicycle access should be
included as important subsidiary functions of the thoroughfare system.
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Bi cycle routes were the subject of an optional element of the Comprehensive
Plan; it is proposed that bicycle planning be included in the update of the
Thoroughfare Plan to provide for a consistent official mapping treatment.
Evaluation and appraisal of the Thoroughfare Plan will follow the
general format included in Chapter 163.3191, Florida Statutes. However, the
wording of the state law speaks more directly to land use planning; where
appropriate, the wording has been adjusted to respond to traffic planning
concerns.
A. Major problems of development, physical deterioration, and the
location of land uses and the social and economic effects of such
uses in the area.
A comparison of average daily traffic counts as shown on Map 4 illus-
trates that traffic has increased between 1978 and 1984. The average
increase (compiled from all of the count stations for which comparative data
was available) indicates a 22 percent increase in Average Daily Traffic
(ADT). During the same period, Clearwater's population increased by 19
percent. Road improvements have failed to keep pace with traffic or
population growth; during the same time period, lane miles on the major
collector and arterial system increased by 7 percent. As indicated in the
Thoroughfare Plan, many of these thoroughfares were overburdened in 1978.
Expansions have been made in the U.S. 19 and Belcher Road corridors, which
have improved conditions, but congestion still occurs primarily centered on
peak-hour intersection capacities. The overpass programmed at Countryside
Boulevard-S.R. 580 in the State Transportation Improvement Program is
vitally important to the free flow of traffic.
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New subdivision development results in the installation of local
streets at the devel operl s expense. and occasi onally imposes a requi rement
for upgradi ng of an adjacent collector street if necessary to accommodate
the access requirements of the new neighborhood. Absent subdivisi on of raw
land, road improvements may be funded by general fund revenues, bonds, or
general development impact fees. No impact fee specifically earmarked for
road improvements has been established. New subdivision streets are
required to be installed in conformance with city design standards; however,
when developers indicate that the streets are to be privately owned and
mai ntai ned, vari ances to the subdi vi si on desi gn standards are often
requested. City staff reviews these requests very carefully, to insure that
no pub 1 i c or pri vate i nconveni ence mi ght be expected to res u 1 t . In addi-
tion, staff seeks to insure that new subdivisions have interconnections, and
that more than one single point of access to collector streets is provided.
Deterioration of city streets is addressed through an on-going resur-
facing program. Redesign of intersections was investigated in detai 1 under
the federally-funded TOPICS program. The Clearwater TOPICS report was
issued in 1973, and many of its recommendations have been implemented or
remain valid intersection designs for future improvements. Redesign of
streets on Clearwater Beach was investigated in the ~_le3_r~a~_~__~ea~h T~ffic
Study, phases 1 and 11. The improvements recommended in that report address
automobile, bus, bicycle and pedestrian traffic, and beautification of the
transportation corridors.
The location of major road corridors has remained fixed as outlined in
the 1979 adopted plan. Minor connector streets, where indicated, have been
sited consistent with incoming development. No consistent methodology was
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used to address the interconnection of minor streets in the 1979 plan. In
particular, the need for interconnections was noted in the portion of
Countryside located north of S.R. 580. Interconnecting streets in the area
east of U.S. 19 between S.R. 580 and Sunset Point Road were not addressed in
the Thoroughfare Plan. However, this area is currently being developed and
interconnections ~ll be needed. Interconnections of existing neighborhoods
are an additional area which should be addressed on a detailed basis.
B. The condition of each element in the Comprehensive Plan at the time
of adoption and at date of report.
The Thoroughfare Plan was lawfully adopted in 1980, and responded to
the needs and objectives of the community as expressed at that time.
The plan has deficiencies which render it inadequate to respond to the
range of issues that Clearwater must address in the future. Specifically,
this plan must address a fuller range of thoroughfare access functi ons and
expand its focus beyond the arterial system. Intercity travel by mass
transit is expected to be a more important consideration in the future, with
both a cross-state connection contemplated by the Florida High Speed Rail
Commission and a county~de guideway transit project currently under study.
At the time the previous plan element was adopted, the only mass transit
system proposed was the centralized bus system. Clearwater had no speci fi c
responsibilities, and chose to be covered by the mass transit element
prepared by the Pinellas County Planning Council.
Other modes, such as bicycles and pedestrian, are appropriate for short
trips and need to be encouraged by infrastructure design and investment.
Related issues of parking and access are being revisited in the Land
Development Code which is being proposed for adoption.
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C. The Comprehensive Plan objectives as compared ~th actual results
at date of report.
The Thoroughfare Plan did not include a set of verbal objectives.
Goals and policies were stated, but the Major Thorouyhfare Plan map, which
follows as Map 5, and Thoroughfare Improvement Priority List constitutes
short and long-range improvement objectives.
The lane arrangements on the Thoroughfare Plan map called for phased
improvements leading to: the creation of a six lane limited access corridor
on U.S. 19, the addition of two lanes to the MemoMal Causeway and bridge,
expansion of S.R. 580 and Belcher Road north of Drew Street as six lane
divided highways, and expansion of capacity to a four lane divided con-
figuration on Sunset Point Road, McMullen-Booth Road, Drew Street, Northeast
Coachman Road, Myrtle Avenue, and Curlew Creek Road. Druid Road, Gulf
Boulevard, and portions of Lakeview Road were to be widened to a three lane
divided or a four lane undivided configuration. These improvements were
generally consistent ~th the countywide Thoroughfare Plan as adopted by the
Metropolitan Planning Organization. The necessary improvements were
scheduled in phases to correspond to the capital improvement program cycles.
The first phase improvements and their status are as follows:
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Status
Complete
Part
complete/
part
programmed
Programmed
Under
construction
Programmed
Under
construction
Complete
Unfunded
Unfunded
Part
programmed/
unfunded
Unfunded
TABLE 1
PHASE I CAPITAL PROJECTS
Source of $
State pri mary
State pri mary
State pri mary
State pri mary
State pri mary
County
County
County
County
County*
County
Type of
Improvement
Add 2 lanes
Add 2 lanes
Interchange
Add 4 lanes
Add 4 lanes
Reconstruct
to 4 lanes
Bui 1 d
4 lane
di vi ded
Reconstruct
4 lane
di vi ded
Reconstruct
4 lane
di vi ded
New/
Reconstruct
4 lane
di vi ded
New/
Reconstruct
4 lane
di vi ded
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Location
u.S. 19 from N. of Whitney
Rd. to Seville Blvd.
U.S. 19 from S. of Drew St.
to S. of Countryside Blvd.
U.s. 19 from S. of Countryside
Blvd. to N. of S.R. 580
S.R. 580 from Belcher Rd. to
U.S. 19
S.R. 580 from U.S. 19 to
Countryside Blvd.
Belcher Rd. from S.R. 580
to Curlew Rd.
Belcher Rd. from Countryside
Blvd. to S.R. 580
Belleai r Rd. from Mi ssouri
Ave. to Keene Rd.
Belleai r Rd. from Alt. 19 to
Mi ssouri Ave.
Keene Rd. from S.R. 6U to
Sunset Pt. Rd.
Keene Rd. from Sunset Pt. Rd.
to S.R. 580
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Status
Unfunded
Unfunded
Unfunded
Programmed
Unfunded
Unfunded
Under
construction
Completed
Completed
Part under
constuction/
part
programmed
Unfunded
Complete
Source of $
County
County
County
County
County
County
Ci ty
City
City
State*
State
City/County
Type of
Improvement
Reconstruct
4 lane
di vi ded
Reconstruct
4 lane
di vi ded
Reconstruct
4 lane
di vi ded
Reconstruct
4 lane
di vi ded
Reconstruct
4 lane
di vi ded
Reconstruct
add medians
New con-
structi on
3 lanes
Add
emergency
1 ane
Add 2 lanes
Add 2 lanes
Study
Study
Location
Sunset Pt. Rd. from Keene Rd.
to U.S. 19
Sunset Pt. Rd. from Alt. 19
to Keene Rd.
Highland Ave. from Belleai r
Rd. to S.R. 60
McMullen-Booth Rd. from
S.R. 60 to Sunset Pt. Rd.
McMullen-Booth Rd. from Sunset
Pt. Rd. to S.R. 580
McMullen-Booth Rd. from
S.R. 580 to S.R. 586
Druid Rd. from Belcher Rd.
to Edenville Rd.
Memorial Causeway from East
Bridge to West Bridge
Missouri Ave. from Court St.
to Cleveland St.
S.R. 60 from U.S. 19 to
McMullen-Booth Rd.
Mass/Rapid Transit
Alternatives, Memorial
Causeway
East-west Corridor
Alternatives, south
Clearwater
*Programmed/under construction portions included as City of Clearwater
project in 1984-85 T.I.P.
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The work programs of all three jurisdictions (City, County and State)
have experienced slippages. The most pronounced slippages have occurred in
the county road projects; of all of the county-financed projects, only the
Belcher Road extension has been completed, and programming of uncompleted
projects has slipped as well. City and State slippages have also hampered
plan implementation efforts, but these slippages have not been of as great a
magnitude as the delays in county funding.
D. The extent to which unanticipated and unforseen problems and
opportunities occurred between date of adoption and date of
report.
Several problems and opportunities will affect the reformulation of
Clearwater's Thoroughfare Plan. Opportunities are present in the forms of
additional funding resources and an expanded data base, as enumerated below:
1) The Florida legislature approved enabling legislation to permit the
imposition of an additional tax on gasoline. This tax may be levied by the
County Commission, at a rate of up to 4 cents per gallon. Passage of thi s
tax would stand to benefit Clearwater in several ways. The backlog of
needed improvements to capacity-deficient county roads could be reduced, and
the tax would be paid by residents and tourists who purchase gasoline. Other
forms of taxation, such as the property tax, would fall more heavily on
homeowners. Although the finalized expenditure formula will be determined
by the Board of County Commissioners, it appears that they are aware of the
serious capacity deficiencies on Clearwater links of the county road
system.
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2) The funding and support currently being given to guideway transit
systems will present a significant opportunity to reduce Clearwater1s
dependence on the automobile. According to the 1980 census, only 2 percent
of the population used transit for thei r work trips; the same percentage
used transit in 197U. Twice as many people walked to work as used transit
systems. Further, investment in a more intensive mass transit system will
provide an opportunity to better integrate urban land uses with the transit
system.
3) In 1984, the Metropolitan Planning Organization revised its
long-range plan and extended the time horizon to 2010. An extensive
modelling effort was used to generate traffic projections for all of the
major road links in the County, therefore this represents a significant
opportunity for Clearwater1s plan update. The methodology and projections
have been certified as acceptable to the United States Department of
Transportation.
4) In 1983, Clearwater approved a Development Order for a large office
and retail project located near S.R. 60 and U.S. 1Y. This project, Park
Place, required an extensive traffic analysis, and ~ll requi re re-
evaluation to permit construction of subsequent phases. As a condition of
approval, the developers paid a traffic impact fee equal to the propor-
tionate share of the traffic overload they were expected to generate.
Clearwater committed to using these funds to provide improvements; however,
funding well in excess of the developer1s contribution will be needed. The
occasion of this DRI project, the fi rst one in Clearwater since the law was
enacted in 1973, provides both an additional motive to track traffi c needs,
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an i ncenti ve to address these needs, and a method to finance these improve-
ments. On a related topic, the Florida Supreme Court recently denied a
legal challenge to the traffic impact fees imposed by Palm Beach County.
Either Clearwater or Pinellas County has additional grounds to develop
traffic impact fees as an alternative method of funding growth-related road
needs.
Problems regarding traffic capacity were identified in the 1979
Thoroughfare Plan, and infrastructure improvements to alleviate the average
daily traffic congestion have, to a greater or lesser degree, been installed
by all jurisdictions.
Three special conditions need particular local attention because the
conditions of local importance fall outside the traditional traffic en-
gineering decision framework and/or represent extraordinary financing
deci si ons .
1) Clearwater Beach has adequate capacity for average daily traffic.
However, there is such a substantial demand for beach recreational activi-
ties that on holidays and summer weekends, the beach streets and access
roads are vi rtually impassable. As a major economi c and sceni c resource,
Clearwater Beach, its buildings, road system and parking lots should present
an i nvi ti ng and attracti ve atmosphere to touri sts, resi dents and guests.
The parki ng and street systems occupy key parcels on the beach and have the
opportunity to serve as aesthetic and functional resources to a greater
extent than they do currently. Streetscape plantings, intersection realign-
ments, and enhancing bicycle and pedestrian accommodations were addressed in
the Clearwater Beach Thoroughfare Plan, which wi 11 be included for adoption
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in the updated Thoroughfare Element. In order to preserve Clearwater's
economic base, an attractive beach envi ronment is a necessity. On peak
days, the access and egress routes to Clearwater Beach are virtually
impassable for a large part of the day. The City needs to seek solutions to
alleviate peak period automobile use on the beach or to expand access and
egress capacities.
2) The street system problems in downtown Clearwater are of a dif-
ferent sort than those experienced on the beach. Downtown streets generally
function well in the provision of through traffic movement; however, they do
not support access to the adjacent shops and offices. A recommendation to
reroute the through traffic on S.R. 60 was studied in a report received by
the City in 1980. The need for and costs of relocation will soon be
reconsidered by the City in the context of updating the Plan for Downtown
Clearwater, and the need for locally-financed improvements to the downtown
street system wi 11 be determined. The downtown street system must support
the community's redevelopment objectives as well as its traffic functions.
3) A major improvement which has been proposed in eastern Clearwater
is the 49th Street Bridge, which is intended to connect McMullen-Booth Road
with 49th Street, traversing a portion of old Tampa Bay in a north-south
direction parallel to U.S. 19. Voters in the county defeated a revenue bond
proposal twelve years ago which would have used general obligation bonds to
fund constructi on of thi s bri dge and causeway. Pre 1 i mi na ry engi nee ri ng,
economic and envi ronmental studies were commissioned by the County, which
indicated that the project could require both a user toll and a tax fund
subsidy to pay for construction. Consequently, additional work on the pro-
ject was shelved. It has remained on the County's long-range road plan,
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although it is not on Clearwater's plan. This conflict represents an
unresolved problem to be addressed in the revision of the Clearwater
Thoroughfare Plan.
Ins umma ry, the Thoroughf.are.]>l an provi ded an adequate 9ui de for maj or
road improvements, and implementation efforts have been successfully
initiated. However, the updated plan must address the needs of a developed,
rather than a developing community. The new plan must address ~he integra-
tion of land use and transportation systems, and use the transportation
system to reenforce desi red patterns of land use. Redevelopment of older
portions of the City need to be considered. Interconnection of local
streets has emerged as a specific area of concern. Bicycles and pedestrians
need to be better accommodated in the traffi c corri dor. And, fundi n9 and
programmi ng remai n factors to be addressed in an updated T_h--9..!:.o_u..9h(a_~e_ Pl an.
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CLEARWATER COMPREHENSIVE PLAN
EVALUATION AND APPRAISAL REPORT
PART III
HOUSING
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-- -~- ------~I
PART III - HOUSING
The Housi ny El ement of the Comprehensi ve Pl an for the Ci ty of
Cl earwater was prepared by the Ci ty' s Pl anni ng Department in 1977. It was
adopted by the City Commission in 1979. The element was prepared pursuant
to the Local Government Comprehensive Planning Act of 1975 (LGCPA) and
generally complies with its provisions. The LGCPA was amended in 1980 to
requi re ci ti es to provi de for group home and foster care faci li ti es. To
reflect these changes Amendment #1 to the Housing Element was prepared and
adopted in 1982.
This evaluation and appraisal of the Housing Element takes into
consideration the legal requi rements of the LGCPA, local needs as expressed
in the goals and objectives of the Comprehensive Plan and the changes in
actual local housing conditions.
Legal Requirements
Specifically, Section 163.3177, Florida Statutes, as amended provides
that a local comprehensive plan ~11 include "a housing element consisting
of standards, plans and principles to be followed in:
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1. The provision of housing for existing residents and the anticipated
population growth of the area;
2. The elimination of substandard dwelling conditions;
3. The improvement of existing housing;
4. The provision of adequate sites for future housing, including
housing for low-income and moderate-income families, mobile homes,
and group home faci lities and foster care facilities, with sup-
porting infrastructure and community facilities as described in
paragraph (6)(c) and (7)(e) and (f)l;
5. Provision for relocation housing and identification of housing for
purposes of conservation, rehabilitation, or replacement;
6. The formulation of housing implementation programs."
A review of Clearwater's Comprehensive Plan indicates that each of the
above items of concern in the LGCPA are addressed to some degree in the
Housing Element. In particular, though, the element needs a clearer
statement concerning relocation. It should also have a stronger relation-
shi p to the Uti lity Element. This weakness is probably due to the fact that
the two elements were not prepared concurrently.
1 Paragraph (6)(c) refers to a required sanitary sewer, solid waste, drain-
age, and potable water element. Paragraph (7)(e) and (f) ref~rs to optional
elements for public services and facilities and for public buildings and
related facilities.
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Local Goals and Objectives
Following are the goals and objectives for housing for the City of
Clearwater as contained in the Housing Element and Amendment #1 of the
Comprehensive Plan.
GOAL: Promote intergovernmental coordination to solve housirg pro-
blems.
OBJECTIVE: Faci 1 i tate pl anni ng efforts and provi de coordi nated, well-
conceived housing programs on a local level.
These statements and thei r associated policies concerning the use of federal
and state funded programs, the recognition of housing trends and partici-
pation in the Tampa Bay Regional Planning Council (TBRPC) address the
concern of the LGCPA regarding the formulation of housing implementation
programs. Clearwater has entered a participation agreement ~th the TBRPC
which states, among other things, that the Regional Housing Opportunity
Pl an, local government Housi ng Assi stance Pl ans, and local communi ty
development programs will share common goals. Use has been and continues to
be made of available state and federal resources for housing programs
including the Community Development Block Grant, Section 8 rental assis-
tance, Rental Rehabilitation, Section 202 for elderly housing and others.
This is a general statement about the programming of implementation
efforts, however, it says nothing about the actual achievement of better
housing as would be expected in a goal or objective statement. An update to
the element should consider stating principles of programming in a position
of'support of goals for housiny rather than as goals in themselves.
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GOAL: Use publi cly assi sted housi ng to promote upward economi c
mobility for Clearwater's poor.
OBJECTIVE: Elimi nate the negative identity associated with public housing
projects.
Taken in view of policies concerning the scattering of publicly assisted
housing, their aesthetics and maintenance, the basic thrust of this goal and
objective is the quality of neighborhoods. The concentration of public
housing is generally presumed to lead to lower quality neighborhoods,
whereas, the dispersal of assisted housing into all areas of the city helps
to mitigate their effect on neighborhoods preventing any portion of the City
from being recogni zed as a "poorer area" and bMnys assistance recipients
into better neighborhoods. Care is to be taken, though, that the di spersed
housing is not detrimental to the host neighborhoods. Assisted housing
projects are located in many areas of the City of Clearwater and many of
them are located away from traditional minority concentrations. Since 1979,
415 units of assisted housing have been added in the Clearwater Program area
and an additional 50 are currently under construction. Of eight new
projects, the medi an llroject si ze is 58 uni ts. The di stri buti on of these
units is shown on Map 6.
Although these are sound principles to be followed in the location of
public housing, the goal appears to relate more to economics than to
housing. And, the negative identity associated with public housing projects
is probably neither measurable nor eliminated. An update to the Housing
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Element should have goals that directly address housiny needs and relate as
they may to other of the City's goals through common policies. Objectives
should be measurable whenever possible so that an indicator of accomplish-
ment may be easily provided.
GOAL:
OBJECTIVE:
Revitalize declining and blighted neighborhoods.
Recognize and meet rehabilitation and redevelopment needs in the
North Greenwood, Madison Heights and South Belmont target
areas.
Like the previous goal, this one also has a neighborhood orientation but
focuses on three particular neighborhoods - the North Greenwood, Madison
Heights and South Belmont neighborhoods. Policies associated with this goal
and objective address the use of community development funds, improving
community facilities, discouraginy land speculation, and the policies of
lending institutions. The element recognizes that these neighborhoods are
the areas of the city most in need of assistance. As suggested in the
element, Clearwater Neighborhood Housing Services, Inc. (CNHS) was formed
and together with the City's Community Development Office, provides service
to these three neighborhoods. From 1979 through 1984, 145 neighborhood
clients received assistance with their housing rehabilitation needs. From
1975 through 1984 the City spent $2,474,588 on capital improvements to
public facilities in the neighborhoods. These activities have generated a
total reinvestment of $23,900,000 in the CNHS target neighborhoods. Down-
zoning has been used to discourage speculation in these areas. Along with
the general price of land, this may have had the possible side effect of
discouraging redevelopment.
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GOAL: Provi de a housi ng stock compri sed wholly of decent, safe,
sanitary, standard units.
OBJECTIVE: Eliminate substandard housing through rehabilitation or redevel-
opment.
This goal and objective directly addresses the concern of the LGCPA regard-
ing the elimination of substandard housing. Unfortunately, this goal has
not been reached in spite of the implementation of such programs as
previously mentioned. The census reports an estimated 1,236 occupied
substandard units and 104 vacant substandard units in the city in 1980.
Eighty-four vacant units were boarded up. In support of the policies for
this goal and objective, the City continually programs capital improvements
for neighborhoods with its Community Development Block Grant Allocati on and
is currently reviewing a proposed new land development code.
GOAL: Assure the existance of a supply of standard, affordable
housing for Clearwater's low and moderate income households.
OBJECTIVE: Construct and rehabi 1 i tate low cost housi ng whi ch wi 11 be
affordable to low income fami li es, effi ci ency and one bedroom
units for the elderly, low to moderate cost large family units
for low income, large family households.
This goal and objective with policies regarding the encouragement and
involvement of private sector activities addresses the LGCPA's concern of
affordable housing for low and moderate income households. The supply of
affordable housing is not adequate. The City of Clearwater has 416 house-
holds on the current waiting list of applicants seeking public housing
assistance. According to the 1980 Census, 8,428 or 22.5 percent of the
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househol ds in Cl earwater were payi ng in excess of 30 percent of thei r
household income for housing costs or rent. Of these 8,428 households,
8,054 had annual incomes of less than $20,000 and 6,069 had annual incomes
of less than $10,000. It should be noted that the median value of housing
units in Clearwater is 12.9 percent higher than the state median value, 27.6
percent higher than that of the metropolitan area and 18.9 percent higher
than the medi an for Pi nell as County. Medi an rent is al so hi gher in
Clearwater than in the state as a whole, the area and the County.
GOAL: Positively encourage equal housing opportunities for Clear-
water's residents.
OBJECTIVE: All individuals and families shall have the opportunity to
purchase or rent decent, standard housing which they can afford,
without discrimination of race, sex, age, marital status, etc.
Clearwater's housing programs have been and continue to follow the principle
behind this goal. Also, the distribution of minority households has
expanded to include most areas of the city. For example, in 1970, six
Clearwater census tracts included more than 1 percent minority households.
In 1980, the number of such tracts was 16. Di scri mi nati on wi th regard to
age is more frequent. Thi s is especi ally true for fami li es ~ th chi ldren
who are forced into rental housing due to an inability to secure a mortgage.
They may find their choices greatly restricted due to the presence of
children. However, the courts have generally upheld age restrictions,
whereas, race, religion and sex are considered to be protected classes under
most ci vi 1 ri ghts 1 egi s 1 ati on.
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GOAL: Provide adequate sites for special living facilities (foster
homes up to b beds, group homes up to 20 beds, and residential
facilities over 2U beds), the locations of which will not
adversely impact existing neighborhoods.
OBJECTIVE: Encourage and assist human services agencies and other community
helping groups to develop special living faci lities at a level
appropriate to Clearwater population and needs, in a manner
which provides for homogeneous location across the enti re city
for an effective and stable mix.
This goal and objective ~th policies concerning providing standards for
foster care and group homes, assistance in locating faci lities, and assis-
tance in zoning, inspection and other technical services were amended to the
Housing Element in response to the previously mentioned changes in the
LGCPA. In support of this goal, the City has established population based
standards for foster care and group homes in concert with knowledgeable
state and community human services organizations. Also, the City.s develop-
ment code and a proposed development code which is currently under review by
the City both allow specified levels of special care facilities as permitted
or conditional uses in all residential districts except mobile home parks.
The responsibility for the establishment of such facilities has been largely
left to private and non-profit human service agencies.
In addition to the above goals and objectives, the follo~ng goal and
objective di rectly concerning housing is contained in the Land Use Plan of
the Comprehensive Plan.
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GOAL: To provide for a full range of choices in housing for persons of
all income groups.
OBJECTIVE: To provide means to mai ntai n the existiny stock, while at the
the same time allowing maximum choices of density ranges and
site design configurations for new development.
Clearwater provides a ~de variety of choices in housing. Approximately 61
percent the housing units are owner-occupied or for sale and 39 percent are
rental units. About one half of the total units are single-family detached
units, 10 percent are in duplex, triplex or quadraplexes, and the rest are
in structures with five or more units. The overall median value of homes in
Clearwater in 1980 was $50,900 and ranged from $15,000 in some census tracts
to $141,000 in others. Median rents ranged from $158 to $403 per month with
the overall median rent for the city being $220. In addition to programs
which fund and encourage rehabilitation, the development code supports the
maintenance of the existing housing stock by providing a degree of protec-
tion and stability to established neighborhoods, while providing guideli nes
for new development. A variety of densities are available ranging from
about t~~ units per acre to 28 units per acre. Under current land use
designations, low density residential development is expected to occupy
about 76 percent of the city.s residential land use and 38 percent of the
city's total land use. Median density designations account for 18 percent
of residential and 9 percent of the total and high density designations
account for 6 percent of residential and 3 percent of the city.s total land
use.
The Housi ng Element also includes annual goals for housing assistance.
However, changes in federal funding levels for housing programs subsequent
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to the adoption of these goals has made it impossible for the City to
achieve them. Therefore, the goals have not been met. Likewise, the
uncertainty of future resources for housing programs must be taken into
account as new goals are established. Current discussion concerning the
federal budget seems to indicate that no housing program is safe from cuts
and some may be eliminated entirely.
Also included in the Housing Element are maps which specify general
locations for possible assisted housing. These locations are based on
principles for the placement of assisted housing which are outlined in the
plan.
Local Conditions
Several indicators of local housing conditions have been presented in
the preceding paragraphs. Follo~ng are three tables which provide addi-
tional information on conditions of housing supply, household conditions,
and the physical condition of housing in Clearwater. Note should be taken
of: the ri se of the number of peopl e in group housi ng; the rapi d increase
in condominium units; a gradual shift of poverty level households to rental
units; a real numeric decline in crowded households in spite of the popu-
lation growth; and a shift to multi-unit structures.
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I Table 2
I City of Clearwater
Housing Supply
I % Increase/
1970 1980 Decrease
Households . - . ------- -- -
I Total Population 52,074 85,528 64.2%
Group Housing Population 873 2,263 159.2%
Household Population 51,201 83,265 62.6%
I Average Household Size 2.41 2.23 -7.5%
Total Households 21,216 37,360 76.1%
I Vacant Housing Units
For Sale 222 711 220.3%
For Rent 883 1,977 123.9%
I Held for Occasional Use ------ 1,487 ------
Vacant Seasonal Units 435 1,713 293.8%
Other Vacant Units 577 935 62.0%
I Total Vacant Units 2,117 6,823 222.6%
Total Housing Units 23,333 44,183 89.4%
I Total Condominium Units 775 6,630 755.5%
Total Units in Assisted
Housing Developments ------ 909 ------
I El derly Uni ts ------ 382 ------
Fami ly Uni ts ------ 527 ------
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____._ .-0 _ ___ ___
I "------" Not Reported
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Table 3
City of Clearwater
Households
% Increase/
1970 1980 Decrease
--- -- - -~--
Total Households 21,216 37,360 76.1%
Average Houshold Size 2.41 2.23 -7.S%
Owner-Occupied Households 14,470 23,786 64.1%
Medi an Val ue $17,300 $50,900 194.2%
Below Poverty Level 1,118 1,232 10.2%
Renter-Occupied Households 6,746 13,574 101 .2%
Median Rent $ 93 $ 220 136.6%
Below Poverty Level 1,235 1,975 59.9%
Median Family Income $ 8,338 $18,564 122.6%
Persons Per Room
1.00 or less 20,221 36,548 80.7%
1.01 to 1.50 608 541 -11. 0%
1.51 or more 387 271 -30.0%
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Table 4
City of Clearwater
Housing Conditions
Total Housing Units
Year-Round Units
Units Boarded Up
1970
23,333
22,898
1980
44,183
42,470
84
% Increase/
Decrease
8').4%
85.5%
Units in Structure
1 Uni t
2 to 4 Units
5 or more Units
Mobile Homes
69.5%2
11.4%
18.9%
50.7%
9.9%
33.9%
5.5%
-19.4%2
-13.2%
79.4%
Un; ts Lacki n9:
Complete Plumbing
Public/Private Water
Public Sewer
Heating Equipment
Age of Units
Up to 10 years
11 to 20 years
21 to 30 years
Over 30 years
2.6%
1.4%
6.1%
.5%
.5%
3.4%
.6%
-80.8%
-64.3%
-44.3%
41.1%
33.2%
12.1%
13.6%
43.6%
27.0%
17.4%
12.0%
1340
1236
104
6.1%
-18.7%
43.8%
-11.8%
Substandard Units
Occupied
Vacant
Percentages are from estimates based on a sample by 1980 Census.
2
Includes Mobile Homes, "-----" Not Reported
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In summary, the Housing Element of Clearwater1s Comprehensive Plan
generally compi les with the requirements of the LGCPA. An update should be
prepared, however, which would include a clearer statement concerning
housing displacement and relocation. The update should also have a stronger
relationship to the Utility Element. For that matter, it should have a
clear and strong relationship to all of the elements of the plan. To
achieve this, the various elements of the plan should be prepared con-
currently insofar as possible.
An update of the Housing Element should have a broader database which
would assist in the cognizance of housing problems and provide a basis for
the evaluation of objectives. Many of the concepts of the present goals,
objectives and policies should be preserved while reworkiny them to provide
a more di rect statement about the condition of housing and the achievements
desi red. The policies should be expanded to provide additional direction
for development and redevelopment by private entities. Also, where possible,
objectives should be measurable so that progress toward their achievement
may be easily monitored.
Amendment #1 to the Housing Element should be integrated into an
update to make a slngle housing element. Implementation measures will need
to ~e updated to reflect new prospects of success for some programs and the
decline or possible elmination of others. Recognition will need to be made
of the current and projected status of federal housing programs, state
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programs and innovative local approaches to housiny problems that are beiny
tMed in vaMous areas of the country. An implementation strategy ~ll need
to be formulated which outli nes courses of action and responsible parties
and takes into consideration possible changes in the City's goals for
housing.
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CLEARWATER COMPREHENSIVE PLAN
EVALUATION AND APPRAISAL REPORT
PART IV
ENVIRONMENTAL MANAGEMENT AND CONSERVATION
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PART IV - CONSERVATION
The Envi ronmental Management and Conservation Plan (EMCP) was adopted
by the City of Clearwater in 1977 in response to the requirements of Section
163, Florida Statutes, which mandate the adoption of a local government
comprehensive plan, the inclusion as one required topic of planning study lIa
conservation element for the conservation, development, utilization and
protection of natura-I resources in the area, including as the situation may
be, ~r, water estuarine marshes, soils, beaches, shores, floodplains,
rivers, lakes, harbors, forests, fisheries, and wi ldlife, minerals, and
other natural and environmental resourcesll. The EMCP emphasi zed preserva-
tion of major interior wetlands, and provided a management framework which
established environmental considerations as an independent decision unit
~thin the City's organizational structure.
Clearwater, in 1977, was in the midst of a high growth period. Its
population had grown from 52,074 in 197U to 75,500 in 1977. Major develop-
ment decisions were being made each week, with construction encroaching into
areas that had been orange groves, pastures, swamps, and other unconverted
natural landscapes. Prior to the work done by the Planning Department in the
mid-197U1s, all land regardless of soil or vegetation characteMstics had
been treated as a uniform commodity under the law, with no distinction in
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development rights based on natural suitability for construction. With
increased sophistication in mapping and environmental sciences, regulati ons
could be formulated which took into account these natural differences. Thus,
the urban land conversion process entered a new era. An important new
regulation was the requi rement for a Community Impact Statement (CIS),
established in August, 1974. The EMCP recognized thi s turning point in
local regulatory reform and established new planning standards. However, it
did not fully address in equal measure all of the requi rements of Chapter
163.
The EMCP was well received by both elected officials and the community
at large. The Pinellas County Planning Council and the Tampa Bay Regional
Planni ng Council were quite laudatory in their review recommendations. The
League of Women Voters sponsored a public forum to allow City staff an
opportunity to explain detai ls of the plan. The Florida Chapter of the
American Planning Association, in 1979, granted the EMCP an Award of
Excellence. However, actions taken consistent with the plan can be con-
sidered the highest praise of the document; there have been many imple-
mentation highlights, which are discussed in the followi ng section.
In evaluation and appraisal of the EMCP, it was evident that the
element's objectives were not uniformly addressed by City action. The seven
environmental objectives included in the EMCP are supported by recommended
policies, implementation strategies, suggested development standards, and
management options. The objectives serve as good statements of di recti on,
toward which efforts should continue to be directed. These objectives are
restated below, with commentary regarding effectiveness of implementation.
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EVALUATION AND APPRAISAL
A. Major Problems of Development and Physical Deterioration,
and the Location of Land Uses and the Social and Economic
Effects of Such Uses;
B. The Condition of the Plan when it was First Adopted and
its Condition at the Date of the EAR;
C. A Comparision of Plan Objectives with Actual Results at
the Date of the EAR;
D. Unanticipated and Unforeseen Problems and Opportunities
which may have Occurred Since the Plan was Adopted;
E. The Effect on the Plan of Changes in State Law and
Regulations, as well as the Appropriate Strategic
Regional POlicy Plan;
.
F. The Need for New Actions to be taken to Address the
Planning Issues Identified in the EAR;
G. Plan Amendments Necessary to Implement the Needs
Identified in the EAR; and
H. A Description of the Public Participation Process Used
During Preparation of the EAR.
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A. To Protect and Improve the Quality of Water Resources 1n Both
Interior and Coastal Areas.
To this end, the related policies address sewage treatment, surface
runoff, and dredge and fill. Clearwater continues to follow the areawide
plans for wastewater treatment and runoff control (the so-called "201" and
"208" plans), funded in part by the Federal Clean Water Act of 1972 and
prepared duri ng the mid and late 197U's. Sewage collection and treatment
facilities are being upgraded, and by 1994, virtually all development in the
City limits will be provided with di rect secondary sewerage treatment.
Currently, there are still some issues to be addressed prior to determi ni ng
the ultimate solution for disposal of treated effluent in a cost-effective
manner, consistent with state and federal requirements. Final disposal of
sludge residues, which are currently being exported to Hillsborough County,
is one of the issues needing resolution.
Runoff detention controls have been institutionalized into the City's
land development code. New development is now required to retain part of
all storm water runoff on-site, with volumes restricted to those equal to
pre-development natural conditions. This requirement affects discharges to
both coastal and interior wetlands and receiving waters.
One area of water quality preservation not addressed by current City
action is retrofitting of existing storm drainage outfalls. As identified
in the Coastal Zone Management Element of the Clearwater Comprehensive Plan,
there are numerous locations where rainfall water collected from city
rooftops, streets, and parking lots is discharged directly into Clearwater
Bay and, to a lesser extent, Tampa Bay. The oil, se~ments, nutMents,
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heavy metals and other pollutants that accompany the storm water h~ve
contri buted si gni fi cantly to the scarci ty of aquati c vegetati on in once-
ferti le estuari ne coastal waters. Coastal water quality ~ 11 not improve
without filtration for drainage outfalls.
B. To Preserve, Protect, and Improve the Quality of Air in the City
and Its Environs.
Clearwater has taken no direct, affirmative actions to implement this
objecti ve, as ai r quali ty standards are set by state and federal agenci es.
Monitoring is done primarily through the Pinellas County Environmental
Management Department. Monitoring stations are established at different
locations throughout the county, to measure pollutants such as carbon
monoxide, ozone, sulphur dioxide, lead, and particulates. County officials
indicate that pollutant levels have, in general, improved during the past
three years.
City of Clearwater requirements for on-site landscaping and tree
protecti on have posi ti ve secondary impacts on ambi ent ai r qual i ty.
Clearwater1s Zoning Ordinances prohibit most types of industries which are
stationary sources of air pOllution, but air quality does not receive a
great deal of attention in the ordinary course of land use permitting
decisions. The primary source of air pollution is the internal conbustion
engine which cannot be di rectly controlled by local government. However, in
some other cities, dMve-in service windows, which require cars to queue up
~th engines running, are regulated due to thei r ai r pollution impact.
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c. To Preserve Flood Plains, Drainage Ways, and Other Natural Areas
Having Beneficial Hydrological and Biological Characteristics and
Protect Development From Floods.
Since adoption of the EMCP, Clearwater has taken strong, positive steps
to implement this objective. The Aquatic Land (AL) zone, initially estab-
lished for coastal areas, has been applied to certain interior wetlands as
well. This zone is applied based on vegetation and soil types and eleva-
tion, and severely restricts the development which may occur. More
recently, Clearwater adopted a Flood Plain Overlay (FP) zone which specifi-
cally maps floodways and prohibits development in or restriction of flow
ways and further restricts development in the 25-year and 100-year proba-
bility flood zone.
Clearwater has furthermore joined with regional, state and federal
agencies in the creation of a flood control/ recreation area along the
eastern reaches of Alligator Creek. Acquisition, accomplished by density
transfers and fee simple purchases, insures that adequate flood storage is
provided in an envi ronmentally sound manner. These improvements represent
the current state-of-the-art in multi-purpose storm water management. The
successl"ul implementation of the Alligator Creek project should serve as a
prototype for work in other drainage basins, in addition to protecting li fe
and property in the immediate vicinity.
D. To Protect and Preserve The Coastal and Interior Wetland Areas in
and Around the City.
This is similar to objectives A and C, which have been discussed.
However, an emphasis on wetlands is appropriate in light of their ecological
significance and the fragile balance needed to maintain their stability.
Unfortunately, prior to the time that the EMCP was written, key coastal
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wetlands had already been destroyed. Wetlands which had formed the eastern
shore of Clearwater Beach Island, Island Estates, the Venetian Point area
near Stevenson's Creek, and several large sites on Old Tampa Bay were
destroyed by dredge and fill activities. Regulatory activities have
diminished these di rect wholesale threats to coastal wetlands. In Smith
et.al. versus City of Clearwater, the Florida Supreme Court upheld the
Aquatic Land zoning applied by the City to Cooper's Point, a vegetated
marine peninsula which juts into Old Tampa Bay. This landmark decision
validated an enti re class of regulations applied at the local level.
However, wetlands can still be diminished by off-site activities,
leading to gradual degradation and ultimately, biological death. To this
end, erosion and run-off from nearby uplands must be controlled. Earthworks
must be stabilized, paved surfaces swept, and trash and debris controlled.
Wetland areas preserved through the administration of land development
regulations, may be destroyed by the gradual impact of erosion and run-off
which do not encompass a specific regulated development activity. When no
specific permit or control poi nt has been instituted, enforcement becomes
much broader in scope. The loss of biological activity often happens
slowly, and by the time the situation is perceived, remedial action is
costly and only slowly reversible, if at all.
E. To Conserve and Manage Soils, Mineral Resources, and Groundwater.
Very little activity has been directed toward implementing this
objective. Erosion control during construction is addressed in Community
Impact Statements and site plan reviews; however, soil management, fi 11 and
grading minimization are not explicit considerations in development
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approvals. althouqh an assessment of native soils is required by the CIS.
Clearwater has no known deposits of commercially-demanded minerals other
than sand fill di rt; therefore. conservation of mineral ores seems irrele-
vant Groundwater conservation is not addressed by any development code. nor
does the Standard Buildinq Code reQuir~ water-conserving fixtures. No
development controls or restrictions are applied in deference to site-
specific aquifer recharQe considerations.
F. To Protect Beaches and Sand Dunes for Their Value as Recreational
Resources and Protection Aqainst Storm Waves.
Clearwater has few remaining natural dunes compared with some other
open beaches. Small. natural. dunes have formed at several si tes on
Clearwater Beach and Sand Key. These dunes was formed by entrapment of sand
in beach veqetation. and are less than five feet hiqh.
Protection measures to preserve dunes can range from prohibitinq
structures, divertinq foot traffic away from dunes by fencinq. ~th access
provided by elevated walkways. Clearwater passed an ordinance whi ch pro-
hibits placement of any permanent structures or buildinQ improvements
seaward of the Coastal Construction Control Line established by the State
Department of Natural Resources. Any development riqhts which accrue to
seaward lands anywhere in Clearwater may be transferred to adjacent upland
areas.
Physical protection of beach dunes is planned for Sand Key. However.
the beach dunes to be protected ~ 11 be man-made. as a resul t of pl acement
of materials dredqed from Clearwater Pass. Planned protection measures ~ll
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include planting and stabilizing dune mounds and building walk-overs to
allow controlled beach access. Natural dunes occurring on Clearwater Beach
have similar protection only in a small area near the Carlouel Yacht Club.
G. To Manage and Conserve City-Owned Lands Which Are in Their Natural
State.
The wording of the above stated objective orients internal management
practices toward sensitive stewardship of public lands. With the establish-
ment of a separate division in the Planning and Urban Development Department
charged with environmental management responsibilities and the addition of a
water quality specialist to City staff, a method for including environ-
mental criteria in the decision making process was established. However, the
Public Works Department carries the responsibility for managing most of all
city-owned lands, specifically city-owned rights-of-way and easements for
drainage and utilities.
The Parks and Recreation Department maintains public parks, including
all natural resource and environmental management activities on these lands
and adjacent waters. There is no operational distinction between recreation
and open space lands. Yet their functions are very different and the
management policies for these categories vary. With the passage of City
Ordinances 3128-83 and 3129-83, land dedication standards were established
for both categories of use, and expenditure of funds collected was also
differentiated. Thus, the groundwork has been laid for maintaining an
inventory of unimproved city-owned lands, which' will provide for water
storage, runoff filtration and wildlife habitat, as well as vegetated breaks
in the urban environment.
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Sound management in practice is not possible unless people are aware of
the value of natural resources. Educati onal programs at the Moccasi n Lake
Nature Center were instituted in 1982 to acquaint the public, particularly
school children, with Clearwater's natural environment. In the first
fourteen months that the Center was open, over 15,500 people visited it.
Expansion plans for the center will provide additional opportunities in the
areas of energy conservation, ~ ldlife, and environmental systems.
In considering the objectives of the EMCP and performance toward these
stated ends, a summary shows that objectives related to ai r quality and soil
conservation have received little or no direct local attention. At the
other end of the spectrum, performance in regard to preservation of flood-
plains and wetlands has been especially well received. As the land within
the C1earwater service area approaches full development, the environmental
management emphasis should shift toward a more detai led level, as well as
addressi ng retrofi tti ng areas when natura1 systems are under stress. In
particular, as the City becomes more sophisticated, the measurability of
effectiveness of actions should be considered as a key element in environ-
mental planning. Translating lofty ideals into quantifiable ta;.get values
wi 11 add an important di mensi on whi ch wi 11 have a di rect rel ati onshi p to
day-to-day performance. Analysis of the effectiveness of the EMCP has been
hampered by this lack of quantification.
Several unanticipated problems and opportunities have arisen since the
adoption of the EMCP. Instances of heavy rains, notab1y May and September,
1979, resulted in some severe flooding along the eastern reaches of
Alligator Creek. Fortunately, some large tracts of land adj~cent to the
creek were still undeveloped, thus affording an opportunity for remedial
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action. The major retention/recreation area project has previously been
discussed, but another key link in the shoreline was obtained when a 40-acre
lakefront site was donated for the Richard Baumgartner Center for the
Performing Arts. Not only did this gift enable the construction of a major
cultural faci lity, it preserved areas for flood water retention and access
to these areas. Farther west along Alligator Creek, creative applications
of the land development permitting process have enabled additional acquisi-
tion in the vicinity of Moccasin Lake Park and the Seaboard Coastline
Railroad tracks.
The opportunity to protect valuable wildlife habitat occured when the
nest of a bald eagle was found on the site for a new high school located in
the Countryside area. This discovery barred the property from use for a
school; however, the City fortunately owned adequate open land nearby,
which was traded with the school board. Thus, the habitat was preserved,
with little detriment to the school IS construction schedule. The habitats
of rare crocodiles, and several threatened species of birds were preserved
with the retention of wetlands on Cooper's Point. With the recent acquisi-
tion of the northernmost end of Clearwater ~each by a group of preservation-
minded citizens, seabird nesting areas have been retained.
Opportunities for nature education have been enhanced with the opera-
tion of the Moccasin Lake Nature Center, and the recent decision of the Boy
Scout Council to retain Camp Soule for local camping activities.
Problems in implementing the EMCP are largely growth-related, but are
also due to financial and bureaucratic inadequacies. Conversion of land
to suburban usage has resulted in considerable loss of open spaces.
Development regulations have restrained some of the grossest abuses by
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prohibiti ng bui ldi ng in wetland. floodplain and sand dune areas. However.
the pressures for development have been redirected toward pine flatwood and
sandhill areas. the latter of which is now almost extinct. These ecosystems.
can support development without extensive backfill or pi lings, and are in
danger of extinction in Clearwater.
Difficulties in communication. especially across governmental jurisdic-
tions, create a constant stream of problems in implementing the EMCP. This
is exemplified by the development of Loehmann's Plaza. which encompasses 20
acres and is located in the Clearwater service area outside the corporate
limits. A 177.100 square foot shopping center was built in an area noted in
the EMCP as a proposed area for preservation due to the presence of a
freshwater marsh. and hardwood and cypress swamps on site. Although the
wetland itself was preserved, the shopping center was built on pilings above
the swamp and the transition areas (known as ecotones) were removed. The
biological functions of the wetlands have been seriously impaired, and an
unpleasant situation is likely to result. This attempt at compromise has
not resulted in a successful preservation effort; had the development taken
place under the City's jurisdiction additional zoninQ restrictions could
have been implemented.
The areawide wastewater planninQ proQram funded by the federal Qovern-
ment (often referred to as the "201" program) has failed to live up to
expectations, creating problems in water quality management. At the time
the EMCP was written, it was anticipated that treated sewage effluent would
soon be eliminated as a major source of pollution in the Gulf of Mexico and
Old Tampa Bay. With the expansion of the Marshall Street treatment plant.
the effluent released into the Gulf of Mexico became far less polluted. and
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the outfall from the old Marina STP into Clearwater Harbor was eliminated.
However, a basically sound final treatment and effluent disposal solution
has not been found for sewage generated in East Clearwater. The best
alternatives from an environmental perspective would requi re the greatest
capital investment. Decisions regarding acceptability of lower cost options
are slow to be delivered by the state and federal agencies. Years may elapse
between the time a possible solution is advanced and the time that a final
decision is made, duMng which time costs of both the preferred and fall-
back options increase. In dealing with resource-based problems, the time
dimension becomes especially critical, since the decisions made are usually
irreversible, and opportunities lost frequently can not be regained.
This review of the EMCP has indicated numerous successes, some areas
where important policy objectives were not translated into decision making,
and some instances where stated policy objectives really did not reflect
di rect municipal concerns. The EMCP devoted a great deal of attention to
internal organization structure, an emphasis which was not carried out in
other plan elements. By the same token, some geographic areas and resources
were treated more completely than others. It is the intent of thi s revision
and update of the EMCP to establish a more uniform treatment of natural
resources in Clearwater. Management recommendations will be stated,
wherever possible, in terms of positive, measurable objectives; the focus
will be on function rather than structure. Accordingly, this plan element
is given a new name, the Resource Conservation Element to reflect the
expanded concerns.
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CLEARWATER COMPREHENSIVE PLAN
EVALUATION AND APPRAISAL REPORT
PART V
PARKS AND RECREATION
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PART Y - PARKS AND RECREATION
The Local Government Comprehensive Planning Act of 1975 (LGCPA) provides
that a local government1s comprehensive plan will include:
"A recreation and open space element indicating a compre-
hensive system of public and private sites for recreation,
including but not limited to: natural reservations, parks
and playgrounds, parkways, beaches and public access to
beaches, open spaces, and other recreational facilities."
Pursuant to the above provisions, the Planning Department of the City of
Clearwater prepared the Parks and Recreation Element of the Comprehensive Plan
in September, 1979. After undergoing the required review procedures, this
element was adopted by the City Commission in October, 1980. In June, 1983, the
Planning Department and the Parks and Recreation Department jointly prepared a
recreation and open space study. This study was not amended to the Compre-
hensive Plan but it did serve as the basis for two new city ordinances setting
recreational and open space land dedication requirements for certain new and
expanding developments and annexations.
The LGCPA requires that a comprehensive plan or element thereof be reviewed
within five years of its effective date to assure its continued relevance in
light of changing conditions. The required review for the Parks and Recreation
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Element is represented by this Evaluation and Appraisal Report. This report
consists of three parts which are intended to meet the requirements of Section
163.3191 F.S. First is a review of current local conditions regarding recrea-
tion and open space including discussion of the major problems of development
and the extent to which unanticipated or unforseen problems and opportunities
occurred between the date of adoption of this plan and the date of this report.
Second is a review of the condition of the plan for parks and recreation to
determine whether its basic premises and proposals are still applicable. Third
is a review of the City's progress in achieving the plan objectives.
Local Conditions
Perhaps that most significant indicator of change in Clearwater over the
past several years is the increase in population. Table 1 shows the population
of the City and surrounding service area according to census figures for 197U
and 1980 and estimates for 1985.
Table 5
Population
1970 1980 1985(est.)
Clearwater 52,074 85,528 95,804
Service Area 70,427 110,717 122,089
The Parks and Recreation Element included a projected service area population
of 114,053 for 1980. The Census reported, however, that the population was
actually 110,717. Since the City had planned for the slightly higher popula-
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t ion, it woul d be expected that servi ce 1 eve 1 s woul d be at an acceptable 1 eve 1 .
Unfortunately, some areas of the City, especially the northeast area, are
experiencing a higher than expected level of demand.
The Parks and Recreation Element divides the City into ten districts each
with its own population projection for planning purposes. In Table 6, these
districts have been grouped into three sections of the City as shown on Map 7 -
a western section, a middle section and an eastern section. Table 6 indicates
the discrepancy between the population that was projected and the actual popula-
tion that was reported by the Census for each section for 1980.
Table 6
Clearwater Service Area
1980 Section Populations
Projected
Actual Difference Difference %
Western Section
Middle Section
Eastern Section
45,553
47,526
2U,937
-10,7!>8
+ 3,754
+ 3,7U5
-23.6%
+ 7.9%
+17.7%
34,795
51,280
24,642
This indicates that the eastern section, which has a higher level of demand
than was planned for, does indeed have a )aryer population than was previously
projected, and incidently, that the western section has a much lower population
than was projected.
Clearwater plans for recreational facilities by usiny standards which are
applied to primary user groups which are based on recreational user age cate-
gories. The populations of the five user age categories are shown in Table 7.
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Table 7
Clearwater Service Area
Recreational User Age Categories
Age 19791 % 19802 % 19853 %
Under 6 7,879 7% S,397 5% 5,951 5%
6 - 13 12,185 11 8,936 8 9,854 8
14 - 19 10,131 9 8,385 7 9,246 7
19 - 54 38,267 34 41,653 38 45,932 38
Over 54 -43,895 39 46,346 42 51,106 42
All Ages 112,557 1UO 110,717 10U 122,089 100
1 Estimates from Parks and Recreation Element prepared in 1979.
2 Extrapolated from actual 1980 Census.
3 Based on 1985 estimate of total population.
This table indicates that the population was actually a bit older in 198U than
expected. An update to the Parks and Recreation Element will need to recognize
changes in the population.
The supply of designated open space and recreational facilities land in
Clearwater has grown from 776.3 acres in 1979 to 885.4 acres in 1985. The
distribution of lands is shown on Map 7. The City has added 1U9.1 acres of land
for recreation and open space since the Parks and Recreation Element was adopted
in 1980. Also, in 1983 the City instituted ordinances setting recreation and
open space land dedication requirements which through March of 1985 had col-
lected 11,414 square feet for recreation and open space use as well as $306,085
for open space land acquisition and $180,275 for recreation facilities land
acquisition. These ordinances have been working very well. They also have
provisions for impact fees through which $93,200 have been collected for
recreational facilities. The land dedication ordinances are very important for
the City of Clearwater because of the increasing scarcity and cost of land in
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the area. As Pinellas County is the most densely populated county in the state
and continues to grow at a rapid rate, the acquisition of sufficient land for
public open space is essential for the future well-being of the community.
Developed parks in Clearwater consists of open space and recreational
facilities land and are divided into three categories. These categories and the
acreage for each is shown in Table 8.
Table 8
City of Clearwater
Developed Parks
Acreage
1979 1985
Mini-Parks
Neighborhood Parks
Conununity Parks
Total Parkland
6.8
98.5
161.9
267.2
9.6
13U .8
444.1
594.5
See Map 7 for the distribution of parks.
The map indicates that some parts of the service area such as South
Clearwater and North Central Clearwater are lacking in parks. Most of North
Central Clearwater is an industrial park though and much of the land of both
areas is not incorporated into the City of Clearwater. Should these areas be
annexed, the City will need to consider the location of parks in them. The open
space land dedication requirements will aid in this regard as they apply to
annexations of undeveloped land, but are not intended to reduce the backlog of
current needs.
Some of the older parks in the City are becoming a problem in that their
condition is slipping beyond the point where routine maintenance is adequate.
~ather, a rebuilding is necessary for these parks to maintain a satisfactory
level of service. A case in point is Coachman Park and other parklands adjacent
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to Clearwater's Bayfront. A plan was developed that called for renovating much
of these park areas and acquiring additional land for expansion. However, a
referendum to approve a bond issue to fund the plan was defeated in December,
1984.
Table 9 shows the inventory of recreation facilities for 1979 and 1985.
Table 9
City of Clearwater
Recreation Facilities
1979 1985
Baseball Diamonds (regulation) 9 9
Baseball Diamonds (youth) 9 12
Basketball Courts 21 22
Football/Soccer Fields 3 11
Golf Courses 1 1
Gymnasia 0 0
Handba 11 Courts 6 8
Horseshoe Courts 20 20
Lawn Bowling Courts 22 22
Picnic Areas 6 9
Playgrounds 16 19
Recreation Centers 11 10
Shuffleboard Courts 62 62
Softball Diamonds (adult) 3 1U
Softball Diamonds (youth) 3 3
Swimming Pools 3 3
Tennis Courts 53 55
Fitness Trail s 0 1
Nature Centers 0 1
Boat Ramps 9 10
Civic Center 0 1
In some cases, facilities are suffering from age and deterioration. Funds
received through the recreation impact fees are now earmarked for additional new
facilities. It may be beneficial to have these funds available for the replace-
ment of older unserviceable facilities as well.
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Condition of the Plan
At the time of its adoption, the condition of the Parks and Recreation
Element was good. It has been very useful to the City's Parks and Recreation
Department because it provided a sound basis for programming capital expendi-
tures.
The element provides a number of definitions that help explain the founda-
tions of the plan, however, some redefinition is necessary to lessen confusion,
for instance, to distinguish between open space as referred to in this plan and
as referred to in the land dedication ordinance, the City's development code and
other elements of the plan such as those dealing with conservation and land use.
The categories which are used to define open space and parkland are useful for
understanding and analyzing needs. The data for these categories could be
presented in a fashion that would allow a clearer understanding of the total
amount of open space and parkland available.
A very good inventory of existing City facilities is included. However, it
does not include information on private facilities or the facilities of other
levels of government such as county and state parks. It should be noted that the
LGCPA specifies "public and private sites for recreation" and that one of the
stated objectives of the Parks and Recreation Element is to "encourage close
cooperation between public and private providers of recreational opportunities."
Standards for facilities are provided in the plan. The standards are
applied against the existing conditions and projected into the future for the
analysis of current and future needs. The standards seem to have worked well as
has the concept of primary user groups which are based on user age c~tegories.
The standards need to be expanded, though to include or clarify the standards
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for picnic areas, playgrounds, fitness trails and other non-traditional recrea-
tional facilities. Additional consideration needs to be taken of cultural
facilities and facilities for the handicapped.
The analysis of needs in the plan was good at the time of plan adoption but
now needs updating due to changes in the population and the change in facilities
over the planning period. Some of the problems with population figures hav~
already been mentioned. Planning districts were used in the Parks and Recrea-
tion Element as an aid to analysis. Because neither needs nor facilities have
respected the district lines it would be beneficial to redraw the district lines
or explore other methods of analyzing location needs.
The Element included a cost analysis of proposed improvements which will
have to be updated due to inflation and because the period covered by the
program will be shifted forward five years. An update will also need to
incorporate portions of the recreation and open space study that was the basis
for the recreation and open space land dedication requirements.
Plan Objectives
The Parks and Recreation Element establishes that it is a goal of the City
of Clearwater:
"To acquire and properly develop park and recreation lands
and waters, and well as ancillary facilities, which are
utilized for maximum satisfaction of the physical, psychologi-
cal, social, environmental and recreational needs of Clear-
waterl~ residential and tourist population - while striving
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to protect and enhance the City's natural environment and to
secure for the future on adequate supply of open space
acreage designed to meet these needs."
In order to advance toward this goal, four verbal objectives are established
along with a number of specific numerical objectives. An assessment of progress
toward these objectives follows. As for the goal itself, it should be simpli-
fied to convey a concise and straightforward statement about the the City's
co~nitment to recreation and open space.
OBJECTIVE: Provide City residents and tourists with recreational sites of the
highest quality which permit sufficient and varying opportunities
for the enjoyment of active and passive recreational activities.
The City of Clearwater's Parks and Recreation Department lists ninety sites on
its inventory of parkland. These sites include thirteen mini-parks, thirty five
neighborhood parks and twenty two community parks. Although the total acreage of
885.4 is still below Clearwater's standard of ten acres per thousand persons
(See Table 1, Population), the trend is clearly in the direction of meeting that
standard. Land dedication through the City's recreational and open space land
dedication ordinance will insure that the pre~ent level of service is maintained
as the city continues to grow. The range of facilities in the City's system
varies from parks that are primarily for passive recreation to parks with
supervision and as many as eleven different types of facilities. Table 9 lists
many of the facilities that can be found in the City's parks.
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OBJECTIVE: Encourage close cooperation between public and private providers of
recreational opportunities in order to promote the most efficient,
economical, and balanced recreation system possible.
As was stated previously, the Parks and Recreation Element does not inventory
private recreation facilities. The City does, however, encourage private
developers to provide recreational opportunities. The new ordinance provides
credit toward impact fees above a certain level if private recreation facilities
are provided for the use of residents of a proposed development. The City also
has joint use arrangements with local schools and the National Guard. The City
leases land to private entities for golf course operations and for concession
rights on the city.s beaches.
In addition, some of the city's proyrams and functions overlap. Both the
Parks and Recreation and Marine Departments employ lifeguards and some library
services are very similar to cultural arts activities operated by the Parks and
Recreation Department.
OBJECTIVE: Strive to maintain and enhance those physical characteristics
unique to established and future resource-based recreational lands,
including historic and archeological sites.
The City strives to take advantage of existing resources in developing its park
system. For example, rather than allowiny the historic Plumb House to be
destroyed, it was arranged to have it moved and placed on a site at Ed Wright
Park. The building has been renovated and is now open to the public as a
historical museum. A city-owned wetlad area was enhanced by being preserved as
Moccasin Lake Nature Park and now serves recreational and educational functions.
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OBJECTIVE: Conserve those natural open space areas which constitute aesthetic
and ecological assets.
This objective overlaps with the Environmental Management Program and Conserva-
tion Plan which is also under review at this time. Refer to the Evaluation and
Appraisal report for that Element for more details.
Overall, the City's goals and objectives for parks, recreation and open
space seem to have worked well to give guidance when decisions were to be made.
In an update, however, the objectives should be made measurable whenever
possible so that an indicator of accomplishment may be easily provided.
There are, in fact, a number of measurable objectives in the Parks and
Recreation Element that were to be achieved by 1985. These objectives are shown
in Table 10 along with the actual results as of March, 1985.
Table 10
Clearwater Service Area
Numerical Objectives for 1985
Additional Facilities
Open Space Acquistion
Basketball Courts
Football/Soccer Fields
Golf Courses
Gymnasiums
Handball Courts
Picnic Areas
Playgrounds
Recreation Centers
Softball Diamonds (Adult)
Swimming Pools
Tennis Courts
Physical Fitness Trails
Nature Facilities
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Objective
260 acres
5
5
1
2
12
4
3
3
4
1
4
1
1
Actual
109.1 acres
1
8
o
o
2
3
3
-1
7
o
2
1
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In the course of preparing an update to the Parks and Recreation Element, these
objectives must be reevaluated and projected into the future to provide a
measurable basis for the next review period.
In summary, the Parks and Recreation Element of Clearwater's Com~rehensive
Plan has been an effective guide to decision making for the City1s parks and
open space system. The basic principles of the plan should remain in place
along with some updating of population estimates and projections, cost figures
and inventory of existing facilities. Expansion of the plan is needed, notably
in its treatment of open space and pUblic/private coordination.
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ANNEXA TIQN AND DEVELOPME~
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RESIDENTIAL:. OEVELOPMENT
A ,8-25 UNITS.
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RETAILLOFEIC'e "DEVELOPMENT
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