1982 COMP PLAN (BOOK ONE AND BOOK TWO)
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ORDI~L.!..:0iCE :'iO, 1392
AN CRDL'iA:0JCE 07 TEE CITY OF CLEA...RWATER, FLORIDA,
-tOMPL YING WITH THE "LOCAL GOVERl'TNiENT CO::viPRE-
HE:NSIVE PL.\NJ:'ITNG ACT OF 1975",- AS AMENDED;
ADOPTING THE HOUSI:0rG ELE~[ENT AS PART OF THE
COMPREHENSIVE PLAN FOR THE ENTIRE CITY OF
CLEA...RWATER, FLORIDA; ADOPTING THE ATTACHED
EXHIBIT; PROVIDING FOR PROPER NOTICE OF PROPOSED
ENACTMENT; Al'<lJ PROVIDING FOR THE EFFECTIVE
DATE OF TI-IIS ORDINANCE.
BE IT ORDAINED BY THE CITY CO~LvUSSION OF THE CITY
OF CLEARWATER, FLORIDA:
Section 1. The ho\:.sing element of the comprehensive plan as required
by the "Local Govern..--nent Comprehe!lsive Planning Act of 1975", as amended,
and as set forth in the ar..ached exhibit, described as:
Composite E::Cllbit A - Docu..-nent entitled "Housing
E1eme!lt", consisting of a table of contents sheet and
89 pages,
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is adopted b accorda.:lce with the "Local Govern..-:nent Comprehensive Pla=il:g
Act of 1975", as a..-:nended, fo::' the e!ltire City of. Clearwater, Florida.
Section 2. The attached exhibit described as:
Composite Exl:tibit A - Docu...-nent entitled "Housing
Element," c= sisti"g of a table of conte!lts sheet and
89 pages,
is adopted as p<?rt of this ordinance as if it was set forth in full herein.
Section 3. For the purposes of this ordinance, the area encompassed
by this ordinance shall be described as:
The entire area within the prese!lt bo=dal"ies of the
City of Cleanvater as sucl1 boundaries are expanded and
redeiined by future anne."{ations, and the City of Clearwater
service area which service area is further described as follows:
Bounded on the West by the Gulf of Mexico, on the North by
the centerline of D'~edin Pass; thence Southeasterly to a point
in St. Jos eph' s Sound approxl-'TIately 700 feet Soumeast of
~100nshine Island, e..-.:c1uding l-,ioonshine Island; the!lce due East
through St. Joseph's Sound a::J.d along Union Street to Keene Road;
t...'1ence due North to COu.D.ty Road 34; thence due East to the
Southerly exte::J.sion of C01.:.nty Road 70; thence due North alo::J.g
County Road 70 ;:0 St.a;:e Road 580; t.hence due East to U. S. Highw<?y
19, excludi.:lg the D=edi::J. Industrial Park; thence due No::'t.~ 'to
Curlew Cree..~ Road; thence due East to Mc:viul1en-3oot.h Road;
thence due South approxix.ately 5,400 feet to City-owned proper;;-f;
t.hence due 2ast approxi.."r.3. tely 2,200 feet; thence due Sout.h
appr-::!"i.::-_-::.tcly 2., 280 fe~t to S:ut~ :\02.C. 5Sa; Genc..e "r/{ -::.s c Q.LG.
Sout.hwest to .Mc:vicllen-Baoth Road; thence d'ole South to the
centerline of .lliigatoZ' Creek; Gence East along .lliigato=
Creek and the southern shore of Alligator Lalce and Arlie Drive
to Cooper's 3ayo\:. a:::ld Uppe= Old Ta..-npa Bay all Ge way to the
Clea::-'Nate::--Tam?a City LL'"":1its and Pi:lellas-2illsborot:.gh Cour.ty
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lin1.its; t..'le::ce due SOUL': to t:""le Cou::-t::J.ey Campbell Caus eway;
thence Westedy, Soubweste::-lj, a:lc. Southerly along t..'1.e shoreline
of Old Tampa Bay to Bellair Road extended; thence c.ue West on
13'ellair RO<J.d to t..h.e SealJoard Coast Line Railroad tracks; the:lce
due North to and alo:1g Ft. H<J.r=ison Avenue to D Street; t..'1.ence
due West approxirrlateJ.y 150 feet; thence due North to B Street;
thence due West to 4th Avenue; thence due North to A Street;
thence due East to Ft. Harrison Avenue; thence due North to
Wat.1<ins Street; thence due West to Waters Street; thence due
North approximately 700 feet; thence West to the Intracoastal
Watenvay; thence South--Southwest approximately 6,000 feet;
thence due West to the Gulf of Mexico.
Section 4. All required and optional elements and parts of the
Comprehensive Plan as required or aUowed by the "Local Government
Comprehensive Planning Act of 1975", as amended, which are set forth in the
attached exhibit adopted hereb, are hereby adopted as part of this ordinance.
Section 5. All development =derta.:-cen and all actions ta.ken in regard
to development orc.ers, all land d.evelopment regulations e!lacted or amended
shall be consiste.=.t with this Plan a..::.d s1:.ch element and part t..':1ereof in regard
to the land covered by t..':tis eleme!lt a.::td portions of the Comprehensive Plan
as hereby adopted. shall beconsiste:1t with this Plan and each element and
part t.'1ereof.
Section 6. :0rotice of be proposed e:lach::1ent of this ordbance has
been properly advertised in a newspaper of general circulation in accordance
with Section 166.041, Florida Statutes.
Section 7. All public hearbg s and public participation required
pursuant 'to Section 163. 3131, Florida Statutes, and Section 163.3184, Florida
Statutes, has preceded tbe consideration of this ordinance.
Section 8. This ordinance is hereby adopted and shall be considered
henceforth adopted iOl" the pu....poses of Section 163.3184 (7), Florida Statutes,
and shall become effective i..'::L'11ediately upon its passage.
PASS.2D ON FIRST READING
February 15, 1979
PA.sSED ON SECO:0rD AND FINAL
READL"iG A.:'-m ADOPT:2:D
March 1, 1979
Attest:
/s/CharlesF. LeCher
/d/ Lucille WilUams
City Clerk
1:2..Yo::,. COI~.izsioncl'
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U TABLE OF CONTENTS
HOUSING ELEMENT
DRAFT
INTRODUCTION. , . . . . . . . . . . . . . . . . . .1
EXISTING CONDITIONS. , . . . . . , . . . . . .3
FORECASTS AND PROJECTIONS. . . . .44
Population. , . . . . . . . , , . , . . . , . . . . . .46
Employment, . . . . . . . . . . . . . . . . . . . .48
Income. . . . . . . . . . . . . . . . . . . . . . . . .49
GOALS AND OBJECTIVES. . . , . . . . . . .50
Fair Housing. . , . . . . . . . , , . . , , . . . . ,52
THE PLAN. , . . . . . . . . . . . . . . . . . . . . . .54
Methodology. . . . . . . . . . . . . . . . . . . . .54
Annual Goals. . . . . . . . . . . . . . . . . . . . .57
Fiscal Impact. . . . . . . . . . . . . . . . . . . . .58
Geographic locations for
Assisted Housing. . . . . . . . . . . . , . . .63
IMPLEMENTATION:
STRATEGY AND PROGRAMS, . , . . .68
Roles and Responsibilities. , . . . . . . . . .68
local Programs. . . . . , . . . . . . . . . . . . .71
State Programs . , . . . . . . . . . . . . . . . . .75
Federal Programs. . . . , , . . . , . . . , . . , .75
Coordinating local, Regional
and State Pol icies . . , , , , . , , , . . , . .77
MONITORING THE PLAN. . . . . . , . . . . .78
APPENDIX 1 (citizen participation
housing survey) , . , . . . . . . , . . . . . . . . .79
APPENDIX 2 (additional computations:
new construction) . . , , . . . . . . . . , , , , .82
APPENDIX 3 (excerpts from fair
housing ordinance) . , . . . , . . . , . , , . . ,85
The preparation of this document was
financially aided through a Federal Grant
from the Department of Housing and
Urban Development under the Urban
Planning Assistance Program authorized
by Section 701 of the Housing Act of
1954, as amended.
Prepared By:
City of Clearwater
Planning Department
Clearwater, Florida
August 1977
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Adopted pursuant to
Chapter 163 F, S.
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",'V INTRODUCTION
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The primary purpose of housing is to ful-
fill the basic human need for the provision
of decent,shelter. In order to do so, it is
necessary for the housing stock to provide
a variety of housing types affordable to
all segments of the population.
The influence of housing extends far be-
yond its importance as shelter, Bankers
and other lending officials provide the
vast amounts of money to build or buy
homes, Builders make their living by pro-
viding homes. Land developers investigate
the prospect of developing raw larid into
a community, Realtors serve as the go-
between connecting sellers with buyers.
Lawyers help transfer titles, insurors pro-
vide insurance, decorators decorate homes
and retailers sell everything from appli-
ances to housewares.
Housing is the most pervasive land use,
with approximately forty percent of land
in the average city used for residential
purposes. It is primarily provided through
the private market The City regulates
land development through the subdivision
and zoning restrictions, and construction
and maintenance through building and
housing codes. There are certain economic
assumptions underlying the competitive
market model,
Assumption: A product will not exist un-
less there is a demand for it. In housing,
as well as other forms of I and develop-
ment' construction sometimes is under-
taken on speculation rather than being
ordered or pre-sold to the ultimate user.
As evidenced in 1974-1975, when the
vacancy rate for new apartments reached
90 percent, demand may not be present
Assumption: When supply exceeds de.
mand, prices fall to levels that "clear the
market." Housing prices in Clearwater are
not likely to fall. Most sellers have confi-
dence in the long-term strength of the
market and will hold out for their price
rather than take a loss. Of course, some
sellers may not be able to wait, particu-
larly in the case of a person who is forced
.to move due to job considerations, I n the
recent recession, research at the Board
of Realtors showed that the impact of
decreased demand was most significant in
reducing the volume of sales, rather than
the sales prices.
Assumption: lfa demand exists, it will be
met in the marketplace. I f a developer in
Clearwater knows that he can sell all of
the three-bedroom, two-bath-single family
homes priced at under $30,000 that he
can build, the theory says that housing
will be built for this segment of the mar-
ket, In practice, however, the developer
finds that a $40,000 house will sell just as
fast as a $30,000 house and provide him
a higher profit Not surprisingly, the pri-
vate builder chooses more profit over less
profit
Assumption: The size of a market segment
can be defined by analysis of the existing
population. I n an area where few people
move in or out, it is possible, for example,
to estimate demand for retirement apart-
ments with fair certainty, In Clearwater,
the population has grown from 34,600 in
1960 to 52,000 in 1970 to 86,000 in
1977, The community has more older
persons than persons of child-bearing ages
and, therefore, has relatively fewer bi rths
than deaths, Population increases are
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largely due to in-migration - - persons mov-
ing to Clearwater from other locations.
Rather than following the conventional
planning principle where local demand
"shapes" the City's housing, in large mea-
sure, the housing available will shape the
future of the City of Clearwater.
Assumption: If the bare land is worth
more than the structures on it, the build-
ings will be demolished and the land re-
used. This kind of private redevelopment
works well only when few parcels of land
are involved, When most older homes
were constructed, urban land use patterns
featured small structures on small lots. In
o~der to attain land of sufficient size to
prove useful under current larger-scale
building patterns, many lots may have to
be acqu i red, A private developer generally
won't start on a project knowing that,
among the many possible circumstances
which could render his project infeasible,
he may have a last hold-out landowner
who wants to retain his house in the
middleofwhat is planned to be the lobby
of the city's newest high rise.
The private market model does work most
of the time, and provides an acceptable
range of housing choices without direct
governmental intervention, Problems in-
volved with the model's appl ication in
Clearwater stem from the external nature
of the housing demand combined with
most aspects of land development (sub-
division, building, design and contracting)
in large firms that "do it all." It is only
when the private market fails to provide
adequate housing for all segments of the
market that publ ic intervention is needed,
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/qV' EXISTING CONDITIONS
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Provided in this section are demographic
data for the City of Clearwater compiled
from the most recent available sources.
The majority of the information refer-
enced in this section comes from R, L,
Pol k and Company's revised copy of
Profiles of Change, 1974-1975. Other
sources include the U, $, Department of
Commerce's 1970 Census of Population
and Housing and the City of Clearwater
Planning Department.
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CEI\I5US TRACTS
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CENSUS TRACT 254.01
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CENSUS TRACT 254.01
Approximately 60 percent of Census Tract 254,01 lies within Clearwater's city limits. All
data on Census Tract 254,01 referenced in this report applies only to that portion included
within the city limits of Clearwater, The incorporated sections of 254.01 are generally
located in the south-central part of the City, It is characterized almost exclusively by low
density residential development and, therefore, has a comparatively small population, The
majority of construction in this tract occurred in the late 1960's and is continuing on into
the 1970's, The condition of housing must be considered to be good to excellent. Of the 632
living units, only 21 are vacant - this being a relatively low 3.32 percent in comparison to the
city average of 7,37 percent reported in the R, L, Polk Profiles of Change, 1974 - 1975.
CENSUS TRACT 254.01
Total housing units
6321
owned
440 (69,6%) 1
192 (30.4%) 1
1960's and 1970's2
Tenure
rented
Time of construction
Condition of housing
good to excellent3
number of
211
Vacancies
% of total housing units
3,32% 1
Population
15581
number black
Race % black
number other minorities
02
0,0%2
22
Total heads of household
6111
2,551
Average size of household
Sources: 1 R, L. Polk & Co., Profiles of Change revised, 1974 - 1975.
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department.
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CENSUS TRACT 254.02
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CENSUS TRACT 254.02
Census Tract 254,02 is located adjacent to Tampa Bay in the southeastern part of the City,
As was the case with Census Tract 254,01, a portion of Census Tract 254.02 I ies south of
Clearwater's city limit. Here again, all data contained in this report refers only to that
portion included within the city limits.
Census Tract 254,02 is characterized by low to high density residential districts as well as
having a considerable amount of land area being devoted to commercial development, The
medium and high density residential districts, as well as the commercial development, are
situated primarily along U,S, 19 and Gulf-to-Bay Boulevard, Clearwater Mall is located on
the southeast corner of the intersection of these two arteries.
The major time of development in this tract was in the 1960's and 1970's, Despite its
recent development, this census tract has the third largest population within the City, The
housing quality here ranges from good to excellent,
CENSUS TRACT 254.02
Total housing units
I owned
Tenure rented
4248'
2010 (47,6%)'
2238 (52.4%)'
1960's and 1970's2
good to excellent3
264'
6.21%1
Time of construction
Condition of housing
I number of
Vacancies % of total housing units
Population
I number black
Race % black
number other minorities
8964'
22
0,0%2
52
3984'
2,251
Total heads of household
Average size of household
Sources: , R, L. Pol k & Co" Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department.
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CENSUS TRACT 255.01
Census Tract 255.01 is located in the south-central part of Clearwater, adjacent to and north
of Largo, This census tract is characterized almost exclusively by low density residential
dwellings, The time of heaviest development in this area was in the early 1960's, The
condition of housing is generally in the range of fair to good, An extremely low vacancy rate
of 2.48 percent exists in this tract.
CENSUS TRACT 255.01
Total housing units
444'
392 (88.2%)'
52 (11,8%)'
1960's2
fa i r to good3
11'
2.48%'
Sources: , R, L, Pol k & Co" Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing.
3 City of Clearwater Planning Department,
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I owned
Tenure
rented
Time of construction
Condition of housing
I number of
Vacancies
% of total housing units
Popu lation
number black
Race % black
number other minorities
1135'
02
0,0%2
02
433'
2,62'
Total heads of household
Average size of household
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CENSUS TRACT 255.02
CLEA~WATER
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CENSUS TRACT 255.02
Only a small portion of Census Tract 255.02 falls within the city limits of Clearwater, the
remaining portion being in Largo. Figures indicated for this census tract represent only that
area within Clearwater's city limits,
Population estimates for 1975 indicate that a total of 220 persons reside within the city
limits of Clearwater in this census tract R, L, Polk and Co, reports the average household
income as approximately $13,420, over $1,000 more annually than Census Tract 263,
which has the second highest reported income, The average household size of 2,79 persons
rates as second largest in the City.
The qual ity of housing here is good. The vacancy rate of 2.47 percent is the lowest in the
City,
CENSUS TRACT 255.02
Total housing units 811
lowned 55 (67,0%) 1
Tenure 26 (33.0%) 1
e rented
Time of construction 1960's2
Condition of housing good3
Number of 21
Vacancies 2.4 71
% of total housing units
Population 2201
number black 02
Race % black 0.0%2
number other minorities 02
Total heads of household 79'
Average size of household 2,791
Sources: 1 R, L, Polk & Co" Profiles of Change revised, 1974 - 1975.
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department
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CENSUS TRACT 257
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CENSUS TRACT 257
That porti on of Census Tract 257 incorporated into CI earwater' s ci ty Ii m i ts represents on I y
about two city blocks, the remainder of the census tract being the township of Belleair, This
small area is predominantly low density residential with spot commercial zones adjacent to
Fort Harrison Avenue. Data for only that portion of the census tract included within Clear-
water's city limits is reflected below,
CENSUS TRACT 257
Total housing units
I owned
Tenure
rented
Time of construction
Condition of housing
I number of
Vacancies
% of total housing units
23'
14 (60.9%)'
9 (39,1%)'
1920's and 1930's2
poor to fair3
3'
13,04% ,
46'
162
31.4%2
02
20'
2,30'
Population
number black
Race % black
number other minorities
Total heads of household
Average size of household
Sources: , R, L, Polk & Co., Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department,
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CENSUS TRACT 258
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CENSUS TRACT 258
Census Tract 258 is located in the southwest corner of the City of Clearwater, north of Largo
and east of Belleair, This census tract, too, is predominantly low density residential in charac-
ter, Spot commercial zones are intermingled with housing along Fort Harrison Avenue, with
strip commercial dominating development along Missouri Avenue,
This census tract encompasses one of three designated housing target areas of the city, This
neighborhood, known as South Belmont, is bounded by Lakeview Road and Woodlawn Ave-
nue on the north, by Missouri Avenue on the east, by Belleair Road on the south and by the
Seaboard Coast Line Railroad and Greenwood Avenue on the west. A housing condition sur-
vey conducted by the City Planning Department in 1974 compiled the following results for
South Belmont:
SINGLE FAMILY RESIDENTIAL STRUCTURES
Standard
Deteriorating
Dilapidated
401
130
6
75%
24%
1%
Total
537
100%
Source: Clearwater Planning Department Survey - November 1974.
The housing condition for the overall census tract can be considered to be in the range from
poor to good, The most active development here took place in the 1940's and 1950's, The
128 vacancies represent a comparatively high vacancy rate of 9,38 percent,
s
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CENSUS TRACT 258
13651
I owned
Tenure
rented
909 (66,6) 1
456 (33.4%) 1
Time of construction
1940~ and 1950~2
Condition of housing
poor to good3
I number of
Vacancies
% of total housing units
1281
9,38% 1
Popu lation
33521
number black
Race % black
number other minorities
4192
13,7%2
172
Total heads of household
12371
2.451
Average size of household
Sources: 1 R, L. Polk & Co" Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department,
s
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CENSUS TRACT 259
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CENSUS TRACT 259
Census Tract 259 is located adjacent to and north of Census Tract 258. This tract contains
the downtown area and is, therefore, predominantly commercial, Low density and high
density residential zones are found in outlying areas, Commercial development has also
occurred along Missouri Avenue.
This tract contains the oldest housing in the City of Clearwater, The quality of housing falls
into the wide range of poor in Madison Heights to excellent in Harbor Oaks, This tract con-
tains the second highest percentage of rental units in the City, 56,2 percent of all units being
rentals. The vacancy rate is a particularly high 12,93 percent.
In the northeast portion of this census tract is the second target area: Madison Heights, The
Madison Heights area is the smallest and perhaps the most severely bl ighted of the three
target areas in Clearwater, It is bounded by Cleveland Street on the north, Missouri Avenue
on the east, Court Street on the south and Greenwood Avenue on the west The following
housing conditions were reported for Madison Heights in a 1974 survey:
SINGLE FAMILY RESIDENTIAL STRUCTURES
Standard
Deteriorating
Dilapidated
Total
37
48
13%
37%
50%
13%
100%
98
Source: Clearwater Planning Department Survey, November 1974,
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I owned
Tenure
rented
CENSUS TRACT 259
1887'
827 (43,8%)'
1060 (56,2%)'
Time of construction
1920~ and 1950~2
Condition of housing
poor to excellent3
I number of
Vacancies
% of total housing units
244'
12,93% '
Population
3352'
6842
15,0%2
92
1643'
number black
Race % black
number other minorities
-Total heads of household
Average size of household
2,04'
Sources: , R, L, Polk & Co" Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department,
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CENSUS TRACT 260
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CENSUS TRACT 260
Census Tract 260 includes Clearwater Beach, Island Estates and Sand Key, The land use for
both Island Estates and the northern portion of Clearwater Beach is largely low density
residential. The remaining portion of Clearwater Beach is characterized by commercial and
low to high density residential zones, The development on Sand Key to date has been either
commercial or high density residential.
The development for the overall census tracts occurred generally during the period from the
1940's to the 1970's. Due to the predominance of single-family dwelling units and condo-
miniums, a large percentage of the housing units here are owner-occupied. The housing
qual ity can be assessed as good to excellent.
CENSUS TRACT 260
Total housing units
3996'
I owned
Tenure
rented
3063 (76,7%)'
933 (23,3%)'
Time of construction
1940's to 1970's2
Condition of housing
good to excellent3
I number of
Vacancies
% of total housing units
306'
7,66% ,
Population
7874'
12
0,02
172
number black
Race % black
number other minorities
Total heads of household
3690'
2,13'
Average size of household
Sources: , R, L, Polk & Co., Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department
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CENSUS TRACT 261
CLEA~WATE~
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CENSUS TRACT 261
Census Tract 261 is located in the northwest corner of the City of Clearwater. This census
tract is characterized largely by low density residential dwellings with some commercial
zones centering around Fort Harrison Avenue, Housing in this tract is among the oldest in
the city, however, the housing quality is quite good. Only two small areas west of the Sea-
board Coast Line Railroad and north of Marshall Avenue contain substandard housing,
These areas are included within the North Greenwood target area which will be briefly dis-
cussed with Census Tract 262. The 259 vacancies in this tract represent a high 10.90
percent vacancy rate.
CENSUS TRACT 261
Total housing units
19641
1323 (67.4%) 1
641 (32,6%) 1
1920's to 1950's2
I owned
Tenure
rented
Time of construction
Condition of housing
fair to excellent3
I number of
Vacancies
% of total housing units
2141
10,90% 1
41301
9342
22.1%2
82
17501
2,361
Population
number black
Race % black
number other minorities
Total heads of household
Average size of household
Sources: 1 R, L, Polk & Co., Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department.
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CENSUS TRACT 262
CLEA~WATER
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CENSUS TRACT 262
Census Tract 262 is located northeast of Clearwater's central business district. It is pre-
dominantly low density residential in nature, with some high density residential and
commercial districts, Some of Clearwater's most severe housing problems are encountered in
th is census tract. The western half of this tract as well as a small portion of Census Tract 261
comprise the North Greenwood target area, This area is bounded by Fairmont Avenue and
Felton Street on the north, by Harbor Drive and Douglas Avenue on the east, by Palmetto
Street on the south and by Garden Avenue on the west, The following housing conditions
were reported for the North Greenwood Area in 1974:
SINGLE FAMILY RESIDENTIAL STRUCTURES
Standard
Deteriorating
Dilapidated
631
335
50
1016
62%
33%
5%
100%
Source: Clearwater Planning Department Survey, November 1974,
The overall census tract contains the largest family size at 3,25 persons per household,
Thirty-one percent of all famil ies were below poverty level in 1969.' As well, in 1970,
91,S percent of the population in this tract were black, the highest minority concentration
in the City,
, United States Department of Commerce, 1970 Census of Population and Housing,
Table P4, p, 66,
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CENSUS TRACT 262
Total housing units
1191'
347 (29,1%)'
844 (70,9%)'
1930's to 1950's2
I owned
Tenure
rented
Time of construction
Condition of housing
poor to good3
I number of
Vacancies
% of total housing units
127'
10.66% ,
Population
3808'
34962
91,8%2
32
1153'
3,25'
number black
Race % black
number other minorities
Total heads of household
Average size of household
Sources: , R, L, Polk & Co" Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department.
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CENSUS TRACT 263
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CENSUS TRACT 263
Census Tract 263 is generally located to the east of Census Tracts 261 and 262. It is charac-
terized by low density residential dwell ings and open space, The majority of construction
occurred in the time period of the 1930's to the 1950's, The housing quality is particularly
varied, falling into the wide range of poor to excellent. A very high percentage of the units
here are owner-occupied, The vacancy rate of 6,90 percent approximates the city average,
The average 1974 - 1975 family income of $12,320 is the second highest in the city,
CENSUS TRACT 263
Total housing units
20421
1679 (82,2%)1
363 (17,8%)1
1930's to 1950's2
I owned
Tenure
rented
Time of construction
Condition of housing
poor to excellent3
I number of
Vacancies
% of total housing units
1411
6,90% 1
Population
50761
2602
7.0%2
92
19011
2.671
number black
Race % black
number other minorities
Total heads of household
Average size of household
Sources: 1 R, L, Polk & Co" Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department,
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CENSUS TRACT 264
CLEARWATER
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CENSUS TRACT 264
Census Tract 264 is located between Drew Street and Lakeview Road and between Missouri
Avenue and Highland Avenue. This tract is mostly low density residential in character with
commercial districts along Gulf-to-Bay Boulevard and Missouri Avenue. The major period of
construction was in the 1950's and 1960's. The housing quality can generally be assessed as
good,
CENSUS TRACT 264
Total housing units
24991
I owned
Tenure
rented
1538 (61,5%) 1
961 (38.5%)1
1950's and 1960's2
Time of construction
Condition of housing
good to excellent3
I number of
Vacancies
% of total housing units
2061
8,24% 1
Population
48611
number black
Race % black '
number other minorities
02
0,0%2
462
22931
Total heads of household
Average size of household
2,121
Sources: 1 R, L, Polk & Co" Profiles of Change revised, 1974 - 1975,
2 U, S. Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department,
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CENSUS TRACT 265
CLEA~WATEF=l
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CENSUS TRACT 265
Census Tract 265 is located in the north-central part of Clearwater. This census tract, too, is
comprised mostly of low density residential dwellings, Commercial and high density districts
are found along Gulf-to-Bay Boulevard, The major period of development in this tract
occurred in the 1950's and 1960's, The quality of housing here is very good; most units
falling into the category of being owner-occupied, Only 16,5 percent of the units in this
tract are rentals, The vacancy rate in this census tract, 4,99 percent, is considerably below
the city average,
CENSUS TRACT 265
Total housing units
22661
1892 (83,5%) 1
374 (16,5%) 1
1950's and 1960's2
I owned
Tenure
rented
Time of construction
Condition of housing
good to excellent3
number of
1131
Vacancies
% of total housing units
4,99% 1
Population
55331
number black
Race % black
number other minorities
42
0.1%2
742
21531
2,571
Total heads of household
Average size of household
Sources: 1 R, L, Polk & Co" Profiles of Change revised, 1974 - 1975,
2 U. S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department.
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CENSUS TRACT 266
CLEARWATER
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CENSUS TRACT 266
Census Tract 266 is generally located in the center of Clearwater, The land use is largely low
density residential in nature, Commercial, medium and high density residential districts
are prominent along Gulf-to-Bay Boulevard, There are also sizeable areas of recreational as
well as public and semi-public open space, The heaviest period of construction here was in
the 1950's and 1960's. The condition of housing would fall into range of good to excellent,
CENSUS TRACT 266
Total housing units
24121
I owned
Tenure
rented
1871 (77.6%) 1
541 (22.4%) 1
1950's and 1960's2
Time of construction
Condition of housing
good to excellent3
I number of
Vacancies
% of total housing units
1611
6,67% 1
Population
57401
number black
Race % black
number other minorities
02
0,0%2
142
Total heads of househol d
22511
Average size of household
2,551
Sources: 1 R, L, Polk & Co., Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department,
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CENSUS TRACT 267
CLEARWATER
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CENSUS TRACT 267
Census Tract 267 is located to the east of Census Tracts 265 and 266, This tract contains
large undeveloped tracts and publ ic open space, The existing development is largely low den-
sity residential. Heavy commercial and industrial zones center in the Clearwater Industrial
Park, Additional commercial zoning is concentrated along Belcher Road, Gulf-to-Bay Boule-
vard and U, S, 19,
This census tract contains the largest population in the city and the most living units, The
major period of development was from the 1950's through the 1970's, The overall condition
of housing is very good,
CENSUS TRACT 267
Total housing units
4596'
I owned
Tenure
rented
3105 (67,6%) 1
1491 (32.4%)'
Time of construction
1950's to 1970's2
Condition of housing
good to excellent3
I number of
Vacancies
% of total housing units
317'
6,90% '
Popu lation
10,398'
02
0,0%2
172
number black
Race % black
number other minorities
Total heads of househol d
4279'
2.43'
Average size of household
Sources: , R, L, Pol k & Co" Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department.
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CENSUS TRACT 268.01
CLEAr=lWATEI=t
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CENSUS TRACT 268.01
Census Tract 268,01 is located to the north of Gulf-to-Bay Boulevard on Tampa Bay,
Athough a considerable amount of undeveloped land can be found throughout this area,
this tract has the second largest population in the city, Those areas presently developed are
generally low to high density residential districts. Construction in this area began in the
1960's and is continuing on through the 1970's, The quality of housing falls into the range
of fai r to excellent.
CENSUS TRACT 268.01
Total housing units
40203
2557 (63,6%)3
1463 (36.4%)3
1960's to 1970's2
I owned
Tenure
rented
Time of construction
Condition of housing
fair to excellent3
Inumber of
Vacancies
% of total housing units
2313
5,75%3
Population
10,0743
11312
8,9%2
172
number black
Race % black
number other minorities
Total heads of households
37893
2,663
Average size of household
Sources: 1 R, L, Polk & Co., Profiles of Change revised, 1974 - 1975,
2 U. S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department.
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CENSUS TRACT 268.02
CLEA~WATE~
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CENSUS TRACT 268.02
This census tract includes the Countryside and Northwood Estates developments, Country-
side Mall and nearby commercial uses, as well as Lake Chautauqua, the City's largest lake,
The development patterns establ ished are primarily low density residences with commercial
uses along U, S. 19, Few people lived in this tract in 1970. Since that date, a considerable
amount of new construction has occurred.
CENSUS TRACT 26&02
Total housing units
12033
1083 (90,0%)3
120 (10,0%)3
1970's2
lowned
Tenure
rented
Time of construction
Condition of housing
good to excellent3
Inumber of
Vacancies
% of total housing units
483
4,00%3
Population
28873
02
0,0%2
not available
number black
Race % black
number other minorities
Total heads of household
11 553
Average size of household
2.403
Sources: 1 R, L, Polk & Co., Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department.
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CENSUS TRACT 269.02
CLEA~WATER
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CENSUS TRACT 269.02
Census Tract 269,02 is located in north Clearwater abutting Census Tract 268.02 on the
west The majority of the land area of this tract lies outside the city limits of Clearwater,
The figures presented below represent only that portion of the tract which is included
within Clearwater's city limits.
This census tract contains expansive areas of undeveloped open space. The areas which are
presently developed, were constructed with low to high density residential dwellings only
recently, The housing quality in this tract must be considered good to excellent.
CENSUS TRACT 269.02
Total housing units
1581
76 (48,1%) 1
82 (51.9%) 1
1970'S2
T lowned
enure
rented
Time of construction
Condition of housing
good to excellent3
I number of
Vacancies
% of total housing units
41
2,53% 1
Population
3741
02
0.0%2
02
number black
Race % black
number other minorities
Total heads of household
1541
Average size of household
2.43 ~
Sources:
1 R, L, Polk & Co" Profiles of Change revised, 1974 - 1975,
2 U, S, Department of Commerce, 1970 Census of Population and Housing,
3 City of Clearwater Planning Department
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",V' FORECASTS & PROJECTIONS
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The following forecasts and projections
were presented in Development Opportu-
nities and Economic Strategy prepared in
August of 1975 for the City of Clearwater
by Hammer, Siler, George Associates,
Economic Consultants, Because Clear-
water provides municipal services beyond
its city limits, this report delineates a
"service area" for the City, and thus, pre-
sents its forecasts and projections for the
City as well as its overall service area, This
service area, or "study area" (as it will be
referenced in this document), was delin-
eated to include parts of unincorporated
Pinellas County, A map delineating Clear-
water's study area can be found on the
next page,
The Hammer, Siler, George report ana-
lyzed three separate alternatives: (1) the
slow growth economic projection - - one
wh ich assumes local government pol icies
and objectives are aimed at slowing and
closely controlling economic growth in
the Clearwater area, (2) the baseline eco-
nomic projection - - one which assumes
that current growth trends, external
forces, and local governmental pol icies
toward economic development and land
use will remain relatively unchanged, and
(3) the rapid growth economic projec-
tion - - one which assumes expansionist
economic policies and objectives aimed at
accelerating economic growth, Clearly,
local governmental policies toward growth
management will, to a large degree, play
a significant role in monitoring Clear-
water's population growth, However, a
wi de range of ex ternal forces wi II certai n-
Iy influence Clearwater's growth poten-
tial as well, The following guidelines
would seem to best serve in formulating
directives for monitoring Clearwater's
future growth and development:
Population Growth. Little or no attempt
to slow population growth below recent
levels; seek to maintain Clearwater's
share of the county population; continue
to promote Clearwater's seasonal popula-
tion.
Population Characteristics - Little or no
attempt to curtail recent trends on in-
migration; seek to slightly decrease pro-
portionately the heavy inmigration of
retirees; increase attempts to attract fam-
ily heads in the 25-44 age group,
Employment Growth. More rapid in-
crease in employment than in work force
because of increasing retiree population;
seek to increase Clearwater's share of
county. employment slightly; accept job
spillover outside Clearwater,
Employment Characteristics - Attempt
to slow erosion of goods-producing em-
ployment as a result of rapidly expanding
services sector; seek labor-intensive em-
ployment to generate jobs on available
land; continue encouragement of services
sector,
Household Growth - Slight reduction in
average household size due to increased
retiree inflow and trends toward smaller
families,
Income Characteristics - Steady real
growth in per capita income; moderate
increase in average household income,
Source: Hammer, Siler George Associates,
Development Opportunities and Econom-
ic Strategy, August 1975, Pgs, 36, 37,
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",V' POPULATION
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Available population projections from
1975 - 1995 indicate that the population
for the City of Clearwater is to increase
by 31 ,660 people, representing a 28,5 per-
cent increase, Table 1 presents this popula-
tion projection broken down by planning
district, A map del i neati ng the bou ndaries
of the planning districts can be found on
the next page, It should be noted that
this map generally coincides with the pre-
vious map outlining Clearwater's service
area,
TABLE 1. PROJECTED POPU LA TION, 1975 - 1995
City of Clearwater and Service Area
Planning
District 1975 1980
1 10,675 10,938
2 16,840 17,119
3 17,392 17,496
4 15,881 18,475
5 11,121 11,470
6 2,798 2,835
7 14,840 14,783
8 2,548 4,609
9 4,636 5,682
10 9,993 10,646
Totals 106,724 114,053
Source: Clearwater Planning Department
Table 1 projects an increase in population
in nine of the ten planning districts, Clear-
ly, from this table, the largest area of pop-
ulation growth is expected to occur in
northeast Clearwater. Planning District 4
is projected to increase by the largest
number of people over this twenty year
period, 10,775 (representing a 67,8 per-
cent increase). Planning District 8 is
projected to increase by the largest per-
centage; its population expected to more
than quadruple over this same period,
Also noteworthy is the substantial growth
projected to occur in Planning District 9,
1985
11 , 1 66
17,360
1 7,586
20,717
11,772
2,867
14,734
6,391
6,586
11,210
120,389
1990
11 ,436
17,645
17,691
23,366
12, 1 29
2,905
14,675
8,496
7,654
11,877
127,874
1995
11 ,770
17,999
17,822
26,656
12,571
2,953
14,602
11,112
8,981
12,705
137,171
an increase of 4,345 people, representing
an increase of 93,7 percent,
Projected estimates of population by age
groups are shown in Table 2, The figures
were developed using the initial distribu-
tion of the population for 1975 and tak-
ing into account Clearwater's preferred
growth strategy, Estimates were then
made for progressive aging from one age
group to another as well as considering
births, in-migration, deaths and out-
migration for each time period,
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",V' TABLE 2. TARGET AGE GROUP DISTRIBUTION OF RESIDENTS
ti Clearwater Study Area, 1975 - 2000
Percent of Total, by Age Group
Year
1975
1980
1985
1990
1995
2000
0-24
30,2%
30.1%
29.5%
28,5%
27,0%
24.5%
25 - 44
17.1%
15,9%
14,5%
13.0%
13,2%
13,3%
45 - 64
23.5%
23,8%
23.4%
23,0%
23.1%
23,2%
65 or More
29,2%
30,2%
32,6%
35,5%
36.7%
39.0%
Source: Estimates by Hammer, Siler, George Associates,
EMPLOYMENT
Throughout most of the country, employ-
ment gains tend to generate population
gains, In Clearwater, as in many other
Florida resort communities, the converse
is true; that is, the economy reacts to its
population growth, Clearwater's economy
has been traditionally oriented toward
services with only one job in six related
to production of goods, The continuation
of this trend will mean that the goods-
produci ng employment wi II be significant-
Iy behind the services employment, In over-
view, Clearwater will continue to depend
on Tampa, St, Petersburg and Largo for
goods-producing and manufacturing em-
ployment Most of Clearwater:s employ-
ment opportunities will therefore result
from population and tourism growth. Fu-
ture employment should then show a sl ight
increase in services due to a rapidly in-
creasing population.
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",V' TABLE 3. TARGET EMPLOYMENT FORECASTS BY MAJOR CATEGORY
if Clearwater Study Area, 1975 - 1995
Percentage In
Year
Total Non-Farm
Employment
Services
Produci ng
83,5%
84,0%
84,3%
84,5%
84,8%
Goods
Producing
16.5%
16,0%
15,7%
15,5%
15,2%
1975
1980
1985
1990
1995
33,339
39,264
45,044
49,523
56,643
Source: Estimates by Hammer, Siler, George Associates and the City of Clearwater Planning
Department.
I NCOM E
Clearwater's per capita income has in the
past been traditionally higher than that of
Pinellas County, However, the gap be-
tween the two has been narrowi ng stead-
ily and should continue to do so into the
future, The 1970 Census reported that in
1969 the per capita income in Clearwater
was 109,9 percent of the Pinellas County
average, In 1974 it was estimated that the
per capita income for Clearwater had de-
clined to 109,0 percent of the County,
Hammer, Siler, George Associates fore-
cast that for the twenty-five year period
from 1975 - 2000 the per capita income
in the Clearwater study area will range
close to 108,3 percent of the Pi nellas
County per capita income, Furthermore,
they project that this study area should
experience real income gains of 2,0 per-
cent annually from 1975 - 1980, and 2,5
percent annually over the 1980 - 2000
period, Total personal income in the
Clearwater study area is projected to in-
crease al most 350 percent over the 1975 -
2000 period. As well, average household
income can be expected to increase by
62.4 percent,
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",V' GOALS & OBJECTIVES
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For the average family, affording decent,
safe, sanitary housing in a desirable loca-
tion is becoming increasingly difficult.
The cost of acquiring adequate housing is
rapidly exceeding the population's ability
to purchase or rent such units, The base
of this problem is the fact that construc-
tion and land costs are rising considerably
faster than per capita income, As housing
costs increase, larger numbers of families
are priced out of the housing market, in
particular, low and moderate income
families,
In recognition of the projected popula-
tion gains and rising construction costs,
the existing housing stock must be main-
tained in sound condition if housing needs
are to be met. Preservation serves not only
to preserve housing units for future use,
but protects financial investments and
induces a sense of community pride, Cer-
tainly, periodic maintenance is a benefi-
cial means of preserving the housing stock
already in standard condition, however,
those units in substandard condition may
require a more intensive course of action
- - - rehabilitation or redevelopment.
Rehabilitation is often an effective alter-
native to new construction, The process
of improving structures through rehabili-
tation should serve a twofold purpose:
(1) to improve individual structures, and
(2) to act as a catalyst in improving the
overall neighborhood, It should be pointed
out that for housing rehabilitation be be
most effective, it should occur in a de-
clining neighborhood with potentially
decent, safe housing units, Neighborhoods
characterized by blighted conditions
should not be considered for major re-
habi I itation efforts,
I n some cases, redevelopment serves as
the only viable alternative toward improv-
ing declining or blighted neighborhoods,
81 ighted neighborhoods are characterized
by a predominance of housing in poor
condition, overcrowded lots, incompatible
land uses and inadequate public facilities.
In order to effectively redevelop a neigh-
borhood, the following conditions must
be present: the housing code must be ef-
fective, enforceable and adequately sup-
ported; funds must be available either
from conventional sources or publ ic loans
and grants; selected neighborhood im-
provements must be performed; and, total
community support is necessary, not only
from those residing in the redevelopment
area, but as well from the remaining com-
munity,
Effective codes and code enforcement can
also be util ized to promote preservation
of the existing housing stock, The estab-
lishment and periodic review of building
codes, housing codes, zoning ordinances
and subdivision regulations will allow the
most recent technology in building, New
construction techniques and materials
must be introduced where housing costs
can be reduced without sacrificing the
quality of the housing unit. Through
proper appl ication of these codes, the
quality and upkeep of housing can be
effectively monitored.
Residential quality goes considerably be-
yond the age and condition of housing.
Accessibility to a wide range of facilities
and services is of utmost importance,
Among these faci I i ties and services are
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the provision of sanitary sewer, city water,
storm water drainage control, standard
roads, street maintenance, trash collection,
and fire and police protection. A diversity
of educational, cu I tu ral, social and recre-
ational opportunities should also be
present. In addition, it is important that
housing be located near employment op-
portunities, commercial centers, parks and
transportation. New construction should
be discouraged in areas where these public
services and faci I ities cannot be provi ded
or in areas where the extension of these
services and facilities would incur a finan-
cial burden to the existing residents.
An orderly and economic growth of our
city depends upon coordinating residen-
tial development with other supporting
land uses, facilities and services. In short
then, future residential development, re-
development and rehabilitation must fol-
low well conceived and coordinated plans
if a high quality human environment is to
be attained.
Goal: Promote intergovernmental coordi-
nation to solve housing problems.
Objective: Facilitate planning efforts and
provi de coord i nated, well-conceived h ous-
ing programs on a local level.
Policy: Util ize appl icable federal and state
programs to provide local housi ng; recog-
nize housing trends and needs nationally,
statewide and regionally as well as locally;
participate with the Tampa Bay Regional
Planning Council in the preparation of the
Housing Opportunity Plan.
Goal: Use publicly assisted housing to
promote upward economic mobility for
Clearwater's poor,
Objective: Eliminate the negative identity
associated with public housing projects.
Policy: Construct assisted housing pro-
jects in scattered geographic locations
away from areas of existing minority con-
centrations; assisted housing should be
aesthetically landscaped and architectural-
ly compatible with the surrounding neigh-
borhood; buildings and grounds are to be
maintained so as to preserve a desirable
high-quality living environment.
Goal: Revitalize declining and blighted
neighborhoods,
Objective: Recognize and meet rehabili-
tation and redevelopment needs in the
North Greenwood, Madison Heights and
South Belmont target areas.
Policy: Use Community Development
funds for worthwhile programs and im-
provements in the three target areas; de-
velop programs with lending institutions
encouraging a greater degree of flexibility
in lending policies with respect to improv-
ing older neighborhoods; encourage lend-
ing institutions to be more responsive to
the needs of low and moderate income
households for home improvements; im-
prove community services and facilities
to an acceptable standard in redevelop-
ment areas; discourage speculative mixed
land uses through down-zoning.
Goal: Provide a housing stock comprised
wholly of decent, safe, sanitary, standard
units.
Objective: EI iminate substandard housing
through rehabilitation or redevelopment.
Policy: Encourage programs and individ-
ual efforts of ongoing maintenance; peri-
odically review and update codes and
code enforcement programs; program
capital improvements to encourage neigh-
borhood stability.
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Goal: Assure the existence of a supply
of standard, affordable housing for
Clearwater's low and moderate income
households.
Objective: Construct and rehabilitate low
cost housing which will be affordable to
low income families, efficiency and one
bedroom units for the elderly, low to
moderate cost large family units for low
income, large family households.
Policy: Involve the private financial sec-
tor of the City in recognizing and meeting
the community's housing needs; encourage
voluntary, private rehabilitation; support
projects which provide a mix of dwelling
types at varying costs.
Goal: Positively encourage equal housing
opportunities for Clearwater'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.
Policy: Monitor existing housing pro-
grams to insure that they are implemented
in a non-discriminatory manner; investi-
gate lending policies of local lending insti-
tutions to insure non-discriminatory lend-
ing practices and guard against redlining.
FAIR HOUSING
The City of Clearwater has in the past,
and will in the future, promote equal op-
portunity in housing in every possible
capacity. The Clearwater Code cites:
I t is hereby declared to be the pol icy
of the City of Clearwater, Florida, to
foster the public health, public safety
and general welfare, by promoting
equal opportunity for all persons, re-
gardless of race, color, creed, national
origin or ancestry in obtaining ade-
quate housing, and to that end to
eliminate discrimination in housing,
(Ord. No. 1356, S 1,12-20-71)
Clearwater's housing programs are admin-
istered on a non-discriminatory basis.
This is readily evidenced by the large
number of minority households being as-
sisted through the Community Develop-
ment Block Grant funds and Section 8
rental assistance.
Within the coming program year, the
Tampa Bay Regional Planning Council is
scheduling the preparation of a fair share
housing plan for the region. The City of
Clearwater will concert a maximum effort
in the planning and formulation of this
plan.
Comparison of the 1960 and 1970 census
indicates that the black population for the
City of Clearwater is dispersing through-
out the city. A map showing the exact
figures per census tract can be found on
the next page. Updated patterns, available
upon completion of the 1980 census, are
expected to reflect an even greater disper-
sion of Clearwater's black population.
The Clearwater Code sets forth and de-
scribes discriminatory housing practices,
the procedure for fil ing and processing
complaints, as well as the maximum pen-
alty upon conviction. (These sections of
the Code are included in Appendix 3 at
the end of th is document), The Code also
provides for the establishment of a Com-
munity :ielations Board to consider cases
involving discriminatory housing prac-
tices. Since its inception in 1971, there
have been two cases of housing discrimi-
nation presented before the Board. Both
cases were equitably settled by the Board
without necessitating any court action.
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",V" THE PLAN
..,J
U METHODOLOGY
Clearwater's 1977 -78 Housing Assistance
Plan recognizes that 16,76 percent of all
households within the City are in need of
some form of assistance, This premise
served as the basis for determining over-
all assistance needs as set forth in this
document. A further investigation of
assistance needs shows that 57,0 percent
of the families needing assistance are el-
derly or handicapped households, 33,0
percent are famil ies consisting of no more
than four persons and 10,0 percent are
famil ies consisting of five or more persons,
e
At this point, annual housing assistance
goals can begin to be formulated, In order
to accurately assess the total assisted hous-
ing which will be necessary in the coming
years, two factors must be considered:
(1) existing housing assistance needs, and
(2) future housing assistance needs,
-Existing Housing Assistance Needs-
The Housing Assistance Plan indicates
that there are presently 6,194 households
in Clearwater which are in need of assis-
tance, Furthermore, it cites that 492
households are expected to receive assis-
tance in the 1977 -1978 program year,
Three-year goals presented in the Hous-
ing Assistance Plan reflect that an addi-
tional 663 households are expected to re-
ceive assistance by 1980 (f or a total of
1,155 households expected to receive
assistance from 1977 to 1980), Based on
the projected increase in population (see
Appendix 2) over the three-year period
e
from 1977 to 1980, 335 of these house-
holds expected to receive assistance are to
be classified as meeting future assistance
needs (as opposed to existing needs),
Therefore, 820 households with existing
assistance needs will have received assis-
tance by 1980, leaving 5,374 existing
households still in need of assistance, In
establ ishing annual assistance goals, it was
deemed reasonable that over the fifteen-
year period from 1980 to 1995, assistance
should be provided to the remaining 5,374
households at an annual rate of approxi-
mately 358 per year, For the eighteen-
year period from 1977 to 1995, annual
assistance goals to meet existing housing
needs are reflected in Table 4,
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I11111I111111111111111111111111I111I111I11111111111111111111111111111111111111111111111111111111111111111111l!
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BLACI( POPULATION C01VjPjUlIS0~\I
LE:GEND
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",V' TABLE 4. ANNUAL ASSISTANCE GOALS TO MEET
...J EXISTING HOUSING NEEDS
U
Elderly or Family Large Family Total Households
Yea rs Handicapped (4 or Less (5 or More To Be
(1 - 2 Persons) Persons} Persons} Assisted
1977 - 1978 240 113 27 380
1978 - 1979 145 61 14 220
1979 - 1980 146 61 13 220
1980 - 1981 200 120 37 357
1981 - 1982 200 120 37 357
1982 - 1 983 200 120 37 357
1983 - 1 984 200 120 37 357
1 984 - 1985 200 120 37 357
1985 - 1986 200 120 38 358
1986 - 1 987 200 121 38 359
1987 - 1988 200 121 38 359
e 1988 - 1989 200 121 38 359
1989 - 1990 200 121 38 359
1990 - 1 991 200 121 38 359
1991 - 1992 200 121 38 359
1992 - 1993 200 121 38 359
1993 - 1 994 200 121 38 359
1994 - 1995 200 121 38 359
Totals 3,531 2,044 619 6,194
Source: City of Clearwater Planning Department
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",V' ANNUAL GOALS
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Table 6 is a composite of the existing and
future housing assistance goals set forth
in the preceeding pages, Together, they
represent Clearwater's annual goals for
providing housing assistance,
TABLE 6. COMPOSITE ANNUAL GOALS:
ASSISTED HOUSING, 1977 - 1995
Elderly or Family Large Family Total Households
Years Handicapped (4 or Less (5 or More To Be
(1 - 2 Persons) Persons) Persons) Assisted
1977 - 1978 304 150 38 492
1978 - 1979 209 98 25 332
1979 - 1980 209 98 24 331
1980 - 1981 255 152 47 454
e 1981 - 1 982 255 152 47 454
1982 - 1983 256 152 47 455
1983 - 1984 256 152 47 455
1 984 - 1 985 256 152 47 455
1 985 - 1986 265 157 49 471
1986 '- 1987 265 158 49 472
1987 - 1988 265 159 49 473
1988 - 1989 264 159 50 473
1 989 - 1 990 264 159 50 473
1 990 - 1991 280 167 52 499
1991 - 1992 280 167 52 499
1992 - 1 993 280 168 52 500
1993 - 1 994 281 168 52 501
1994 - 1995 281 168 52 501
Totals 4,725 2,736 829 8,290
Source: City of Clearwater Planning Department
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V' Of the proposed new construction geared
iii to families needing assistance, there ap-
..,J pears to be a most pressing need for el-
U derly/handicapped and large family units,
The Housing Assistance Plan cites:
There remains an urgent need for
construction of elderly/handicapped
and large family units in Clearwater,.,
The current housing unit vacancies
are concentrated in newly construct-
ed--high rent units which are family
oriented (i.e., 2-3 bedrooms), Many
of the elderly/handicapped popula-
tion as well as the large family house-
holds in Clearwater are unable to
secure housing which is affordable,
or are simply unable to secure hous-
ing because the available units do
not suit their needs,
e
It was reported in Clearwater's 1977
Housing Assistance Plan that there are
865 dwelling units within the City that
are suitable for rehabilitation, 362 of
which are in substandard condition. Three
year goals, set forth in this report, indicate
that 345 of these substandard units will
receive rehabilitation assistance through
Section 8, Section 312, Community Devel-
opment Block Grants or other locally
funded programs, It is expected that with-
in three years, this major portion of Clear-
water's existing substandard units will be
rehabilitated, The remainder of these
structures will present problems in reha-
bil itation, The City does not extend re-
habilitation assistance to renter-occupied
units, Only in extreme cases is demol ition
of an occupied rental ordered. I n such
cases the City must be able to relocate the
displaced family, Furthermore, some
owner-occupants are either unwilling or
unable to qualify for rehabilitation assis-
tance, Thus, the remainder of the units
to be rehabilitated may be those with the
most obstacles to rehabilitation,
e
At the same time, inevitably, some homes
will fall into disrepair. With the projected
1995 housing stock of nearly 60,000
units, it is expected that rehabilitation ef-
forts will continue, although within the
next ten years it is hoped that the scale of
these efforts can be reduced,
FISCAL IMPACT
Annual goals established in this report
through 1995 indicate that 8,526 house-
holds are to receive some form of housing
assistance, The assistance to be provided
will fall into one of five categories: (1) con-
struction of new rental units, (2) rehabili-
tation of existing rental units, generally
through the provision of a rent assistance
contract against which a loan can be issued,
(3) provision of rent assistance for exist-
ing units, (4) rehabilitation assistance for
owner-occupied units, or (5) new con-
struction assistance for owner-occupied
units, Clearwater's 1977 - 1978 Housing
Assistance Plan demonstrates that the
majority of households needing assistance
are in need of financial assistance to afford
housing, as opposed to needing assistance
for home improvements. For this reason,
assistance goals heavily favor providing
rent assistance, Assistance goals are pro-
jected to be met in the following numbers:
Construction of new
rental units
Rehabilitation of existing
rental units
Rent assistance for
existing units
Rehabilitation assistance for
owner-occupied units
New construction assistance
for owner-occupied units
960
620
5,310
1,040
360
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Total
8,290
58
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The total fiscal impact (in 1977 dollars)
can be expected to be approximately
$55,034,000 over the eighteen-year period
from 1977 to 1995 (or an annual average
of $3,057,500) in order to provide assis-
tance in the proportions specified above,
Th is figu re was derived at as follows:
(a) construction of 960 new rental
un i ts at average of $12,500 per
unit = $12,000,000
(b) rehabilitation of 620 existing
rental units at an average of
$4,000 per unit = $ 2,480,000
(c) provide rent assistance to 5,310
households at approximately
$100 per month for an average
of 54 months* = $28,674,000
(d) provide assistance for the
rehabilitation of 1,040 owner-
occupied units at an average of
$4,500 per unit = $ 4,680,000
(e) provide new construction
assistance to build 360 owner-
occupied units at an average
of $20,000 per unit = $ 7,200,000
Total $55,034,000
* It is anticipated that no more than
1,500 households would be receiving
rent assistance at anyone time,
It should be noted that government fi-
nanced rehabi I itation to date has averaged
approximately $6,000 - $8,000 per unit,
however, these units have been severely
deteriorated, I t is fel t that though an ac-
tive code enforcement program, early
signs of deterioration can be caught, thus
necessitating lower rehabilitation costs in
the future,
Table 7 reflects the possible funding
sources to meet projected assistance goals,
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TABLE 7.
FISCAL IMPACT OF HOUSING PLAN IMPLEMENTATION
Construct
New
Rental
Units
Local Lending
Institutions Y
Private Developers y
Non-Profit Sponsor y
Clearwater Housing
Authority y
e State Funds P
Federal Funds y
Y = Source of funding
P = Potential Source of Funds
e
Rehabilitate
Existing
Rental
Units
Y
Y
Y
Y
Rent
Assistance
for Existing
Units
Y
Rehabil itation
Assistance for
Owner-Occupied
Units
Y
Y
Y
New Construction
Assistance for
Owner-Occupied
Units
Y
Y
Y
Y
P
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Table 8 investigates the impact that the
provision of each of the five forms assis-
tance will have on the housing stock.
TABLE 8.
This impact is measured in terms of an
increase or decrease of housing quality
and quantity.
ASSISTANCE IMPACT ON HOUSING STOCK
Construct New Rental Units
Rehabilitate Existing Rental Units
Rent Assistance for Existing Units
Rehabilitation Assistance for
Owner-Occupied Units
New Construction Assistance for
Owner-Occupied Units
*if demolition of the vacated unit occurs,
Table 9 analyzes the potential sources
and recipients of funds as well as identi-
fying the nature of funds,
Impact on
Housing Quality
Impact on
Housing Quantity
+
+
+
+*
-*
+
+
+
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-tr..s1 TABLE 9. POTENTIAL SOURCES AND RECIPI ENTS OF FUNDS
",V' HOUSING AUTHORITY
1, Operating Subsidies
-J 2. Interest Subsidies
U .. DIRECT TO USER
1. Interest Subsidies
2, Capital Grants
3, Loan Guarantees
FEDERAL .. NON-PROFIT SPONSOR
GOVERNMENT 1, Operating Subsidies
2, Interest Subsidies
3, Capital Grants
4. Loan Guarantees
.. PRIVATE DEVELOPER/OWNER
1, Operating Subsidies
2, I nterest Subsidies
3. Loan Guarantees
.. HOUSING AUTHORITY
1, Operating Subsidies
2. Interest Subsidies
STATE .. NON-PROFIT SPONSOR
e GOVERNMENT 1. Operating Subsidies
2, I nterest Subsidies
.. PRIVATE DEVELOPERIOWNER
1. Operating Subsidies
2, Interest Su bsidies
.. DIRECT TO USER
1. Tax Abatements
.. PRIVATE DEVELOPER
1, I nterest Subsidies
2. Tax Abatements
NON-PROFIT SPONSOR
LOCAL (PUB L1C) 1, Operating Subsidies
2, Capital Grants
3, Tax Abatements
HOUSING AUTHOR ITY
1. Operating Subsidies
2, Capital Grants
3, Tax-free Status
NON-PROFIT SPONSOR
1, Loans
2. Operating Subsidies S
LOCAL (PRIVATE) .. PRIVATE DEVELOPER/OWNER
1, Loans {to
.. DIRECT TO USER
1, Loans O~
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",V' GEOGRAPHIC LOCATIONS FOR
..,J ASSISTED HOUSING
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In specifying geographic locations for
proposed assisted housing, many consid-
erations must be taken into account. Both
housing for the elderly and for low and
moderate income families should ideally
be placed in proximity to shopping, pub-
I ic transportation, parks, chu rches, etc.
Such housing should also be placed in
areas away from existing housing projects,
areas of high minority concentrations
and areas designated as subject to flood-
ing. In addition, it is important that hous-
ing for the elderly be placed in locations
near medical facilities and family units be
placed in locations near schools, With
these considerations in mind, a series of
overlays was prepared which del ineates
the areas meeting all of the desired
criteria,
The geographic locations were broken
down to both near-term and long-term
development areas, The near-term loca-
tions reflect those areas where it is ex-
pected that these services, although not
available now, will be available within the
time frame of this plan, It is necessary to
emphasize that the optimal locations for
assisted housing as delineated in this doc-
ument by no means is intended to imply
that other locations within the City would
not be suitable for assisted housing, On
the contrary, many additional sites with-
in the City may have unique advantages
(financial, aesthetic, etc.) which cannot
be covered within the scope of this re-
port. As well, bus routes are expanding,
new shopping facilities are continually
being developed, and new park areas are
being dedicated and improved, The loca-
tions specified then are not intended to
be all-encompassing, inflexible areas for
constructing assisted housing, but rather
are to be util ized as a guidel ine to be given
weighted consideration in choosing fu-
ture sites for Clearwater's assisted housing,
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C:l.~
GEOGrlAPllIC LOCATIOiUS
r-on ASSISTED ELDERLY HOUSlI\lG
neill' tCl'm
u
1IIIIIIIIIIII1I1I1I1I1I1I1I1I1I1IIQlIIIIIIIIIIIIIIIIIIII111I1I11111I11111111111111111111111
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CLEA~WATE~
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11111111111111111111111111111111111111111111111111111111111111111111111111III II 11111 11111 II!.!
.ADDrnOrJAL GEOGRAPtJlC LOCATIONS
ron ASSISTED ELDEJiLV HOUSIf\JG
long term
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111111111111111I1111111111111111111111111111111111111111111111111111111111IIIIIIIIIIIIIIII!!
GEOGnAI11'IIC LOCATIOI\l5
Fon ASSISTED fAMILY UPJITS
6. LlH1GE FAMILY UI'JITS
neal' tel'lIl
~C::i
o
u
11111111111111111111111111111111111111111111111111111111111111 f IIIIIIIIIIIIIIIIIIIIIIUIIIII
~~ : 0
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CLEA~WATE~ TO~ 66
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11111I111I11111I11111111111111111111t~11I11I1111I11I1I11I1I11I1I11I1~1I1111111111111';J"
C::o"'-
ADDITIONAL GEOGRJ~PUlC LOCATIONS
o
FOR ASSISTED FAMILY UNITS
& LARGE FAMILY UNITS
long term
~ U
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()
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00
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IIY' IMPLEMENTATION: STRATEGY AND
44/ PROGRAMS
..,J
U This section is designed to outline the
various roles and responsibil ities that both
the pu bl ic and private sector are expected
to play in order to meet the goals and
objectives set forth in this report. These
roles and responsibilities are intended to
produce community concern and overall
recognition of Clearwater's housing prob-
lems, thereby promoting the establ ish-
ment of new programs and effectively
implementing existing programs designed
to el iminate or prevent housing problems,
A variety of these programs will be listed
and briefly discussed later in this section.
Many of the responsibilities and new pro-
grams suggested in this section are a di-
rect result of the housing needs survey
conducted in the spring, 1977, The ques-
tionnaire and subsequent local responses
are included in Appendix 1 of this report
e
ROLES AND RESPONSIBiliTIES
Citizens and Civic Groups
In order to maximize the output for solv-
ing housing problems, it is necessary to
maximize the input. It is, therefore, essen-
tial that citizens and civic groups famil iar-
ize themselves with Clearwater's housing
problems and needs, thus producing a
broad base of support for effectuating
beneficial, workable programs aimed at
eliminating these problems, Civic groups,
in particular, are capable of asserting a
substantial amount of influence over the
local government in its policy making,
This influence should be directed at estab-
lishing and actively supporting proposals
for the construction of housing for low
and moderate income families,
e
Until recently, Clearwater Neighbors, a
local community organization, was pro-
viding counseling on money management
to low and moderate income families,
Th is program was designed to assist those
homeowners whose credit was unaccept-
able for regular HUD housing programs,
Its purpose was to improve an applicant's
credit rating in order to meet repayment
of the mortgage obi igation as provided
under the Section 237 (home mortgage
insurance --- special credit risks) programs,
The City of Clearwater is presently apply-
ing to reinstate this program with the De-
partment of Community Development
designated to serve as the counselling
agency.
An additional program which could be
of great service to individuals and the
community would be the initiation of
local "clean-up" or "fix-up" crews to
assist the elderly or handicapped perform
homeowner maintenance or improvement
tasks, Such tasks could be performed by
civic groups or local youngsters on either
a low-profit or no-profit basis, The City
of Clearwater is presently applying for a
grant in excess of $200,000 underTitle 3
of the CET A program to employ teen-
agers in community projects. This pro-
gram serves the twofold purpose of pro-
viding assistance to those homeowners
unable to perform routine maintenance
tasks while providing employment oppor-
tunities for local teens,
Churches and Religious Organizations
Churches and religious organizations are
presently playing an active role in pro-
viding emergency housing, The Religious
s
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Community Services (R .C.S.) is an organ-
ization comprised of 36 area churches
and congregations (23 of which are in
Clearwater). Quest Inn, a drug and alcohol
rehabilitation center and emergency
housing facility, is funded largely by Reli-
gious Community Services, Additional
emergency housing is also provided by
R,C,S, in cooperation with the Clearwater
Housing Authority. Fourteen mobile
homes, purchased jointly by the City and
County governments, are leased by R.C,S,
from the Housing Authority and are avail-
able for up to thirty days free of charge
for famil ies requiring emergency housing.
R,C,S, reports that in the twelve-month
period ending in September of 1977, 999
homeless, hungry people were provided
with basic survival needs,
R,C,S,'s recognition and subsequent pro-
grams aimed at alleviating existing hous-
ing problems to date has been successful
and greatly appreciated, Certainly, expan-
sion of existing programs and inception
of new programs would be a positive in-
fluence in providing additional housing,
Specifically, the following programs are
suggested:
(1) the provision of an elderly and/or
handicapped group home,
(2) sponsorship of profit or non-profit
Section 8 housing,
(3) initiate a budget and money manage-
ment counselling program,
Employers
Clearwater is not a city with many large
employers (industrial plants, manufac-
turers, etc,) but yet the local employers
should not be overlooked in taking affir-
mative steps toward providing additional
housing opportunities for its employees
and local residents. The largest local em-
ployers are the City government, the
Clearwater Sun and Morton Plant Hospi-
tal, Suggested programs include:
(1) pledging corporate "moral support"
(i,e" having representatives at local
publ ic meetings of community con-
cern, contribute to emergency hous-
ing funds, etc.)
(2) initiate procedures to provide mort-
gage loans from pension funds,
(3) make mortgage loans available
through credit unions, It should be
noted that credit unions are now
permitted to make loans with an
amortization period of up to twen-
ty years,
Builders and Developers
Builders and developers have traditionally
devoted their efforts toward building
dwelling units which maximize profits,
I n large scale developments, emphasis
should be placed on providing a mix of
low and moderate priced units. Builders
should be encouraged to practice devel-
opment concepts which provide a mix of
housing types and costs such as planned
residential developments, cluster housing,
etc, It has been recommended by the
Tampa Bay Regional Planning Council
that 15-30 percent of the dwell ing units
provided in any large scale subdivision be
designed for low and moderate income
families, This concept was formulated to
alleviate the shortage of housing for low
and moderate income families, while
maintaining neighborhood quality and
integrity,
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J' Financial Institutions
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Financial institutions will be e~pected to
playa role of foremost importance in
recognizing local housing problems and
responding by providing capital for the
rehabilitation of existing housing, the re-
vitaliztion of older declining neighbor-
hoods and the construction of new I ow-
cost housing. Financial institutions can
ease existing housing problems through
adoption of the following policies:
(1) Support projects which provide a
mix of dwelling types at varying
costs,
(2) Support the use of innovative design
and land development techniques,
(3) Provide commitments to make fund-
ing available for rehabilitation pro-
jects,
(4) Develop programs that make it easier
for low and moderate income families
to obtain mortgage financing (i,e"
make mortgages available to families
with lower down payments and, if
necessary, with longer terms to reduce
monthly costs),
(5) Provide financial counselling programs
on money management specifically
geared for low and moderate income
households.
(6) Investigate the formulation of a high
risk mortgage/rehabi I i tati on pool.
Under this program, loans would be
made available to "high risk" fami lies
residing within target areas, This
would serve a two-fold purpose: (a) to
provide mortgage or rehabilitation
money to families which might not
otherwise qualify and (b) to improve
declining areas of the City,
City of Clearwater
Clearwater's City government should ad-
dress itself with providing additional low
and moderate cost housing and maintain-
ing or upgrading neighborhood qual ity in
keeping with the goals set forth in this re-
port, I n order to meet these goals, the city
government will:
(1) periodically review the zoning ordi-
nance, subdivision regulations and
building codes, These documents
should be revised where they become
too restrictive in providing lower cost
housi ng.
(2) direct the use of funds for housing
assistance.
(3) program capital improvements to en-
courage neighborhood stability.
(4) encourage developers to provide a mix
of housing types at various price
levels in large subdivisions,
Two programs are suggested which would
serve to promote property improvement
and the construction of lower cost dwell-
ing units, They are: (a) to permit a reduc-
tion orelimination of impact and hook-up
fees for developers who provide an ac-
ceptable mix of housing types and costs
and (b) to allow tax abatements on pro-
perty improvements (new construction
or rehabilitation) within target areas,
State of Florida
The State of Florida can play an impor-
tant role in providing affordable housing
for lower income families by establishing
a Housing Finance Agency, Briefly, this
agency would finance housing at below-
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market interest rates for qual ified low and
moderate income families, Enabling legis-
lation has been introduced in previous
legislative sessions and efforts toward
passage should be renewed,
Federal Government
The federal government has traditionally
provided subsidies for the construction of
housing for low and moderate income
families, however, the recent cutback in
funds for the Section 235 (home owner-
ship mortgage assistance) and Section 236
(rental assistance) programs has signifi-
cantly curtailed the construction of hous-
ing to accommodate this segment of the
community, It is critical that the federal
government reassess its stand on funding
the construction of low cost housing. The
federal government should, therefore,
continue to fund Section 235 and Section
236 programs, provide additional funding
of the Section 8 (fair market rent assis-
tance) program or develop new programs
to provide much-needed housing for low
and moderate income famil ies.
LOCAL PROGRAMS
Department of Community Development
The Clearwater Department of Commu-
nity Development has two programs de-
signed to provide housing for low and
moderate income fam i lies.
(1) Rehabilitation Loan Program: Eligi-
ble applicants for this program are con-
tacted by the Department of Community
Development. Under this program, low
interest loans for home improvements are
provided to low and moderate income
owner-occupants of substandard housing
located within a target area,
(2) Housing Redevelopment Program:
Under the housing redevelopment pro-
gram, low cost homes are constructed in
target areas and sold at cost to families
able to secure financing from a local lend-
ing institution.
Clearwater Housing Authority
The Clearwater Housing Authority has
two housing programs:
(1) Leased Housing Program: The Clear-
water Housing Authority presently has
444 units of leased publ ic housing for the
elderly and low income families, Rents
in these units are varied according to per-
sonal income, Condon Gardens (278 units)
and Fulton Street Apartments (16 units)
provide housing for low income families,
Barbee Towers (150 units) provides hous-
ing for the elderly. All existing units in
these projects are presently filled and
waiting lists are long, It should also be
noted that no sales tax or property taxes
are assessed against assisted housing with
tax-exempt sponsors,
(2) Emergency Housing Program: The
Clearwater Housing Authority in cooper-
ation with the Religious Community Ser-
vices presently has fourteen mobile homes
avaflable for up to thirty days at no cost
to qualified families needing emergency
housing,
(3) Section 8: The Clearwater Housing
Authority administers the Section 8 (fair
market rental assistance) program, Under
the program, eligible low income families
may receive financial assistance to enable
them to rent accommodations suited to
their needs, The units chosen must meet
both rental cost and housing quality re-
quirements of the program, A portion of
the fair market rent is then supplemented
by the federal government, The City of
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Clearwater has 157 Section 8 units in
operation and an additional 144 approved
units - a total of 301 approved Section 8
units,
(4) "Turn-Key" Housing Program: The
Clearwater Housing Authority is presently
seeking to have 61 units built to be util-
ized as public housing. Thirty-one of
these units are to be elderly units and the
remaining thirty are to be family units,
Under this program, general plans and
specifications for the units would be ad-
vertised by the Housing Authority and
bids would be accepted for construction,
As construction proceeds, the federal
government reimburses the developer for
the construction of the home. In return,
the key for the house is turned over to
the Housing Authority upon completion
of construction. The homes are then
made available as rental units to low in-
come families,
Clearwater Planning Department
The following three programs directly
effect future housing construction and
neighborhood preservation:
(1) Residential Planned Development:
The Residential Planned Development is
a concept presently incorporated into
Clearwater's zoning ordinance which al-
lows a flexibility of housing types and
costs within a given development area
through the regulation of the permitted
densities, Under certain circumstances,
commercial and manufacturing uses may
also be permitted within the application
area, thus creating a development mix.
(2) Down-zoning: The Clearwater zoning
ordinance is presently being reviewed by
the Planning Department to determine
its compatibility with existing land use,
influence on neighborhood preservation,
and effect on the net increase or reduc-
tion of the housing stock. The zoning or-
dinance provides for both single family
and multiple family units. As applied to
the land, the distribution between these
housing types appears equitable, The bal-
ance of single family and multiple family
units can be evidenced by Clearwater's
balanced vacancy rates, At the direction
of the City Commission, five specific areas
have been designated for down-zoning,
including the three target areas, The ob-
jectives to be achieved through down-
zoning are:
(a) Insuring stability of sound and
salvageable neighborhoods by reducing
speculative mixed use aspects of zon-
ing;
(b) Encouraging reuse of parcels which
are below minimum lot size, over-
crowded, not on accepted City streets
or located in neighborhoods which
have one or more of these liabilities;
(c) Recognizing existing commercial
and industrial uses and uses recom-
mended in the Comprehensive Plan;
(d) Retaining medium density residen-
tial zoning on unused parcels to pro-
mote increases in the housing stock,1
(3) Community Impact Statement: The
Community Impact Statement (CIS) is a
program which requires a developer of a
1 Zoning Strategies For Housing Preser-
vation ' 75, Clearwater Planning
Department, June, 1975, p, 21,
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sizeable subdivision to file with the Plan-
ning Department for staff review, a report
which assesses the proposed develop-
ment's impact on the community. Such
items as drainage, vegetation, soils, pub-
lic utilities, parks, police and fire protec-
tion, traffic, etc" are considered in the
CIS, There is a special element in the CIS
which requires the applicant to address
housing impact.
Neighborhood Housing Services
The Neighborhood Housing Services (N HS)
is a program designed to revitalize neigh-
borhoods through a coordinated effort
on the part of lending institutions, the
local government and the community.
Local interest has indicated that a NHS
program could be successfully imple-
mented in the City of Clearwater, The
following criteria to establ ish an operable
NHS program were recently set forth in a
Federal Register announcement,
1. A neighborhood with distinct bound-
aries characterized by (a) basically sound
housing structures showing signs of lack
of maintenance and deterioration; (b) dif-
ficulty in obtaining mortgages and home
improvement loans; (c) a substantial num-
ber of owner-occupied structures (usually
greater than 50%); (d) an area of from
1000 to 2000 structures in larger cities
(fewer structures in smaller cities) which
are predominantly single family dwellings;
(e) a median family income in the neigh-
borhood no less than 80% of the city-
wide median; and (f) structures where
typical repair costs are in the range of
$6,000 per unit.
2. A neighborhood of residents who
want to preserve their community and
improve their homes and who will parti-
cipate in the program and help create a
positive improvement climate,
3. Strong local government involvement
in developing and implementing the pro-
gram, This should take the form of in-
creased capital improvements and city
service levels where needed, active parti-
cipation on boards and committees, and
establ ishment of a sensitive and systematic
housing inspection program,
4. A group of financial institution execu-
tives who agree to reinvest in the neigh-
borhood by making loans at market rates
to all homeowners who meet normal un-
derwriting criteria. Financial institution
involvement usually takes the form, in
addition, of contributions to the NHS to
meet operating costs and active partici-
pation during development of the program
as well as during operation by service on
the board and committees,
5. A revolving loan fund designed to
meet the needs of N HS cI ients who can-
not meet commercial credit requirements,
The fund is set up as a self-help tool for
the neighborhood and is a source of loans,
not grants, with repayment terms to fit
the ability of the borrower. Loans are se-
cured by the property, usually a second
deed of trust or mortgage, and N HS
counsels with cI ients to solve payment
difficulties, Funds are normally con-
tributed by foundations, local corporate
sources and increasingly by local govern-
ment from community development
block grant funds, The Urban Reinvest-
ment Task Force may provide a seed
grant to stimulate capital ization of the
revolving loan fund,
6. Establ ishment of an operating pro-
gram with the following characteristics
and providing the following services:
(a) A private, state-chartered cor-
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poration with a 501 (c) (3) tax ex-
empt status;
(b) The corporation is governed by a
local board of directors made up of
neighborhood residents, at-large com-
munity members as appropriate, fi-
nancial industry representatives, and
city government representation or
I iaison as appropriate. No partner
controls, but neighborhood residents
constitute a numerical majority on
the board;
(c) NHS board and committees carry
out the on-going responsibility to
keep the basic resources in place to
operate the NHS program, These in-
clude loan fund and administrative
funding, code inspection services,
public improvements, bankable lend-
ing, an adequate level of organized
resident support, designated target
areas and adequate staffing;
(d) From an office in the neighbor-
hood, a small but skilled and com-
mitted staff (usually a director, assis-
tant director and secretary or admin-
istrative assistant) carry out adminis-
trative responsibil ities and provide the
following NHS services:
Rehabil itation counsell ing - an analysis
of home repair needs, work write-ups,
cost estimates and home repair coun-
selling;
Construction monitoring services - in-
site inspections and communication
I inks between contractors and residents;
Financial services - financial counselling
with regard to client financial alterna-
tives, helping assess and solve real estate
related problems or other blocks to
property improvements, and making
referrals to lenders or other non-N HS
resources as appropriate,2
2 U,S,Department of Housing and Urban
Development, Federal Register An-
"Neighborhood Housing
Services"; vol. 42, no, 23, February 3,
1977,
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1;-..:1
",V' STATE PROGRAMS
-J
U
Florida Housing Finance Agency
The inception of this agency would re-
qu ire legislative enactment by the State
of Florida. This self-supporting agency
would be created to authorize the issu-
ance of federally tax-exempt revenue
bonds in order to finance the construc-
tion of housing for qual ified low and
moderate income state residents. Loans
provided by the agency would then per-
mit a greater number of lower income
households the opportunity to afford
better housing through the availability of
loans requiring lower monthly payments,
FEDERAL PROGRAMS
e
Veterans Administration Home Loan Pro-
grams
The Veterans Administration presently
has two home loan programs to aid veteran
servicemen and eligible unremarried wid-
ows of veterans to purchase housing with-
out requiring a down payment.
(1) Veterans Housing 38 U.S,C. 1811
(direct loansand advances): The Veterans
Administration provides a direct loan for
the purchase, construction or repair of a
housing unit to be occupied by the
veteran,
(2) Veterans Housing 38 U,S,C, 1810
(guaranteed and insured loans): The Vet-
erans Administration provides guaranteed
and insured loans to assist veterans obtain
credit for the purchase, construction or
improvement of a housing unit.
Department of Housing and Urban Devel-
opment
The Department of Housing and Urban
Development over the years has initiated
many housing insurance and subsidy pro-
e
grams. This report will list in the follow-
i ng pages those programs wh ich may be
useful to Clearwater, Some of the pro-
grams are presently being used extensively,
others are relatively inactive, All those
listed may serve to provide additional,
affordable housing for Clearwater resi-
dents, particularly low and moderate in-
come families, It should be noted that
this is not a comprehensive list of all of
the available HUD housing programs, but
rather a sel ected I ist of what is fel t to be
some of the more appl icable programs for
our locality and socio-economic structure.
A brief discussion of the programs is also
provided.
(1) Community Development Block
G rant Program: Th is is a 100 percent fed-
erally funded grant program with funds
going directly to local governments which
identify community improvement needs,
establish priorities and allocate resources
for the needed improvements. These
grants are to be utilized for housing assis-
tance for low and moderate income house-
holds and for capital improvements with-
in blighted neighborhoods. The City of
Clearwater has received the foil owi ng
grants to date under this program:
Program Year Grant Allotment
July '75 - June '76 $209,000
July '76 - September '77 $466,000
For the program year starting October
1977, and ending September, 1978, the
City of Clearwater will receive $826,000,
(2) Title I (FHA property improvement
loans) : Th is is a program created to guar-
antee loans made through local lending
institutions for home improvements,
(3) Section 8: (fair market rent assistance):
The Section 8 housing program was de-
signed to provide rent supplement funds
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to eligible low-income families, In in-
stances where the existing housing stock
is not adequate to meet low-income hous-
i ng needs, funds allocated for the Section
8 program can be used for new construc-
tion or rehabilitation of rental housing
units, Local governments specify their new
construction and rehabi I itation needs
annually in the Housing Assistance Plan,
but allocation of Section 8 funds for new
construction and rehabilitation is fully
administered by the Department of Hous-
ing and Urban Development, Presently 48
family units are proposed to be construc-
ted in Ross Norton Park with Section 8
funds, Current year goals set forth in the
1977 - 1978 Housi ng Assistance Plan i n-
dicate a need for the construction of 215
new rental units and the rehabilitation of
75 existing rental units through the use of
Section 8 funds.
(4) Title II, Section 203 (b) (home mort-
gage insurance): This is a mortgage insur-
ance program which guarantees loans
made by lending institutions for the con-
struction, purchase or improvement of
one to four-family homes.
(5) Section 207 (mortgage insurance for
mobile home courts), Section 207 pro-
vides mortgage insurance to public and
private mortgagors to finance construc-
tion or rehabilitation of mobile home
cou rts,
(6) Section 211 (d) (4) (rental housing
market interest rate): This housing pro-
gram provides a federal loan guarantee
with liberal finance terms for the con-
struction of rental housing for moderate
income families,
(7) Section 221 (d) (2) (homes for low
and moderate income families): This
housing program provides a federal loan
guarantee for the purchase of homes on
affordable terms to persons displaced by
governmental action and low and moder-
ate income families.
(8) Section 221 (d) (4) (rental housing
for low and moderate income families):
This is a mortgage insurance program
which provides a federal loan guarantee
for the construction of rental housing of
five dwelling units or more for low and
moderate income famil ies. Preference is
given to those low and moderate income
families displaced from homes by govern-
mental action,
(9) Section 231 (senior citizen housing):
Section 231 was created to encourage the
construction of rental housing of eight
, or more dwelling units specifically de-
signed for occupancy by the elderly or
handicapped. Under this program, loans
made by local lending institutions are
guaranteed against default by the federal
government.
(10) Section 232 (nursing homes and in-
termediate care facilities): This is a pro-
gram to provide financing through local
lending institutions for new construction
or rehabil itation of nursing homes and
intermediate care facilities accommodat-
ing twenty or more patients requiring
nursing care and related medical services,
(11) Section 235 revised (home owner-
ship mortgage assistance): This program
provides monthly mortgage assistance to
low and moderate income families for
new or substantially rehabilitated single
family dwelling units,
(12) Section 237 (mortgage credit assis-
tance for home ownership): Section 237
is a homeowner counselling program
geared to improve low and moderate in-
come families' credit rating, Those appli-
cants whose credit is found to be unaccept-
able for regular HUD housing programs,
may be eligible under Section 237 if it is
concluded that budget, debt management
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and related counselling have improved the
appl icant's abil ity to meet repayment of
the mortgage obligation, This program is
presently inactive in Clearwater, but could
provide a positive service to the commu-
nity if reinstated.
(13) Section 312 (rehabilitation loans):
Under Section 312, federal rehabi I itation
loans at 3 percent interest rates are made
available to eligible homeowners within
the target areas through the Department
of Community Development, The City of
Clearwater is not presently involved in
this program, but participation is expected
within the coming year.
COORDINATING LOCAL, REGIONAL
AND STATE HOUSING POLICIES
Coordinating local, regional and state
housing policies is a continuing process.
This document attempts to adhere to and
reinforce state and regional housing poli-
cies as set forth in the Housing and Com-
munity Development Element of the
Florida State Comprehensive Plan and
the Regional Housing Plan Guide. The
City of Clearwater works closely with the
Tampa Bay Regional Planning Council in
the formulation of both local and region-
al housing pol icies and programs, Repre-
sentatives from the Clearwater Planning
Department have regularly attended and
participated in Tampa Bay Regional
Planning Council's Housing Advisory
Committee meetings and Advisory Board
meetings, The Planning Department has
also taken an active role in working with
the Council in the formulation of the
Regional Housing Plan Guide and antici-
pates being rei ied upon in the preparation
of the Council's Housing Opportunity
Plan,
Formal review of local pol icies and pro-
grams by the region and state is accom-
pi ished through the A-95 review process,
The A-95 review serves to: (a) identify
local planning activity and (b) coordinate
and eval uate federally assisted projects
with local, regional and state plans and
programs.
In addition, a formal local and regional
review is required on any development of
regional impact (DRI) as described in the
Florida Environmental Land and Water
Management Act of 1972. This review
assesses the potential impact of the devel-
opment on environmental and natural re-
sources, the economy, public facilities,
transportation and housing.
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",V" MONITORING THE PLAN
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Attainment of the goals and objectives
set forth in this document will result in
an attractive community, utilizing our re-
sources to the maximum extent feasible,
and giving human concerns an equal
weight with those of the physical envi ron-
ment. After goals have been set, however,
the methods by which they are to be
reached must be establ ished. Checkpoints
have to be establ ished along the way to
ensure that progress is being made along
the intended course.
e
The responsibility of monitoring and
evaluating the progress of this plan is as-
signed to Clearwater's Planning Depart-
ment, This is to be accomplished largely
through monthly reviews of building per-
mits furnished to the Planning Department
by the Building Department. In addition,
a continuing communication with the
Tampa Bay Regional Planning Council,
Clearwater's City offices, the Clearwater
City Commission and Planning Commis-
sion, as well as all other concerned indi-
viduals, should serve well to monitor pro-
gress being made in implementing this
plan,
A formal review is to be conducted by the
Planning Department every two years,
compiling building data over the two-year
period and comparing it with the proposed
construction projected in this report. Pro-
posed and existing programs are to be
reviewed to determine their local utiliza-
tion and effectiveness, In particular, spe-
cial emphasis is to be placed on the
construction and rehabilitation of units
to meet the needs of the elderly, handi-
capped, and low and moderate income
households,
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I A t>ackgruund study document,"A Guide to Understanding the
'" Special Living Needs of Some Florida Citizens and Recommendations
."J
U for Zoning Special Housing" was drafted by the Florida Department
of Health and Rehabilitative Services Housing Task Force, October
14, 1981;much of the analysis included in this plan element is
drawn from that work. It notes that, for over a decade, Florida
decision makers have recognized the importance of developing
community-based living alternatives for populations with special
living needs outside of their own homes. There are several factors
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which led the Executive and Legislative branches of government to
develop a social policy of turning away from using institutions for
the purpose of housing human beings to the development of communtiy
based residential facilities:
It became apparent to the general public, social scien-
tists, and politicians that institutions did not achieve
an adequate level of remedial care for residents.
Following World War II the development of community day
programs and outpatient clinics for people who otherwise
would have been placed in institutions demonstrated that
such people could, in many cases, receive cheaper and
better care in the community that they coula in an
institution. The care could be cheaper, if for no other
reason, because it allowed more people to remain in their
own homes. The care could be better because it allowed
them to remain integrated with their family and community.
What later became the philosophy of "normalization"
developing. It was a philosophy that people should
remain in an normal an environment as,possible even if
they are different from most of society.
was
S
A series of judicial decisions were being made that if "
the government undertakes to institutionalize people ~~
because of abnormalities, it has the responsibility to ()~-
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~ treat people so that they can return to society as soon
~ as possible. Further, case law was developing which
.J indicated that if incarceration is necessary, it must
U take place in the least restrictive setting possible.
A growing body of ,scientific evidence demonstrated that
most people can be helped to overcome developmental,
emotional, and intellectual deficits if given the
appropriate opportunities to do so.
The policy of deinstitutionalization is based on the premise
that less restrictive residential settings afford greater oppor-
tunity for individualized activities and freedom of choice for
residents.
A significant body of evidence, currently available, demon-
strates that custodial care, which tends to dominate in institu-
tional settings, produces side effects which are often more
debilitating than the disorder initially requiring treatment.
Isolation, lack of motivation, dependency, and loss of basic
social skills have all been seen, at least partially, as the
result of institutional placement itself. In contrast, the com-
munity more often provides a humane, supportive atmosphere and a
better quality of life, both of which foster opportunities for
personal growth and development.
Community-based programs, inter-meshing with existing com-
munity resources have a less formal administrative structure and,
as a result, avoid many of the organizational problems besetting ~
insti tutions. In addition, 'communi ty- based programs offer ser - i
vices that facilitate family interaction, give greater tJ'()~
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~~access to employmerit opportunities, and increase chances for
~ moving into more independent living or home care. In many cases,
U
community alternative programs can be delivered at less cost than
similar institutional programs. However, even in cases where the
costs are equivalent, the human and programmatic benefits of
community services significantly-outdistance institutionalization
for the vast majority of disabled people.
Implicit in the social policy of developing community-based
residential facilities are the assumptions that:
1. the individual's ability to cope ,with the environment
- will be increased as his or her ability to control the
environment is increased;
2. coping with the environment becomes more effective as
increasingly complex behaviors are mastered or regained;
and
3. successful coping with the environment is a function
of the degree to which the individual assimilates or
re-assimilates cultural standards.
The foremost consideration in the selection of an appropriate
residential setting for persons is the array of 'habilitation or
rehabilitation services provided by, through, or in coordination
.
with the residential services whenever they are needed. For those
people the provision of active habilitation or rehabilitation is
fundamental to the residential program. The Uni~ed States Supreme
Court has determined that "at the least, due process requires
S
that the nature and duration of commitment bear some reasonable "
relation to the purpose for which the individual is committed.~~
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teJaCkSOn vs.
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Indiana, 406 U.S. 715, 738 of 1972).
Public Laws
95-602 and 96-272 passed by the United States Congress emphasize
the need to provide treatment assistance and service in a setting
which is least restrictive of personal liberty.
The Housing Element of the Clearwater Comprehensive Plan
has initially included the following qoals:
/
1. To promote intergovernmental coordination to solve
housing problems.
2. To encourage fair housing practices to eliminate
housing discrimination.
This amendment to the Housing Element furthers these goals
by providing for coordination with the Florida Department of
Health and Rehabilitative Services and the U.S. Department of
e
Health and Human Services in multiple service programs, with the
Florida Department of Veteran and Community Services in the
execution of various requirements of the Local Government Compre-
hensive Planning Act, and with, various other organizations and
programs serving special populations. Fair housing is promoted
by establishing the intent to protect special populations from
discrimination in housing.
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it Definitions:
EXISTING CONDITIONS
In order to understand the 1ssues of housing for
special living populatiDns, it is helpful to know the following
, definitions related to human services, as provided in general by
the Florida Department of Health Rehabilitative Services Housing
Task Force.
Congregate Living Facility - a facility in which a portion
of the space (for example, living or dining space) is used
in common by the residents and where room, board, and
personal care are provided to the persons who are unrelated
to a caregiver. The level of intensity of care varies in
each facility and various levels may exist within the same
facility.
Deinstitutiona1ization - reducing the population of institu-
t1ons. It 1S a process of removing a person from the
institution and placing the individual in his/her own home
or other living quarters while at the same time making
provisions for any necessary community services and other
support systems to be available to meet the particular
needs of the person. Deinstitutionalization may also occur
by complete discharge from an institutions of a persons who
needs few, if any, continued services.
Dependent Child - a person 17 years of age or younger who
1S a c11ent of an agency by court order or by a parent or
parents voluntarily surrendering custody. A dependent child
maY'a1so be a person aged 18 to 21 years if the child was
declared dependent prior to age 18 and attends high school
or an equivalent educational institution on a continuous
bases during the dependent status.
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Develop'rrientaTlyDisabTed - as defined in Chapter 393, Florida
Statutes, relates to a person who has been diagnosed to have
either autism, cerebral palsy, epilepsy, mental retardation,
or a combination of these. Subsequerit to the enactment of
this definition by the Florida Legislature, the U.S. Congress
modified the definition in the Development Disabilities
Assistance and Bill of Rights Act of 1978 (Public Law 95-602)
and,provided the following definition: "The term 'develop-
mental disability' means a'severe, chronic disability of a
person which -
(A) is attributable to a mental or physical impairment
or combination of mental and physical impairments;
(B) is manifested before the person attains age twenty-
two;
(C) is likely to continue indefinitely;
(D) results in substantial functional limitations in
three or more of the following areas of major life
activity; (i) self-care, (ii) receptive and
expressive language, (iii) learning, (iv) mobility,
(v) self-direction, (vi) capacity for independent
living, and (vii) economic sufficiency; and
(E) reflects the person's need for a combination and
sequence of special, interdisciplinary, or generic
care, treatment, or other services which are a life-
long or/of extended duration and are individually
planned and coordinated."
Both definitions are useful.
Elderlf ~ a person who is either age 55, 60 or 6S and older,
depend1ng on the program area. The special living popula-
tions of elderly would encompass elderly who are physically,
mentally, economically, or socially impaired and who require
a living environment that encourages and supports maximum
independence.
Intensity of Care - the degree to which services are provid- ~
ed.Suc.h services may range from no services to highly ~
eomplex, therapy, treatment, behavior modification and "
medical supervision. When the intensity of care increases,~
the staff to client ration usually increases, thereby pro-~
viding more services, staff, and supervision. ()~.
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f{'<r Mental Illness - emotional disability which impairs an
, /Jj individual ' s functional capacity to fully participate in
",J conununity activities, the onset and recovery from which may
U be either of inunediate or prolonged duration. In most
instance~ restoration of individual capacities requires the
support of professionals in the mental health field,
families, and friends whose encouragement is essential to
rehabilitation.
No rmaliz at'ion: Principle - the concept that every individual
should be able to obtaln a level of performance as close to
normal as possible, making available to the individual
patterns and conditions of every day life which are as
close as possible to the normal patterns of the main-
stream of society.
PhYSiCall~ Disabled - a person unable to insure by himself
or hersel , wholly or partially, the necessities of a normal
individual and/or social life, as a result of a deficiency,
either congenital or not, in the person's physical abilities.
e
There are numerous groups of special living populations that
require special housing consideration. The following discussion
is not intended to be exhaustive but is representative of these
special populations, as noted by the Housing Task Force.
Most people are familiar with the needs of elderly residents,
particularly in Pinellas County with approximately 40% of the
population age 60 or older. Many of the elderly who require
residential services need these services because they have
e
inadequate funds to care for themselves. Many who are living
alone are not sufficiently able to cook and feed themselves
properly. Some are abused by individuals in their families or
individuals in the community and need to be separated from their ~
current environment. Others become physically handicapped and~~
must have some form of attendant care. While th~ degrifCJtJ'()
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",V' of disability has a broad range with people who are elderly, only
..J
(J a small percentage display violent behaviors; only a slightly
higher number exhibit behaviors that are uncontrollable. Most of
the elderly behave in an acceptable matter.
Dependent children for the most part reflect the charac-
teristics of all children. This implies a wide range of behavioral
characteristics of the majority of the general population of child-
ren due to particular family or other environmental influences.
-
It is rare that people who are physically handicapped, but
behave in a socially acceptable manner and can manage all of
their own needs, will choose to live in a group home. Most of
e
those who need a group home environment do so because they need
some type of attendant care to assist with such activities as
dressIng, bathing, or eating. Many such individuals work in the
market place in spite of needing certain services. While the
public is sometimes reluctant to talk to them, they want and need
to interact with the general public in the same w,ay that all
people do.
The term "developmentally disabled" is a relatively new term
in the American idiom but is generally understood to include
people with mental retardation, cerebral palsy, epilepsy, and
some combination of these disabilities.
What has
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autism.
While these are very different conditions and need to
be understood as such, it is not unusual to find a
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~~ learned about people with mental retardation, cerebral palsy,
.,J
U epilepsy_, and autism is that the earlier and longer they receive
education and training and/or therapy, the more they can accom-
plish. Given "normal" intelligence, people with epilepsy are
limited only by the frequency and degree of their seizures. Even
if the seizures are infrequent, some people will require
surveillance, if not assistance. Contrary to many myths," the
developmentally disabled,with few exceptions, are not harmful to
anyone.
gerous to themselves (self-abusive) or have attempted to commit
suicide in periods of deep depression. The majority of the men-
tally ill found themselves unable to cope with the stresses of
their personal lives and/or their environment, a~d, through some
human mechanism not yet fully understood, lose enough sense of
reali ty to avoid those st:resses. The group home is used to pro-
tect some of them from those stresses and to assist them, if
necessary, to find & way to change their living situation. For
others, who have been in an institution, the group home is used ~
as a process to help them regain their confidence in their {l-O
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~~
",V' ability to cope with the current environment and changing societal
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values.
In ~ummar.y, there are various special living populations which
in lay terms would include abused youth, neglected youth, aban-
doned/orphaned youth, truants, runaways, delinquents, ex-offenders,
abused spouses (some wi~h children), mildly dependent elderly,
retarded citizens, displaced adults, mental health patients (youth,
adults, eld~rly), alcohol abuse persons, and drug abuse persons.
These are the same special sub-populations that are found in most
communities. These sub-populations are generally related to the
level of total population and the level of population by age.
General demographic factors for Clearwater are:
95,000 permanent or long term seasonal population OccupY1ng
31.6 square miles
Approximately 20% of pop~lation ages 0-17
Approximately 40% of population ages 18-59
Approximately 40% of population ages 60 or older
The direct services required by the persons with special
living needs are provided by a number of agencies and community
organizations in and around Clearwater. These groups include the
Florida Department of Health and Rehabilitative Services, the
St. Petersburg Free Clinic Shelter, the Community Services Foun- ~
dation, Religious Community Services, the Pinellas Pasco Mental ~
Health District Board V, the Florida Department of Probation ()~
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,,1' and Parole, the Resident Home Ass.ociat;on d h
:t . ..., an ot er supporting
U human services organizations.
The following Goals and Objectives express needs ln terms
of beds, which equates 'to one client at a glven point ln time
per bed.
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GOALS fu~D OBJECTIVES
Goal:
Provide adequate sites for special living facilities
(foster homes up to 5 beds, group homes up to 20 beds, ~nd re-
sidential facilities over 20 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 facili-
ties at a level appropriate to Clearwater population and needs,
in a manner which provides for homogeneous location across the
entire city for an effective and stable mix.
Policy: Provide population-based standards for foster care and
group homes in concert with knowledgeable State and community
human services organizations. Provide assistance to interested
agencies and organizations in locating facilities, with an empha-
sis on broad dispersion and on avoiding non-stable low income
neighborhoods and commercial/industrial fringe neighborhoods.
Provide zoning, building inspection, and other similar local
governme~t technical.assistance as appropriate.
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(f STANDARDS
",V' Each human services organization knowledgeable in their
...J
tJ respective area of special living services and facilities, such
as listed at the beginning of this Plan section, has been con-
tacted. Their operational and treatment philosophies, as well
as their target populations have been discussed. The information
from these sources has been accepted as definitive as to service
methods and as to estimated populations. At the same time, it
is recognized that human services treatment and operations are
evolutionary and that there will be changes in some assumptions
and methods over the long term.
Planning standards have been developed using the human ser-
vices org.ani za tions ' client s ta tis tics, in conj unction wi th total
Pine lIas County population. These standards represent an appro-
priate target level of support for special living facilities in
the Clearwater community. These standards were developed for 1
or 2 bed facilities, for 5 bed facilities, for 10 bed facilities,
for facilities up to 20 beds. Facilities of these sizes are gen-
erally referred to as Foster Homes and Group Homes (Level I,
Level II, and Level III) by the State of Florida. The development
of standards for residential facilities, which provide more than
20 beds, is beyond the scope of this document and is addressed
by state and national standards generally.
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STANDARDS
FOR
SPECIAL LIVING HOMES
1 TO 20 BEDS:
YOUTH - FOSTER CARE
1 Bed: 1,500 Population
Traditional Dependent: 300 beds. Status Dep: 200 beds.
Delinquent: 30 beds. Per Florid~HRS estimate of total
Pinellas County need for each service population group as of
January 1980. Two client beds per home is norm. (300 + 200
+ 30) beds = 530 beds.
750,000 County population ~ 530 beds = 1 bed per 1,500 popu-
1ation.
Client data 1S based on a 1979-80 Pinellas County, Florida,
age mix (40% over age 60).
NATURE OF SERVICE - Provides home-like care for normally 1-5
children with an average of 2 children, for ~-2 years. These
children are Traditionally Dependent (abused, neglected,
abandoned/orphaned), Status Dependent (truant, runaway, or
ungovernable), or Delinquent (adjudicated delinquent). Care
is generally provided within an exis~ing nuclear family with
natural (biological) children also present.
YOUTH - SHELTER CARE
7 ,5,00 Popula tion S
35 beds. De- ;
of total _^()~
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1 Bed:
Traditional Dependent~ 55 beds. Status Dep:
linquent: 10 beds. Per Florida HRS estimate
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~~ Pinellas County need for each service population group as of
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U January 1980, based on 1,526 shelter home placements in 1979.
Five client beds per home is norm. 55 + 35 + 10 beds = 100
beds.' 750,000 Co~nty popul~~ion ~ 100 beds = 1 bed per 7,500
population. These figures assume a 1979-80 Pinellas County,
Florida, age mix (40% over age 60).
NATURE OF SERVICE - Provides home-like temporary care for
normally 3-12 children with an average target population of
5 children, for 1 day - 6 weeks, with an average stay of
slightly over 3 weeks. These children are Traditionally De-
pendent (abused, neglected, abandoned/orphaned), Status De-
pendent (truant, runaway, or ungovernable), or Delinquent
(adjudicated delinquent). Care is frequently provided by a
retired couple or housewife, with no natural (biological)
children still at home or with only late teenage children at
home.
YOUTH - CRISIS CARE
1 Bed: 15,000 Population
Traditio~al Dependent: 8 beds. Status Dep: 40 beds. De-
linquent: 2 beds. Per Florida HRS estimate of total Pinellas
County need for each service population group as of January
1980.
One - two beds per home.
8 + 40 + 2
= 50 beds.
S
750,000 County population ~ 50 beds = 1 bed per 1,500 popula- ()
tion. These figures assume a 1979-80 Pinellas County, Florid~~~
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~~ age mix (40% over age 60).
it NATURE OF SERVICE - Provides a stable home-like environment
for 1 or 2 children who either need to be removed immediately
from another environment or who temporarily have no other
,
place to go. Care is for 1 or 2 nights. Many of these chil-
dren are runaways, which are included in the Status Dependent
(truant, runaway, or ungovernable) category. Other of these
children are Traditionally Dependent (abused, neglected,
abandoned/orphaned), and Delinquent (adjudicated delinquent)
in a few cases of young children.
YOUTH - ATTENTION HOME
1 Bed: 15,000 Population
Delinquent: 50 beds. Per Florida HRS estimate of total Pin-
ellas County need as of January 1980. One - twd beds per
home. 750,000 County population ~ 50 beds = 1 bed per 15,000
population. These figures assume a 1979-80 Pinellas County,
Florida age mix (40% over age 60).
NATURE OF SERVICE - Provides a temporary horne-like but struc-
tured alternative to ~ detention center for 1-2 children.
The attention,home is used to house primarily young, first
time accused delinquent offenders for 3-4 days while a longer
term placement is being developed.
The State is increasing
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the emphasis on non-detention center alternatives.
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441 SPOUSE- ABUSE, SHELTER
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1 Bed:
15,000 Population
The St. Petersburg Free Clinic Shelter for spouse abuse is
uSlng a capacity of 12-13 beds. The Shelter estimates that
it is covering half of the n~ed of the south half of the
county. This projects a capacity'of 25 beds for south county
and 25 beds for north county, or a total of 50 beds. (In the
e
practical light of available housing 10 beds per home is the
normal maximum, suggesting 5 homes for the total Pinellas
County, which is also the figure projected by Florida HRS as
the minimum level.) 750,000 County population ~ 50 beds =
1 bed per 15,000 popul~tion.
NATURE OF SERVICE - Provides temporary shelter for women and
children who have been the subject of abuse in their homes.
(Nationally, a very small number of men are also occasionally
included.) Home-like environment and peer group exposure is
added to skilled emotional, vocational, living skills, and
related counseling to assist the abused spouse. Counseling
and normalization is also provided to the children. Many
women have never driven, don't know how a checking account
works, and don't have easily marketable skills. Normal stay
is from 1 day to several months, with an average of 6-8 weeks.
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The average shelter population of 8-12 people at anyone time
will generally mean 3-4 biological family groups.
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V'
~ ADULT CONGREGATE LIVING HOME 1 Bed: 200 Population
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U 40% of Pinellas County population is over age 60. Florida
HRS estimate of Pine lIas County need is 10% of the over age
60 population. For end of 1~79/January 1980, 750,000 County
population X 40% X 10% = 30,000 potential popula~ion. Using as
an estimate that 7 target population individuals will enter a
retirement hotel or other large facility for every 1 individ-
ual who enters a special living home of 20 or fewer peop~e,
the target for homes is 30,000 ~ 8 = 3,750 beds. 750,000
County population ~ 3,750 beds = 1 bed per 200 population.
In addition to the elderly at-risk population, there is also
the adult (ages 18-59) at-risk population which is consti-
tuted primarily by physically handicapped adults who cannot
live independently but still are not so incapacitated as to
need a nursing home. This population could most likely be
well served by an additional 50 beds. This_is mathematically
insignificant relative to the elderly figures and accordingly
adults may be considered to be included in the overall el-
derly numbers. These elderly and adult figures are based on
a 1979-80 Pinellas County, Florida, age mix (40% over age 60).
NATURE OF SERVICE - Provides a home for adults (ages 18-59)
and elderly (age 60+) with some dependency.
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not need a .... (\0
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Very few adults
are served and these are generally individuals
handicaps who cannot live independently but do
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~~ nursing home. Some of these adults are in a congregate fa-
Lt cility on a temporary basis until they are able to live inde-
pendently. The vast majority of congregate living facility
residents are elderly who live there for an extended period
,
of time. These elderly are ge~erally able to function well
and to help each other, but need more of a support structure
than they would have in completely independent living. At
the same time, the Adult Congregate Living Facility cannot
substitute for a nursing home, where residents' dependencies
are not mild and limited. The Adult Congregate Living Facil-
e
ity is the alternative to unnecessary institutionalization of
individuals in more intensive care facilities such as nursing
homes. Congregate facilities range from individual nuclear
family homes who take 2-3. elderly into the family, to small
chains of 3-4 homes with up to 16 individuals in each home,
to "Share-A-Home" arrangements where the various residents
actually own the home and hire a house administrator. (The
term Adult Congregate Living Facility is also applied to re-
sident hotels and other large facilities running into 109's
of residents, 'with the largest in Pinellas County having a
capacity of 800.)
RETARDATION CARE
1 Bed:
1,500 Population
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Per Florida HRS for Pine lIas County there are 301 beds
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~~ currently used, plus 186 Sunland residents from Pinellas
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U County who are scheduled for release. Assuming another 13
beds for unmet need and respite (temporary) care, 301 + 186 +
13 = 500 beds. The Resident Home Association uses a model of
8 regular b~ds and 2 respite beds or 10 beds per home.
750,000 County population ~ 500 beds = 1 bed per 1,500 popu-
lation.
NATURE OF SERVICE - Provides a home for mentally handicapped
adults and children. A live-in home administrator helps
residents learn living skills. Residents will generally at-
tend a sheltered workshop or low-skilled work or school dur-
ing the day. Approximately 10 retarded residents per home.
Most residents permanently live at the home, with perhaps 1
or 2 beds available for respite care, where the home will
provide knowledgeable care for persons normally cared for by
their parents, while the parents are on vacation or other ab-
sence and rest'.
DISPLACED YOUTH SHELTER
1 Bed: 1,000 Population
Per Young Women's Residence of St. Petersburg, ther~ was a
surveyed need for 8,000 beds in Florida in 1975. Up to 20
beds per home.
(Other residences are found at larger insti-
tutional sizes.)
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8,000,000 1975 !lorida population ~ 8,000
beds = 1 bed per 1,000 population.
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~ NATURE OF SERVICE - Provides a home for Traditionally Depen-
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U dent (abused, neglected, abandoned/orphaned) youth, Status
Dependent (truant, runaway, or ungovernable) youth, or unwed
mothers, or combination. Physical shelter and protection,
personal development, family life education, normal scholas-
tic education, and individual counseling are provided. Pro-
gramming is oriented toward independent living. Care is
pr.ovided for from several weeks to several years'. Average
stay is approximately 2 years for dependent youth and 7
months for maternity cases.
DISPLACED ADULT SHELTER
1 Bed: 1,900 Clearwater
Population
Per Quest Inn for Clearwater there are 45 beds currently in
use plus a 5 bed turn-away rate as of approximately January.
1980. This means 45 + 5 = 50 bed requirement for Clearwater.
95,000 Clearwater population ~ 50 beds = 1 bed per 1,900 pop-
ulation. (This is an actual experie~ce number, but is pro-
bably overstated by almost a factor of 4 since the Clearwater
facilities are in reality supporting all of upper Pinellas
,
County. Assuming 100 beds would cover Pinellas County, the
standard for a county with the geography and age mix of Pin-
ellas should be 750,000 County population ~ 100 beds = 1 bed S
7,500. Accordingly, Clearwater should encourage other Pin- ;
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ellas County communities, outside of the City of St.
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~~ Petersburg which also has facilities, to carry their fair
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share.)
NATURE OF SERVICE - Provides emergency shelter primarily for
young, single adults who haye dropped out, have been over-
whelmed by personal problems and are unable to cope, or have
been thrown out by parents. 10-15 beds per home. Average
stay is limited to 3-6 weeks, with some 1-2 night stays. In-
dividuals are required to try to get their feet back on the
ground, to get a job, and to participate in counseling. The
adult shelter is the only other structured residential alterna-
tive available to police jurisdic~ions.
MENTAL HEALTH HOME
1 Bed: 2,000 Population
Per District V Mental Health Board plan for Pinellas County
for 1979-80, there lS a target population in need of alter-
native residential treatment of 1,173 children and youth and
2,878 adults. Assuming that this population will be fully
treated in 5 years and based on an average stay of 6 months,
this target population will conceptually fit into 10 treat-
ment groups. Accordingly, 1,173 ~ 10 = 117 child beds and
2,878 ~ 10 = 288 adult beds needed at any single time.
117 -+-
288 = 405 beds total.
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750,000 County population ~ 405 beds
1 bed per 2,000 population.
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~~ NATURE OF SERVICE - Provides alternative residential care for
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mental health clients who have generally come from a hospital,
environment and are now ready for home-like environment in
their treatment progress. Other clients may come from their
own homes or other residential settings when a more struc-
tured environment is called for. All age groups are accommo-
dated, in separate homes with generally 6-10 youths or chil-
dren (age 17 or less) or 12-20 adults (ages 18-54) or 12-20
elderly (age 55 or more). Six months is the average stay,' but
this varies among individuals. Counseling and close supervision
are provided. During normal work days most clients are in
school, working at normal jobs, or at a separate day treat-
ment center. As much of a normal and traditional home-like
experience as lS possible is attempted in order to move the
clients toward release from the mental health system and back
into the mainstream of normal living.
SUBSTAIfCE ABUSE' CARE
1 Bed: 500 Population
Per Florida HRS Mental Health plan for juvenile (ages 13-17)
substance abuse alternative residential treatment there is an
identified need population of 860 in Pinellas County for the
calendar year 1978.
The corresponding 1978 Pine lIas County
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stance abuse population for ages 0-12, as a practical matter ()~
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population is 708,000.
Since there is a very limited sub-
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~~ the 860 need population can be considered to cover ages 0 -17.
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and 1977-78, the adult (ages 18-54) requirement is 573% of
the youth requirement or 573% X 860 = 5,000 need population
,
and the elderly (age 55 or more) 'requirement is 1,551% of the
youth requirement or 1,551% X 860 = 13,300 need population.
860 -+- 5,000 + 13,000 = 19,160 annual need population for 1978.
Approximately half of this population will be served by facil-
ities larger than group homes. 50% X 19,160 + 9,580 need
e
population for group homes. In a group home setting, average
stay is projected at 2 months or 12 ~ 2 = 6 groups concep-
tually each year. 9,580 ~ 6 = 1,597 beds needed. Using the
1978 HRS data base, 708,000 County population ~ 1,597 beds =
1 ped per 500 population.
NATURE OF SERVICE - Provides temporary home-like but struc-
tured environment for victims of substance abuse (alcohol
dependency or drug dependency). Approximately IS residents
per home. Average stay approximately 2 months (average
larger institution stay is 3-4 months). Individual length
of stay is from several weeks to an excess of a year. Homes
are generally established by age groups for youth and chil-
derly (age SS or more) .
Counseling and close supervision is
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dren (ages 17 or less), for adults (ages 18-54), and for el-
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~~ provided. Residents are generally involved In school work,
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U or other outside activities during the day, except for el-
derly residents whose daytime activity may be more limited.
Care is oriented toward get~ing the resident back into the
mainstream of normal living and,assistance involves devel-
oping functional and positive personal capabilities and an
effective, long term support system.
OFFENDER HALFWAY HOUSE.
1 Bed: 5,000 Population
e
Per the Florida Department of Probation and Parole for Pin-
ellas County there are 4,200 felony releases and 2,000 mlS-
demeanor releases on supervised probation and parole in June
1980. Using 10% of this number as an approximation of the
population that would benefit from a halfway house means
(4,200 + 2,000) X 10% = 620 target groups each year. It may
be reasonable to expect 1/2 of this population of necessity
will be located in a facility larger than a" group home, al-
though the smaller group home setting is more effective.
1/2 X 620 = 310 target group for group .homes. With an aver-
age stay of 6 months, 2 groups can be accommodated each year
and 1/2 X 310 = 155 beds. 750,000 County population ~ 1S5
beds = 1 bed per 5,000 population.
like environment for felony and misdemeanor offenders
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NATURE OF SERVICE - Provides a typical, contemporary, home-
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~~ have almost completed their sentences, as a smoother means
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U of transition back into society, rather than direct release
to the streets. Typically the last 6 months of a sentence
are served in a halfway house with an average of 10 residents,
who first find jobs and then work during the day. The house
is located as close to the resident's native environment as
possible to assist in transition. Vocational and personal
counseling are provided along with supervision. A halfway
house can also be used as a more supervised alternative to
probation (straight release from the court to the streets
under supervision). In this role, the halfway house functions
to provide more control and support than would otherwise be
available.
Other Homes and Facilities
1 Bed: Various Population
The provision of human services, including methods that use
family living ,homes and facilities, is a dynamic field and
service methods exhibit continuing change. These standards
are intended to be inclusive and not exclusive. New programs
that may not fit the categories of these standards are ex-
pected, and encouraged, to meet improved technology. It is
intended that changes in city policies, technical assistance,
with other family living facilities that evolve.
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zoning, and related matters will be accomplished to assist
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Summary: Group Housing Needs
Year 2000
Facility Demandl Supply2 Need3 Demand 4
Youth-Foster Care 60 23 37 (19) 107
Youth-Shelter Care 12 6 6 (1) 21
Youth-Crisis Care 6 0 6 (4) 11
Youth-Attention Home 6 0 6 (4) 11
Spouse Abuse Shelter 6 0 6 (1) 11
Adult Congregate LivingS 450 59 391(33) 800
Retardation Care 60 10 SO (5 ) 107
Displaced Youth Shelter 95 0 95 ( 5) 160
Displaced Adult Shelter6 SO 45 S (0)
Mental Health Care 45 0 45 ( 3) 80
Substance Abuse Care7 180 0 180(12) 320
Offender Halfway Shelter 18 0 18 (2 ) 32
lBeds based on 1980 permanent and long term seasonal population of
e 95,000.
2Beds in 1980 in Clearwater.
3New beds (and homes) needed as of 1980.
4Beds based on 2000 permanent and long term seasonal population of
160,000.
5Number of (homes) based on less than twenty (20) occupants per
each. Large-scale congregate living facilities to be provided for
under Zoning Ordinance will likely absorb major portion of this
need.
6Additional
facility.
7Supply was
Clearwater
need is anticipated to be covered within the existing
86 beds in 1980, but facilities were relocated from
in October 1981.
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The number of beds, and especially the number of homes, is
mate and will change with different treatment methods that
over time.
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THE PLAN
The basic responsibility for the provision" of special living
services and facilities belongs to community human service or-
ganizations. The responsibility of local government is to
encourage and support the provision of an effective and reson-
able level of these services and facilities through normal govern-
mental activities such as functional zoning, workable definitio~
of family, normal residential fire regulation where otherwise
appropriate, and other reasonable regulation, and making available
useful demographic, land use, and related information.
Human services for special living populations are provided
by a number of organizations and agencies. The Florida Department
of Health and Rehabilitative Services provides many services to
youth in various types of foster, shelter, crisis, and related
care, to adults and elderly in congregate living settings, to
retarded citizens (along with local associations for retarded
citizens and the Resident Home Associationl, and to drug abuse
populations. The St. Petersburg,Free Clinic Shelter provides
service to abused spouses and their dependent children. The
Religious Community Services organization through the Quest
Inn provides services to displaced adults, as well as is
knowledgeable in elderly congregate living and other housing
l S S ue s .
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The Pinellas-Pasco Mental Health District Board V
coordinates services to the mental health substance abuse
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The Florida Department of Probati6n and Parole
provides services to ex-offenders.
These organizations offer many special living resources.
One factor is the intensity of care. This factor can be
,
thought of as covering a scale ranging from low intensity of care
to a relatively high intensity of care (with an even higher in-
tensi ty of care requir"ed for individuals remaining in hospi tals
or other institutions). The Housing Task Force notes that inten-
sity of care involves two parts.
The first is personal care. The dependency level of the
individual determines the amount of personal care required. Pro-
foundly disabled or retarded persons or person who are very
senile may need a great deal of personal assistance with
dressing, bathing, eating, toilet, and simil~r activities.
At the same time they may be physically healthy and not need the
medical services that some others need.
The second is therapeutic care. This type of care may in-
volve ~ental and physical therepies, medical treatment
behavior modification, and other such services.
Some residents require both a high level of personal care
and a high level of therapeutic care. A higher level of either
element of intensity of care carries with it a higher
staff-to S
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",V' client ratio. That is, there is. more staff per resident for
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U homes where the residents need more services whether for personal
or therapeutic care. Most residents in non-institutional settings
require only a low level of care in the home.
Another factor in understanding special living arrangements
and resources is the characteristics of foster and group homes.
Group homes may be operated by family home owners, nonprofit
organizations, private for-profit corporations, or the State.
Foster homes, on the other hand, are operated by families. Most
foster homes provide family care for children. Some provide
family type care for adults. Whether a home serves children or
adults, the characteristics of the homes are essentially the same.
The presence of clients in them is often not noticeable by the
community and the homes themselves are private residences.
In describing group homes, it is useful to define the normal-
ization principle and the term "least restrictive environment"
which it implies. The normalization principle does not imply
that its use in the social service field will result in clients
becoming normal in all cases. It simply means that the more a
person with special living needs is exposed to the normal environ-
ment of society, the more likely the person lS to reach a higher
level of ability.
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Each individual is given structured oppor-
tunities to grow to his/her highest level of ability.
In
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~~ today's highly complex and technological society some persons
../
U just cannot ada1?t. However, in many circumstances they can
learn the necessary behavior to cope with the expectations of
s~ciety and frequently o~tain and maintain meaningful employment,
although some people will never be totally self-sufficient in
meeting their daily needs.
The term "least restrictive environment" has similar conno-
tations. For some people this means that they must be placed in
institutions. For most persons however, it means their own home,
foster or group homes or apartments with greater to lesser re-
strictiveness as appropriate to meet the individual programmatic
needs of residents. For some physically disabled people, a
beautiful ranch style home could be too restrictive if it has
architectural barriers which prevent them from moving from place
to place in the home or even getting into the eathroom.
Simply put, both terms, "normalization" and "least restrictive
environment,"'must apply to the specific disabilities of the
individual and to the degree the individual is able to cope
wi th "them.
Another key to understanding special living arrangements is
the characteristics of the clients and participants themselves.
many of whom are physically and behaviorally
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A variety of people are found in special living arrangemen ts,
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~~ from the society as a whole, but some who may be clearly
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U "different" from their neighbors. For purposes of this plan,
however, it mus t be ass-umed that the respons i ble social service
agencies conduct careful screening processes prior to placing
a client in a residential environment. It is expected that no
extraordinary danger is presented to the client or society by
establishing a controlled group home system.
Behavioral characteristics of residents of special living
facilities range from very docile and no behavioral problems to
some behavioral problems. The following three operating princi-
e
pIes, however, address individual behavior of all types.
1. Regardless of where persons fit on the behavior scale,
the management of the special living home should have
adequate staff and control of residents to avoid dis-
ruption of the community.
2. No person is discharged from an institution to go to
a special living home unless a professional multi-
disciplinary team has determined that the individual
is capable of living in a special living arrangement.
3. Once ln a special living home, whether the person has
come from an institution or from his or her own home,
if the person demonstrates behavior problems not suit-
able to that home, the person will be transferred to
a more appropriate environment, including an insti-
tution, if necessary.
e
Foster and group homes are designed to provide the most home-
like environment consistent with a person's needs. The preferreds
living situation begins with a person's own home. That is ~"
where most clients live, whether mentally ill, elderly, ()~
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~~ developmentally disabled, or physically disabled. Dependent
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U children (such as abused or neglected children) must, of course,
live outside their own homes. When one has to live outside his/
her own home, the preferred order for doing so is apartment liv-
lng (depending on age), foster home, small group home, medium-
sized group home, large group home, residential center, nursing
home, relatively open institutions, and finally the secure insti-
tution.
Some persons will remain In group homes for the rest of
their lives. Most of these will be elderly or mentally ill, re-
retarded, or physically handicapped. However, many persons who
have lived in foster and group homes have gone on to become pro-
ductive and independent member of society. Others who remain can
best be accommodated in a home in which they feel they belong,
where they are happy, can have friends to relate to, and make
as many choices of life for themselves as possible.
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~~ Fiscal impact: The foster care and group home care facil-
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U ities noted in this Amendment to the Housing Element of the
Comprehensive PIan will be provided by the appropriate State,
community service organizations and the private sector. From
time to time the Clearwater Community Development Department
or other local government resources may be involved in speci-
fic projects, however, primary city involvement is oriented
toward assuring that local government zoning, inspection,
and related activities work to be supportive of State, pri-
vate and community human service housing needs.
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~~ IMPLEMENTATION fu~D MONITORING
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U The basic responsibility for the provision of special
living services and facilities is that of public and private
community human serVlces organizations. The role of the city
is an informational role and an enabling and supportive role.
The city regularly maintains demographic, land use, and other
information. This information can be used in two ways. First,
information will be made available to human services organi-
zations to assist in their analyses, proposals and other needs,
as requested and as available. Second, from time to time, the
city may become aware of a specific need or apparent, potential
need for a special living resource. In such a case, the city
will identify the need to the human services agencies which
may be able to answer the need.
In addition, the city will assist human services organ-
izations in the provision of special living services and facil-
ities as requested, by providing information on locations,
zoning, building inspection requirements, and helping with
technical assistance in processing permits, special exceptions,
annexations,' and related local government issues.
Special assistance will be provided in locating facil-
ities, with an emphasis on broad dispersion of facilities S
throughout the communit%". Concentration of facilities, es- ;
pecially in transitional low income or commercial/industria~~
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~~ fringe neighborhoods, IS counter to maintenance or reestablish-
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U ment of neighborhood stability, as well as damaging to service
agency methods. Locational emphasis is to be toward well-
established and effectively functioning neighborhoods with no
or limited other special living facilities.
This positive
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environment is the most functional from both the standpoint
of maintaining neighborhood stability and of providing a nat-
ural and effective home setting.
This Amendment to the Housing Element of the Clearwater
Comprehensive Plan will be monitored as detailed in the sec-
tion entitled "Monitoring the Plan" contained in the original
text of the Housing Element.
Amendment No. 1 address~s the issue of providing for special
living homes and facilities and on the part of the city is
basically permissive and supportive. Initiatives will gener-
ally come from human services organizations and accordingly
the monitoring structure is expected to be less extensive
than in areas where the city has primary responsibility for
initiating action.
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AJ.'l" qRD.C\iANCE OF TEE CITY OE' CLEAR WA TER, FLORIDA,
COM..."t:"L TING 'NIT:..:r THE "LOCAL GOVERNMENT COMPRE-
HENSIVE PL.-\.Nl'iING ACT OF 1975", AS A.viENDED; ADOPTIi'.""G
THE LA.ND USE ELEML'"?iT AS PAR T OF THE COMPREHENSIVE
PLAN FOP. THE L'l"TI.?,E CITY OF CLL-\.RWATER, FLORLi'JA;
ADOPTING THE ATTACHED ):."'X:;:-HBIT Ar...m ?viAP; PROVIDI.:-iG
FOR PROPER NOTICE OF PROPOSED ENACTMENT; A?--fD
PROVIDL.'1"G FOR THE EFFECTIVE DA TE OF Th""IS ORDr:NA:~CE.
WHEREAS, all required referrals a.nd coor<ii::1ation wim the County,
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Region and State as provided ior in Section 163. 3184, Floriea Statutes,
have been cornplie.d wim; and
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WHERE_~S, the Pinellas County Pla"ning COu.:J.cil, the Local Pl=-=i..::g
Age.:!cy for Pi:.:.ellas C01.:!:ty', held Ge hea::-i:::.g :-eqti=ed by tbe :'ccal Gove=n...'"':::'.e::.t
Compreb.ensive Pl~i:::g _~ct of 1975 relating to suc~ l~.:ld 1.:5 _~ pIa::. on
September 20, 1978; and
\VHER~';'S, pli.i-:'St.la..nt to Section 163.3184, .Florida 3ta:"..:.tes, r:.Otce~
public hea=i.J.gs :-ela~g to ne la.l:c. use p12~ were held en Jwly 19, 2979,
a.=.d ..A..ugust (.,11 1979, wi~ eac:=' suc~ ~eari...:1g bei=:g held on a wee:k~a".r a.:te=
five o'cloc2.-c P. M.; aIle.
WHE.RE:..'\S, notices relat-'..::.g to SUdl hea::i..::gs were F'1.::.olished. 'J;::
July 12, 1919, acd J~y 26, 1979;
NOW, THEREFORE, BE IT ORDAINED BY T:-iE CITY
COlvL'vilSSION OF THE CITY OF CLE..A-P, WA TER, FLORIDA;
Sect":orl 1......... Tne la:J.d t:.se eleL::ent 0; tl:::e c<"'"'mp:enensive p12.:1 as
required by the f'Local Govern.-rne:::t Corr:pre.:ae~sive Pla.c.x:i.:J.g Act of 1975111
as amemied, and as set fOrG~~\~~d "'C' ;0. it, desc::ibeci as:
'* ,-" , .,.
Composite Ex.':ibit A - -i-~e~'; entitl ~ 'Ont-t..,
consis~ing ,o~ ~ table o....,.~r;..~di.~s#(66)
pages 11l ac.dl:-10D. to a !7"..a.p, coM Uq it&~
"1995 Cleanva~e:: ~'o=or::ow--The C1ea:- ,~__"?reI:e:::si';=
La.:Jd Use -Pla.n::
is ac.opteci L::l accorc.a.r:ce ':ly"i:h the !!Local Gove:-n....-::1.e::.: Co;:::?re~e::..s:.,,"e r:l2..:J....-:i.::.g
...~ct oi 19751" as a..::1e::.ded, io~ ilie entire City or Clea.::-"Nate=, .?lo=i.c.?_~
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Section 2~ T..:.:e attacl:ed e.:ci~it desc=ibed a.s:
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Composite -:;'.,),'bit A - Docu.---:nent e::titled "Land Use"
consisting of a table of contents sheet and sixty-si.,: (66)
pages in additio::: to a map, color coded, entitled
"1995 Cleanvate:;;- Tomon'ow_ - The Clearwater Comprehensive
Land Use Plan"
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is adopted as part of tl--...is ordinance as if it was set for6 in full herein.
Section 3. For the pU:;;-poses of this ordinance, the area encompassed
by this ordinance shall be described 2.S those portions of the L'lcorporated
City of Clearwater <,.nd as such incorporated area nay be subs equentJ.y
expanded wi:b.in the area bounded "::ly:
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The entire area withi:J. the pres ent boundaries of the
city of Clearwater as such boundaries are expanded and
redefined by future anne.::cations, and the City of Clearwate:::-
service area which service a:ea is fu=ilier described as follows:
Bounded on the West by 6e Gulf of Mexico, on the North by
the centerline of Dune<En Pas s; thenc e Southeasterly to a point
in St. Joseph's Sound approximately 700 feet Southeast of
Moonshine Island, e.xcluCi:J.g ~v1oonshine Isla:ld; thence Cue :::ast
through St. Joseph's Sound and along Udon Street to Keene Road;
6ence due North to County .Road 34; thence due East to the
Southerly ex::ension oi Coun~oad 70; thence due Nor6 along
County .Road 70 to State RO~~...Gence due East to U. S. Highway
19, excluding t.::e Dunedin bdus~~a~':c; thence due No::G. to
C=lew CreekRoad; thenc~ EaJi;)~ca' en-Eooth Road;
thence due South apprO:ri.."!1~WiA.400 ~eet 5' -owned property;
thence due East approxi..""nately Iri -. . e South
approxi..""nately 2,200 feet to State , . en ~".Aa:ld
Southwest to Mc;',iulle::-Booth .Road; then r:::tIthe
centerline of }...lligator Creek; tnence East a . ator
Creek and the southern shore of Alligator La.."<e an :rlie Drive
to Cooper's Bayou and Upper Clci Tal"npa Bay all the way to the
Clearwater_ Tampa Cit'j Lir::1its and Pinellas-Hills"::lorough County
limits; the:lce due South to the Cou:t:J.ey Campbell Caus eway;
thence Westerly, Southwesterly, and Southerly along the sho:::-eli.:::e
of Old Tampa Bay to .Bellair Road e:dended; thence c'.le West on
Bellair .Road. to the Seaboard Coast Line Rail:oad tracks; thence
due North to and along Ft. Harrison Avenue to D Street; t..':ence
due West appro:ri..""nately 150 feet; t.."-ence due North to .B Street;
thence due West to 4t..l:l A....ellue; thence due Nort..1. to A Street;
thence due East to Ft. Harrison Avenue; thence due Nort.1. to
Watkins Street; thence due West to ''vaters Street; thence due
North appro:ri..-:J.ately 700 feet; the:Jce West to the I.:Jtracoasca1
Waterway; ::b.e:Jce South--Southwest apprcx'~-:-:ately 6,000 feet;
thence due West to G.e Gu.lf of Mexico.
Section 4. -~.J..l ::-eqmred a:Jd optional el=ents and parts of G.e
Cor:-:prenensive Plan as required or allowed by the "Local Gover:::.rne:Jt
Comprenensive H=ing Act of 1975", as amended, which are set fort..1. in
the attached e.:e.i"::lit adopted herein, are nereby adopted as part of this orC:J.ance.
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Section 5,:. ..:~ll c.evelo?:::::'.e.::.t u.":1der:a2.,en a;:ci 2..21 a.ctions ta-:.cen i:J. .:-ega=::
to deve10pmer..: o:::de:::s, alli.and cevelopment regulations enacted or amended
by the City oi Clearwater ~hG.ll be consistent with this Plan and suc1J. e1emeut
and part thereoi in rega:::d to ilie l,,-::::d cove:::cd by this element and portions oi
the Comprehensive Plan as hereby adopted shall be consistent wit...'1. this Plan and
each element and pa:::t tbereoi.
',.
Section 6. Notice of the proposed enactment oi tbis o:::d..ir.ance has
been prope:::ly advertised in a newspaper of gene:::a1 circulation b. accorciance
with Secdon 166.041, Florida Sta~.ltes.
Section 7. All public hearings and public pa::-ticipation requi::-ed
pursuant to Section 163. 3184, ?lorida Statutes, has ?r ec eded the consideration
of this ord..ir.anc e.
Section 8. Tcis ordi.nance is hereby adopted and shaH be consiciered
henceforth adopted lor tb.e p'.:.=poses of Sect:ion 163.3184 (7), Florida Stato.ltes,
and shall becooe e.i:fective i:r:::--_~ediately upon its passage.
PASSED ON ?IRST RE...WING
October 18, 1979
PASSED ON SECOr-ID A)''"I) FL.'l"AL
RE.WING Al'-l-:D ADOPTED
November 1, 1979
/s/ Charles F. LeCher
Mayor- Co=is sioner
Attest:
/ s / Lucille Williams
City Clerk
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LAND USE PLAN
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TABLE OF CONTENTS
Summary. . . . . . . . . . . . . . . . . . . . . . . .1
Introduction. . . . . . . . . . . . . . . . . . . . .2
Economic ASsumption .. . . . . . . . . . . .3
Goals and Objectives. . . . . . . . . . . . . . .4
Estimates and Projections. . . . . . . . . . .7
Land Use Requirements. . . . . . . . . . .11
Plan Evaluation. . . . . . . . . . . . . . . . . .15
Intergovernmental Coordination. . . . .17
Implementation. . . . . . . . . . . . . . . . . .19
Appendices
Appendix 1 . . . . . . . . . . . . . . . . . . .22
Appendix 2. . . . . . . . . . . . . . . . . . .24 .
Appendix 3 . . . . . . . . . . . . . . . . . . .33
Appendix 4 . . . . . . . . . . . . . . . . . . .40
Prepared By:
City of Clearwater
Planning Department
Clearwater, Florida
Adopted pursuant to
Chapter 163 F.S.
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",V' SUMMARY
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The Comprehensive Land Use Plan for the
City of Clearwater takes into account
those factors wh ich are characteristic of
resort-retirement communities. These
factors include an accelerated population
growth rate as opposed to other non-
resort-retirement cities of similar size, an
abundance of natural resources such as
climate, clean air and water, and relative
freedom from high urban density, traffic
congestion, crime and high taxes. There is
also a characteristic rei iance on trade and
tourism with relatively less dependence
on industry.
of the City's residents have chosen Clear-
water as a respite from urban living. The
exclusion of industry and reliance on trade
and tourism in the economy yield a pop-
ulation with relatively few young people.
The .implications of this are that if Clear-
water is to continue as a viable city:
1) The in-migration level must remain
high, as the population is not replac-
ing itself; and
2) economic opportunities need to be
broadened to mitigate to some extent
the imbalance of older residents in the
community.
Although not developed asa "new town"
as the concept applies to a mass of land
conceived and built by a stngle firm or
private controlling agent, the City of
Clearwater is of relatively reCent vintage.
From a town of 28,000 in 1950, it has
grown to a city with an estimated resident
population of 86,000. Clearwater's popu-
lation growth is largely independent of
its employment opportunities. Tradition-
al methods of analysis such as cohort-
survival population predictions or the
economic base theory, do not apply to
Clearwater.
Clearwater's "reason for being" is primar-
ily because people want to be here. The
City's resources include climate, water-
based recreation opportunities and rela-
tive freedom from such urban problems
as air and water pollution, traffic conges-
tion, crime and high taxes. Should the
City develop into a true "urban center"
the effect on the existing growth factors
would be highly detrimental, since most
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COMPREHENSIVE LAND USE PLAN
INTRODUCTION
City planning in Clearwater is not consid-
ered an end-stage process. Clearwater's
first municipal plan was adopted in 1962,
a substantial revision was adopted in 1970.
A major change in the City's service area
boundaries was made in 1971, adding
several thousand acres to the City's service
district. A new land use plan adopted in
1972 (and amended in 1975) reflected
this change in area. Throughout the plan-
ning cycles, however, change has been in-
cremental in nature.
Building from the basis of the adopted
1972 plan (as amended) changes were
made to acknowledge land uses which
were not built according to plan. Changes
in anticipated market demand during the
past several years have led some developers
to build single-family rather than high-
rise housing, with decrease great as 20
un i ts fewer per acre.
Increases in intensity have also been rec-
ognized. Planning efforts have the objec-
tive of decreasing the encroachment of
strip commercial activities along major
highways, butwhere it has occurred it is
recognized in the plan. As-built uses also
differ from the plan where jurisdictional
conflicts have arisen. Clearwater's service
area includes some unincorporated areas.
Extraterritorial zoning is not permitted,
and although annexation is encouraged
for extension of water and sewer service,
it cannot be mandated. The City and the
County' staffs have developed a close work-
ing relationship, and wherever possible,
efforts are made to minimize conflicts.
Deviations between planned use, existing
use, and zoning were identified through
use of a series of overlay maps is included
. in the appendix.
Further adjustments were made to reflect
additional information developed since
previous amendments. Clearwater's Envi-
ronmental Management and Conservation
Plan was adopted by the City Commission
in early 1977. This plan designates certain
areas of the City as environmentally sensi-
tive lands and recommends specific poli-
cies for their developl1}ent.
New North was prepared in 1974 to pro-
vide a plan for areas added to the City's
service district after the 1970 land use
plan was prepared. The recommended use
pattern was added to the overall compre-
hensive plan in 1974. It is further refined
in this plan to conform to specific land
commitments made by developers and
approved by the City Commission during
the annexation and zoning process.
Hammer, Siler, George and Associates ex-
amined the interaction between land use
and the economy in Development Oppor-
tunities and Economic Strategies prepared
in 1974. Specific recommendations con-
tained in this report include expansion of
industrial opportunities and redevelop-
ment acreage targets to re'li1:ilize older
neighborhoods. Planning and zoning ob-
jectives to achieve these goals are recog-
nized in this plan.
The downtown area has experienced in-
creased investment in housing, govern-
ment office space and banking facilities
and decreased investment in retail facili-
ties. This decrease in retail investment is
primC1rily due to the competition from
surburban shopping malls. The Plan for
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Downtown Clearwater seeks to create a
pedestrian oriented environment which
offers inexpensive merchandise keyed to
limited income retirement customers and
special ized services desired by the general
population which are not available in
shopping centers. The creation of a viable
downtown core depends upon its con-
tinued promotion as a center for govern-
ment, banking, professional and business
services as well as the creation of new land
uses such as recreation and open space
opportunities. The task of creating mu-
tually supportive land use in a small com-
patible, and functionally related environ-
ment calls for an especially detaiJed plan.
Therefore, the specific recommendations
of the Downtown Plan are not discussed
in the comprehensive plan. The Downtown
Plan is included in its entirety in the
appendix.
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/q'Y GOALS AND OBJECTIVES
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Clearwater is a community made up large-
ly of in-migrants. These people, by choos-
ing to come to the City, may be construed
as expressing at least minimal satisfaction
with the City as it is now. In order to
provide more specific indications about
how current residents want Clearwater to
develop, a needs statement was distributed
in October, 1977. Citizens were asked to
provide opinions on different forms of
land development. Results are summar-
ized in Appendix 1 of this report and
have been incorporated in the formulation
of the following goals and objectives for
land use in the City of Clearwater. Those
overall goals indicated with an asterisk (*)
are the subject of separate plan elements
where they are discussed in depth.
ENVIRONMENTAL RESOURCES
Goal: The preservation of natural ameni-
ties of both privately and publ icly owned
lands, consistent with private property
rights and the provision of equal housing
and economic opportunities.
Objective: Retain, to the maximum extent
legally permissible, shorelines, wetlands,
vegetation, Nildlife, streams and lakes, in
their natural state.
Policy: Encourage on-site clustering of
densities; require control of urban run-off;
require new development to retain the
maximum amount of natural vegetation.
ECONOMIC DEVELOPMENT
Goal: To provide a full range of economic
activities within the City of Clearwater.
Objective: Expand industrial and profes-
sional opportunities within the City,
while retaining natural amenities to pre-
vent erosion of the tourist base.
Policy: Investigate innovative methods of
financing which would produce a public-
private partnership to encourage industrial
development.
HOUSING*
Goal: To provide for a full range of
choices in housing for persons of all in-
come groups.
Objective: To provide means to maintain
the existing stock, while at the same time
allowing maximum choices of density
ranges and site design configurations for
new development.
Policy: Make maximum use of available
subsidy programs to assist low- and middle-
income persons and preserve older neigh-
borhoods.
REDEVELOPMENT*
Goal: To provide for the logical, orderly
re-use of land upon which economically
viable structures no longer exist.
Objective: To encourage inner-city rede-
velopment efforts consistent with the
Plan for Downtown Clearwater.
Policy: Investigate al ternatives such as
community redevelopment districts which
allow increased intervention in blighted
areas where private parties may need ad-
ditional investment incentives.
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",V' TRANSPORT A TION*
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wide range of activities may be pursued.
Goal: To provide for efficient inter- and
intra-city movement, consistent with fis-
cal and environmental constraints.
Policy: Encourage, through le9se, joint
use or other agreements. maximum publ ic
use of new and existing facilities; provide
incentives for development of broader
cultural opportunities within the City.
Objective: To expand thoroughfare capa-
city and provide for alternatives to the
private automobile.
MANAGEMENT
Policy: Complete missing links in the
thoroughfare arterial system; expand
capacity on existing arterials where indi-
cated; develop a system of transportation-
oriented bicycle and pedestrian routes,
and work with transit providers to 8xpand
mass transit.
Goal: To provide for continued fiscal sta-
bility in the operations of City govern-
ment.
Objective: To provide for systematic
maintenance and improvement of the
City's physical plant, and for increased
efficiency in governmental operations.
PUBLIC SERVICES AND FACILlTIES*
Goal: To meet the health, safety and wel-
fare needs of the citizens of Clearwater in
a timely and cost-effective fashion.
Policy: Develop and maintain inventories
of extent and condition of the City's
physical plant, and allocate capital im-
provement funds to achieve and main-
tain acceptable conditions.
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Objective: To provide the existing level of
services, or expanded service ranges where
indicated, within the City throughout the
period of the plan horizon.
PLAN IMPLEMENTATION
Goal: To adopt a set of ordinances regu-
lating land development which will allow
the plan objectives to be met and which
will permit development to proceed in an
orderly and timely fashion.
Policy: To expand services in newly devel-
oped areas of the City, while maintaining
service capacities in older areas and pro-
viding for periOdic readjustment of overall
s8rvice levels to respond to changes in de-
mand.
Objective: To minimize bureaucratic de-
lays of private development proposals by
establishing regulations which are easily
interpreted without sacrificing the
achievement of qualitative objectives.
CUL TURAL/RECREA T/ONAL *
Goal : To allow ci tizens max i mu m opti ons
for constructive and healthful use of lei-
sure time.
Policy: To centralize a/I local land devel-
opment regulations in one code, and re-
view and update that code as necessary to
eliminate inconsistencies.
Objective: To provide, at both scattered
and centralized locations, sites where a
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IQV" INTERGOVERNMENTAL COORDIN-
..,J NATION
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Goal: To insure that federal, state and
regional development policies which are
consis~ent with local health, safety and
welfare provisions are implemented
through local action.
Objective: Facilitate the City's compli-
ance with externally imposed regulations
and to utilize avenues for local input to
forward local concerns.
Policy: To work with other affected gov-
ernmental units to develop solutions to
problems of extraterritorial concern.
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",V' ESTIMATES AND PROJECTIONS
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to allow for errors in foresight.
A statement of major land use objective
and policies must necessarily include an
analysis of detailed information of both
the past and future. An analysis of this
information results in projections for
population, employment, income and
land use. However, it is instructive to note
that projections of the future are increas-
ingly uncertain as the time span increases.
One can predict for 5 years with greater
accuracy than 10 years, for 10 than for
20. The time horizon for this plan is 1995.
While certain projections in population,
for example, may be too conservative, the
objectives of the plan are general enough
POPULATION TRENDS
I t is expected that withi n the time horizon
ofthis plan, Clearwater will reach a popu-
lation of 137,100 yielding a relatively low
net urban density ot 6.9 persons per acre.
With half of Clearwater's land planned for
residential uses, the net residential den-
sity will be 14.5 persons per acre. This is
a slight reduction in the existing net resi-
dential density (15.5 persons per acre),
and is consistent with existing land use
patterns. Population is expected to in-
crease at a relatively steady rate, as shown
in the Table below.
TABLE 1. PROJECTED POPULATION
City of Clearwater and Service Area
Planning
District 1975 1980 1985 1990 1995
1 10,675 10,938 11 , 166 11 ,436 11,770
2 16,840 17,119 17,360 17,645 17,999
3 17,392 17,496 17,586 17,691 17,822
4 15,881 18,4 75 20,71 7 23,366 26,656
5 11,121 11 ,4 70 11 ,772 1 2,1 29 12,571
6 2,798 2,798 2,867 2,905 2,953
7 14,840 14,783 14,734 14,675 14,602
8 2,548 4,609 6,391 8,496 11,112
9 4,636 5,682 6,586 7,654 8,981
10 9,993 10,646 11,210 11,877 12,705
TOTALS 106,724 114,053 120,389 127,874 137,171
SOURCE: Clearwater Planning Department
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With improved health care and a decreas-
i ng bi rth rate, the average age of the popu-
lation in the nation as a whole is expected
to increase. Clearwater currently has a
large segment of its population in the
older age categories, and this proportion
is expected to increase.
TABLE 2. AGE DISTRIBUTION
Clearwater Planning Area Residents
Percent of Total, By Age Group
0- 24 25 - 44 45 - 64 65 Above
1975 30.2% 17.1% 23.5% 29.2%
1980 30.1% 15.9% 23.8% 30.2%
1985 29.5% 14.5% 23.4% 32.6%
1990 28.5% 13.0% 23.0% 35.5%
1995 27.0% 13.2% 23.1% 36.7%
SOURCE: Hammer, Siler, George Associates
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EMPLOYMENT TRENDS
Employment forecasts indicate increasing
labor force participation and a relative
decrease in the goods-producing sector of
the economy. Although a key assumption
of this strategy is that the absolute acre-
age denoted to manufacturing uses will
increase, increases in acreage are not ex-
pected to keep pace with growth of the
labor force.
indicates a per capita total personal in-
come of $3,942 in Clearwater ($5,302 in
constant 1974 dollarsl. Allowing for a 1.3
percent real increase between 1969 - 70,
per capita income was estimated to be
$4,228 in 1970 ($5,370 in constant 1974
dollars). In 1975, per capita income is es-
timated at $5,708, reflecting an average
annual real increase of about 1.2 percent
since 1970. Clearwater's percaoita income
exceeded the overall Pi nellas County av-
erage in 1970 by almost ten percent, and
in 1975, by about nine percent.
PERSONAL INCOME TRENDS
The 1969 income data in the 1970 Census
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1969
1970
TABLE 3. CLEARWATER TOTAL PERSONAL AND
PER CAPITA INCOME TRENDS, 1969 - 75
Total Personal Income
Current Constant
Dollars Dollars 1/
(000,000) (000,000)
$197.4 $265.4
$220.2 $279.6
Per Capita Income
Current Constant
Dollars Dollars 1/
$3,942
$4,228
$5,302
$5,370
1974
1975
$5,630
$5,708
$5,630
$5,708
$406.6
$441.2
$406.6
$44 1 .2
1/ Constant 1974 dollars, adjusted for inflation.
SOURCE: Estimates by Hammer, Siler, George Associates based on comparisons with
bank deposit trends and the U. S. Census of Population 1960 and 1970.
Total personal income in Clearwater was
$197 million in 1969, or 10.9 percent of
the Pinellas County total. By 1975, total
personal income has increased to $441
million, up to 12.1 percent of the Pinellas
County total.
TABLE 4. CLEARWATER PLANNING AREA
EMPLOYMENT FORECASTS
Total Non-Farm
Employment
Percentage In
Goods Services
Producing Producing
1975
1980
1985
~990
1995
33,339
39,264
45,044
49,523
56,643
16.5%
16.0%
15.7%
15.5%
15.2%
83.5%
84.0%
84.3%
84.5%
84.8%
SOURCE: Hammer, Siler, George Associates and the City of Clearwater Planning
Department.
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",V' HOUSEHOLD TRENDS
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The number of households in the City is
expected to reach nearly 60,000 by 1996.
The average number of persons per house-
hold is expected to decrease due to the
influence of retirees and overall trends
toward single-person households.
TABLE 5. PROJECTED NUMBER OF HOUSEHOLDS
IN CLEARWATER PLANNING AREA
Number of
Households
Average Number
Of Persons per Household
1975
1980
1985
1990
1995
43,561
47,325
50,584
54,414
59,125
2.45
2.41
2.38
2.35
2.32
SOURCE: Hammer, Siler, .George Associates and the City of Clearwater Planning
Department.
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",V' LAND USE REQUIREMENTS
."J
U Land use requirements for meeting plan
objectives show that housing will continue
to require the greatest amount of addi-
tionalland. Industrial uses will account
for a decreasing proportion of total land
uses. Relatively little additional land is
needed for retail trade purposes, due to
the currently over-built conditions. Re-
search indicated that there was some over-
building in hotels and motels, therefore,
no additional acreage is slated for those
uses until after 1980.1
TABLE 6. SUMMARY OF MAJOR LAND REQUIREMENTS
1975 - 80 1980 - 85 1985 - 90 1990 - 95
Housing 710 593 724 895
Retail Trade 52 37 51 68
Commercial Offices 25 20 27 36
Hotels/Motels 0 62 66 70
I ndustriai 84 66 84 110
. Total 871 778 952 1,179
SOURCE: Hammer, Siler, George Associates and the City of Clearwater Planning
Department.
1 Development Opportunities and Economic Strategy prepared by Hammer, Siler,
George and Associates 1975
Background statistics used to derive
Table 6 are included as Appendix 3 of
this plan.
Spatial distribution of the required acre-
ages includes two components- new growth
and redevelopment. With approximately
80% of the planning area either developed
or committed, it is expected that the im-
petus will shift from new development to
redevelopment within the time horizon of
the plan. Most of the City's vacant land
lies in the northwest section of the study
area and was discussed in depth in New
e
North. In the older areas of the City, re-
development has been occurring, and is
expected to continue. I n these areas, con-
version to higher-intensity uses has in the
past excluded residential uses. As available
land oecomes increasingly limited, rede-
velopment to high-density residential uses
is expected and encouraged.
Expected areas where redevelopment
pressures will occur include the bayfront
and beach areas, where redevelopment
will probably yield net increases in hous-
ing and motel units. Downtown redevel-
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opment is expected to be primarily to
office and parking uses. Along major ar-
terials, such uses as miniature golf courses,
boat sales yards and used car lots are ex-
pected to be redeveloped into offices or
retail shops, which have a higher financial
return per square foot of space.
matic reflection of the divergence of
Clearwater's living patterns from the norm.
Comparative land use studies have been
published, notable by Harland Bartholo-
mew (1955) and the Rand Institute (1963).
and average computed of land area de-
voted to the different types of uses. Land
uses in the Harland Bartholomew book
were compiled from 1939 to 1952, data
used in the Rand I nstitute document were
collected from 1938 to 1961. Rand also
compared the same cities at different
points in time.
Declining residential areas have been iden-
tified, and in-depth strategies prepared, in
the Housing Element and related docu-
ments. Over811 policies used in examination
of these 8reas include working toward the
elimination of blighting influences, en-
couraging rehabilitation in sections where
housing and neighborhood quality are
predominantly sound, and encouraging re-
development of blighted areas at residential
densities compatible with the adjacent
neighborhoods.
Clearwater's land use patterns differ sig- .
nificantly from those in the surveyed
cities. A comparison of survey results
shows that Clearwater has more land de-
voted to housing and commercial activi-
ties, and less devoted to industry, than
the surveyed cities.
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LAND USE TR ENDS
The land use in Clearwater presents a dra-
TABLE 7. PROPORTIONS OF DEVELOPED LAND
Single Family
Duplex-Medium Density
Multi - Family
Total Residential
Clearwater
( 1-1-76)
30%
5%
7%
42%
Harland
Bartholomew
(Table 3)
31%
4%
2%
37%
Rand
(Table 1)
39%
Commercial 13% 5% 3%
Industrial 0.6% 11% 10%
Parks/Public 9% 20% 6%
Institutional /Semi-publ ic 2% 11 %
Streets 33% 25% 33%
100% 100% 100%
SOURCE: Clearwater Planning Department; Rand Institute, Recent Land-Use Trends in S
Forty-Eight American Cities; Harland Bartholomew, Land Uses in American 0
Cities. tr
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..,J water in Table 7 can be considered as
U
part of a trend. Previous land use studies
have revealed the following proportions:
TABLE 8. CLEARWATER LAND USE
(Excluding Vacant Land)
Residential
Commercial
In dustri al
Public/Semi
Streets
SOURCE: Clearwater Planning Department
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The current revision of Clearwater's land
use plan must, above all, recognize these
past trends and the unique character of
1958
Acres- %
1976
Acres- %
3,127
567
413
1,311
2,348
7,766
41%
7%
5%
17%
30%
100%
5,5351
1,733
80
1,346
4,340
13,034
42%
13%
0.6%
11%
33%
100%
the City. Development of the City accord-
ing to plan will yield the following land
use proportions:
TABLE 9. FUTURE LAND USE
City of Clearwater and Service Area
Use
Low Density Residential
Medium Density Residential
High Density Residential
Total Residential
Commercial/Motel
Industrial
Recreati on / Open Space
Pu blic /~emi-Publ ic
Streets and Roads
Total
SOURCE: Clearwater Planning Department
Acres
Percentages
34%
8%
4%
46%
7,183
1,639
755
9,577
1,561
347
1,681
1,009
6,925
21,100
7%
2%
8%
5%
32%
100%
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The number of dwelling units permitted
by this plan would accommodate 136,740
persons with a vacancy rate of 4% assumed
for the housing stock. Achievement of the
plan objectives, however, will necessitate
conversion of some commercial uses to
residential over the planning period. Such
a conversion certainly seems possible as
obsolescence renders certain businesses
unprofitable. It is important to note that
the plan objectives can be achieved with-
out rei iance on true "urban center" den-
sities; in calculating population the mid-
point of the density range was used
throughout.
3. upgrading amenities, such as recrea-
tional, cultural and entertainment
opportunities; and
4. facilitating the flow of traffic as in-
dicated in the Major Thoroughfare
Plan.
It is not expected that implementation of
this plan will significantly alter Clear-
water's age or employment trends. Due
to the high cost of land, and the predom-
inantly residential character of the City,
industry is not expected to increase much.
Retail trade and services will remain the
primary employment centers within the
City. Clearwater would, however, be in an
excellent position to be a net exporter of
labor if Pinellas County is successful in
attracting industry to its mid-county sites.
If the City is to remain healthy and attrac-
tive for the next twenty years, it must
rely on those assets it now has. The plan
does not allow for major growth in em-
ployment or industry. It does allow, and
encourage, the wise development of a high
quality residential area. Major implemen-
tation efforts must focus on:
1. retaining a high level of environment-
al qual ity;
2. encouraging the development of indus-
trial potential included in the plan;
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",'Y PLAN EVALUATION
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Adoption of a land use plan in a publ ic fo-
rum sets the common basis for making
day-to-day decisions regarding the physi-
cal development of the City. Public of-
ficials, private citizens and City staff are
afforded a tangible model to follow, with
written policies accompanying the graphic
displays. The means of following the plan
are afforded by the implementation tools.
Assuming that all of the tools are ade-
quate, and that the situations of the en-
vironment itself are completely static,
plan evaluation would be a meaningless
exercise.
However, the entire process of planning
assumes a dynamic environment. I nforma-
tion about changing conditions nep.ds to
be fed back into the planning process in
a 3Ystematic, on-going fashion to insure
that two basic objectives continue to be
met:
1. that the plan is an accurate represen-
tation of desirable, achievable condi-
tions; and
2. that the controls meant to implement
the plan are adequate to achieve the
desired result.
In regard to the first objective, external
monitoring is required. Overall economic
growth and stability affect growth rates
through its impact on interest rates and
inflation. Progress toward meeting devel-
opment objectives will be slower when
money is tight and interest rates are high.
When there is a scarcity of basic commod-
ities. growth will also be affected. The
primary scarcity to be considered at this
point is the dwindling availability of fossil
fuels. Due to Florida's advantageous cli-
mate, the local effect of this scarcity is
impossible to determine, since it will de-
pend on how these scarce resources are
allocated. However, it may well be that
increased urban densities will be called
for. As energy supplies grow short, indi-
vidual mobility may become a luxury, and
people may be forced to live closer to-
gether.
Certain assumptions about Federal and
State pol icy underlay Clearwater's Land
Use Plan. It must be recognized that such
policy changes over time, and compensa-
ting adjustments may be needed. Federal
housing and transportation policies have
shaped our cities, and their influence is
not expected to diminish in the scope of
the planning horizon. The planning pro-
cess must have enough built-in flexibility
to respond to changes in funding and sub-
sidyorientations.
Every so often throughout history, tech-
nological breakthroughs have occurred
which changed the patterns of human
settlement. Less dramatic, but cccurring
more frequently, innovations modify or
alter life styles. The appearance of signif-
icant, acceptable innovations will require
plan modification. The other remaining
external factors are tastes and preferences.
This is the most nebulous form of change.
in that it is impossible to predict or quan-
tify. Plan modifications for changing taste
will necessarily be reactive in nature.
Changes in these external parameters may
or may not be reflected in the local poli-
tical process. However, a primary determi-
nant of the validity of a plan is howac-
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curately it reflects citizens' desires. An
imperative element of plan evaluation re-
quires periodic assessment of the elector-
ate's concerns and priorities.
through planning regulatory activities,
or who have been directly affected
by such activities.
The second objective of plan evaluation
relates to the effectiveness of implemen-
tation mechanisms. Controls must not
only produce the desired effect but, ideal-
ly, operate in a timely, efficient fashion.
Evaluation of controls will require focus-
ing on the routine, as well as the excep-
tional, and increase the scope of the plan-
ningeffort.ln Clearwater, the construction
regulation function is independent of
planning. Problems, exceptions. or major
developments requiring site plan review
are the primary points of interaction. In
order to gauge plan effectiveness, more
routine contact will be needed.
e
An effective evaluation program, then,
must consider:
1. external factors such as national
trends, Federal regulations. etc.;
2. local preferences; and
3. internal operations.
The specific evaluation program will not
be formulated until the revised plan is
adopted. Activities will include:
1. monitoring of pertinant periodical I it-
erature to chart external influences;
2. attendance at public hearings to gauge
citizen and commission preferences;
3. review of volume and location of all
building activity in the City;
4. periodic intervie'NS with persons out-
side the government who have gone
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J" INTERGOVERNMENTAL COORDINA-
."J TION
U
A network has been established for inter-
governmental coordination of land devel-
opment. The extent to which coordination
is required depends in large part on the
size of the proposed project, with major
annexations being reviewed through the
regular procedures as well as the state and
region under the provisions of Chapter
380 F.S.
The primary means for coordination with
other agencies in Pinellas County is the
Pinellas County Planning Council. The
Council is made up of local elected offi-
cials of the municipal ities, as well as rep-
resentatives from the county government,
school board health department and legis-
lative delegation. The Council was formed
under special legislation and assigned re-
sponsibility to develop a countywide
comprehensive plan, to develop and pro-
pose countywide subdivision and zoning
regulations, to develop a countywide mas-
ter drainage plan, to review all proposed
annexations to assure that municipal ser-
vices are capable of being provided to any
newly annexed areas, and to serve as the
Local Planning Agency for all municipal-
ities in accordance with the provisions of
Chapter 163 F.S. As the LPA, the
P.C.P.C. revie'NS and comments on local
plans or plan amendments, and is prepar-
ing several plan elements for adoption,
including the intergovernmental coordi-
nation element.
Staff planners are invited to join the Plan-
ner's Advisory Council to the P.C.P.C.
The P.A.C. provides professional input
for the council's staff, and takes an active
role in assisting in the formulation of
council programs, and in reviewing mater-
ials prepared for council action.
In addition to council review, the Pinellas
County Board of County Commissioners
reviews proposed annexations. Such re-
view focuses on ability to serve and con-
sistency with adopted plans. In addition
to annexation review, the County notifies
the City when a change in zoning or zon-
ingvariance in the unincorporated portion
of the City's service area is requested. The
City may comment at public hearings on
consistency with local plans, and any
possible effects on local services.
Other general purpose planning coordina-
tion is effected through the Tampa Bay
Regional Planning Council. TBRPC's pol-
icy body is composed of elected officials
of the member governments. An advisory
council of staff planners meets regularly
to provide input in planning programs. In
addition to general planning, TBRPC has
special planning programs with staff and
citizen's committees. Subject areas in-
clude transportation, housing, coastal
zone management, areawide water qual ity,
and aging TB R PC serves as the A-95
clearinghouse and as the reviewing agency
for appl ications for development approval
under Chapter 380 F .S.
Intergovernmental coordination in plan-
ning for special subject areas is mandated
under various State and Federal Acts.
Mechanisms established include:
1. Transportation planning which has
the Metropolitan Transportation Or-
ganization as its policy body, and a
technical coordinating committee
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made up of local engineers, traffic en-
gineers and planners. The MPO pre-
pares an inprovement program which
includes thoroughfare and mass tran-
sit improvements.
2. Southwest Florida Water Management
District which regulates potable po-
table water sources. Members of the
SWFTMD board are appointed by the
governor on a district basis.
3. Health planning is done by Florida
Gulf Health Systems Inc., a non-profit
organization which issues certificates
of need for new health facilities. Mem-
bership of the board is made up of
consumers and health providers and
members are el igible for appointment
to the policy board at the serving in
the county advisory council.
Permitting of publ ic and private actions is e
done by local, county, state or federal
agencies, depending on the nature of the
permit required. Generally no specific
mechanism is established for local input in
the permitting process. However, local
governments are usually notified when a
permit in their service area is requested.
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",V' IMPLEMENTATION
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.
The Comprehensive Plan will be imple-
mented by the creation of a Land De-
velopment Code, part of which will
consist of a revised zoning code and
subdivision regulations. The zoning or-
dinance will be a primary tool for im-
plementation of the Comprehensive
Plan. This ordinance will be modeled
on the Uniform Development Code
prepared by the Pinellas County Plan-
ning Council. Presently there are wide-
spread and confusing differences be-
tween land use regulations in the
municipalities and between those
municipalities and county govern-
ment which regulates unincorporated
areas. This Code serves as a basic out-
line to standardize zoning laws and is
workable and well-conceived. Rezon-
ing will be utilized to reduce intensity
pressures created by rapid growth which
appear to be inconsistent with the Com-
prehensive Plan. This technique will also
be useful in reducing development pres-
sures on environmentally sensitive lands.
The use of the ~ symbol on the fu-
ture land use map designates areas of
environmental sensitivity. Where these
symbols are shown, special resource
management techniques are indicated
for the designated area. Plan implemen-
tation for these areas will require refer-
ence to large scale geo-based (soil, vege-
tation, etc.,) maps which allow clear
delineation of the sensitive area. In or-
der to effect conservation of environ-
mental resources, development will be
restricted in the area of environmental
sensitivity. Property owners will have
the opportunity to transfer density
from the designated areas to adjacent
non-designated portions of their land.
Density transfers will be allowed at a
pre-established ratio based on the un-
derlying Plan classification, ranging from
.10 to .20 of the maximum density per-
mitted in the underlying category. For
example, in the low density residential
classifications, twenty percent of the
otherwise allowable density would be
permitted to be transferred; whereas in
the high density classifications ten per-
cent of the otherwise permitted density
would be transferrable to the non-sensi-
tive portion of the development project.
Subdivision regulations are also being re-
vised. The new law will incorporate by
reference the Comprehensive Land Use
Plan and the Official Map. Thus no pri-
vate or public development will be per-
mitted except in conformity with the
officially adopted Comprehensive Plan.
The new regulations will incorporate
standards for commercial, industrial and
public uses as well as the residential uses
for platted land. Variance procedures in
both the zoning and subdivision ordi-
nances will be made more stringent and
in no case will variances be permitted
which are in conflict with the Compre-
hensive Plan and Zoning Map.
Other land use control measures to pro-
tect the environment include the require-
ment of a Community Impact Statement
(CIS) where a development costs are
$500,000 or more. In addition a CIS
may be required where the development
may have impact on an environmentally
sensitive area, burden municipal services,
or will in some way affect the Compre-
hensive Plan and its implementation. The
Community Impact Statement is reviewed
by the various affected department heads
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",V' meeting as the City Resource Develop-
../ ment Committee. The committee's re-
U commendation is forwarded to the City
Manager, who in turn makes a recom-
mendation to the City Commission re-
garding the proposed development.
Certain parts of the current zoning or-
dinance will be incorporated in the new
land development code. With the adop-
tion of the Coastal Zone Management
Plan in 1973, the City enunciated a
policy of preservation and conservation
of existing aquatic and shoreline fea-
tures, thereby placing necessary land
use constraints on areas vital to Clear-
water's tourist and recreation based e-
conomy. As part of implementing the
CZM Plan, the City has adopted an
Aquatic Lands District as Article XXIX
of Appendix "A" - Zoning, of the Code
of Ordinances. The Aquatic Lands Dis-
trict restricts uses of estuarine land to
water-based functions, and effectively
places an additional obstacle before
those persons wishing to seriously alter
these natural features.
The City has recently revised Sections
7 - 9 and 7 -1 0 of the Code of Ordi nances
to comply with guidelines established by
the Federal Insurance Administration.
These rules impose severe constraints on
construction activity within areas iden-
tified as "velocity zones" on the Flood
Hazard Boundary Map (FHBM). All of
the land areas west of the bluff on the
mainland fall into this category: Sand
Key, Clearwater Beach and Island Es-
tates. The impact along the edge of Old
Tampa Bay is less extensive except for
the man made finger fills extending into
the Bay. This Ordinance will trigger a
"new look" for all new construction in
e
the beach areas. The use of pile or col-
umn foundations is now mandated, and
the lowest portion of the beam support-
ing the first floor of any structure must
be elevated to 12 feet above mean sea
level. The effect of this new flood ordi-
nance does not stop at the beaches, but
extends throughout the city where drain-
age basins are subject to flooding from
the effects of a 100 year storm.
These new ordinances have arisen in an
attempt to enact the current philosophy
of "managed growth" which has encom-
passed a far greater awareness of lifestyle
considerations than was afforded by the
traditional view of zoning and the accom-
panyingly narrow idea of "land use".
Any City ordinance, policy or function
which helps determine the use of land
in any way can be seen as a potential
tool for controlling the quality and di-
rection of development. Outright public
acquisition of lands, which has played
an important role in parkland acquisition,
can be enlarged to preserve other remain-
ing open space for passive parks, natural
areas or important drainage basins. Pub-
lic investment for capital improvements, .
such as street widening, or the addition
of new sewerage lines, can be scheduled
to encourage the appropriate develop-
ment of specific areas, or spent to pro-
mote the revitalization of parts of the
City already developed. Use of bonding
powers can be expanded for such public
purposes as promoting industrial devel-
opment or renewing blighted areas. Such
special revenue bonds to not commit the
general fund revenues and can signifi-
cantly affect community investment with
little cost to the city.
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J' In addition, any exercise of the policy
..,J power which restricts human activity,
U from requirements for off-street parking
to restrictions on the sale of alcoholic
beverages, impacts to greater or lesser
degree the way we live on the land, the
intensity of its use, and the quality of
our lifestyles. Use of police power has
the effect of requiring everyone to com-
ply, therefore the positive effects of
maintaining or upgrading the quality of
life must be balanced against the disad-
vantage of increasing the complexity of
urban life.
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APPENDICES
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,tSR
~
",V'
..,J
U
.e
~..
APPENDIX I
LAND USE NEEDS SURVEY
This questionnaire focused on the land,
its development and use. Most of the
comments received were opposed to the
continued developmentof high-rise apart-
ments: "Five stories is high-rise enough,"
"too many people here already," and. . .
"keep eye-polluting high-rises from our
waterfront and scenery." In keepi ng with
the results or the survey there is a nega-
tive trend to develop high-rise apartments
in several of the areas designated in the
su rvey.
the opportunity to express their opinions
and have some input into thecomprehen-
sive plans. People were both critical and
complimentary on the layout and ques-
tions chosen.
People appear to be interested in expand-
ing industrial use in Clearwater but at the
same time the comments received express-
ed a concern that these items should pay
for themselves. Regarding financial incen-
tives for industrial location, comments
like: "Iet the county do it," "if it pays
for itself it should be done by private en-
terprise," etc., were received. People
would like to see clean industry brought
to Clearwater, but not at their expense.
Comments like: "this could provide more
jobs, but make it pay its own way," "it
depends on how you would encourage
these businesses," and "develop the in-
dustrial park" were representative of the
comments received.
Whether it is a cultural or industrial facil-
ity, people were very watchful of the
public dollar. They don't want something
if it is going to be an extra burden on them
by not paying for itself.
Comments on the questionnaires them-
selves indicated that people appreciated
s
;
O~
TO~ 22
APPENDIX 2
TOTAL ZONING ACREAGE
e
(Derived from 1:1000 Comprehensive
Zoning Map/ Cut off date: 1-1-77)
RS 5380.88 acres
RMH 281.09 acres
RPD 511.72 acres
RM 12, 16 652.51 acres
RM 20, 24, 28 1184.20 acres
CTP 357.58 acres
e
CPD 226.34 acres
CG, CSG, CP 2322.68 acres
PS 143.59 acres
CS 60.60 acres
ML 152.01 acres
P 1584.42 acres
ISP 235.09 acres
AL (Non-delineated) 424.09 acres
e
TOTAL 13,516.80 acres
23
e.
COMPREHENSIVE" LAND USE PLAN ACREAGE
(Derived from 1:1000 Comprehensive
Land Use Map/ Cut off date: 5-19-75)
Low Density Residential
10,774.31 acres
Medium.Density Residential
2,458.77 acres
High Density Residential
1,133.04 acres
Commercial & Transient Accom.
2,340.89 acres
e
Manufacturing
552.68 acres
Recreation & Open Space- 2,520.78 acres
Public & Semi-Public 1,153.10 acres
TOTAL 20,933.57 acres
-
24
(
EXISTING LAND USE - COMPREHENSIVE PLAN
COMPARISON
'e:
Planned for less intensive use than present.
1.) Recreation/open space over industrial.
-- NONE--
2.) Recreation/open space over commercial.
::1il!1!:!i[!il!~i:;iliii!;!~1!jj: 3.)
...... .... .... ...........
.... ...................
..... ........ .........
.......... ....... .............
.................... 4 )
............ ...................
.................... .
.................... ...........
.............................. ..
.. ............. .... -.-
..........
..........
.....e ......... w. ww-
::::::::::::::::::: :
5.)
10.10 acres
Recreation/open space over Med. & High Density residential.
6.19 acres
Recreation/open space over low density residential.
52.34 acres
Recreation/open space over public.
37 . 65 ac re s
6.) Public over industrial.
4.26 acres
II 7.) Public over commercial.
8.)
34.43 acres
Public over medium & high density residential.
e
acres
1. 48
9.) Public over low density residential.
25.25 acres
Medium & high density residential over industrial. 2.75 acres
Medium & high density residential over commercial.
140.72 acres
Low density residential over industrial.
8.64 acres
Low density residential over commercial.
67.95 acres
14.) Commercial over industrial.
6.75 acres
15.) Low density residential over high density residential.
296.14 acres
I I ,
\,
I ' 16.)
. I
Low density residential over medium density residential. ~
138.66 acre"
17.) Medium density residential over high density residential.
335.63 acres
TOTAL 1188.94 acres
25
,e
ZONING - EXISTING LAND USE
COMPARISON
Planned for more intensive use than present usage.
1.) Industrial over recreation/open space.
1. 57 acres
2.) Industrial over public/semi-public.
...................... ..............
:.:.:.:.:.:.:.:.:.:.:.:.:.:.:..: .:.:....
.:.:!':.:..:.:.:.:..:.:.:.:.:.:.:.:.:.:
.................... ........ ... ..... ... )
~~f~f~~~~~~~~~~~~~~~~~r~~tr. 3.
.. ............. .......
....... ... ....... .....
.. ......... .......... ........
..................... 4 )
.... ..... ................
::::::::::::::::::::: .
....... ....... .........
.. .. .. .. .. .. .. .. .. ..
...........
..........
...........
..........
...........
.. .. .. .. .. .. .. .. .. ..
...........
.. .. .. .. .. .. .. .. .. ..
.. .. .. .. .. .. .. .. .. .. ..
5. )
.92 acres
Industrial over low density residential.
.99 acres
Industrial over medium & high density residential.
1.60 acres
Industrial over commercial.
59.45 acres
6.) Commercial over recreation/open space.
31. 91 acres
7.) Commercial over public/semi-public.
83.10 acres
8.) Commercial over low density residential.
265.15 acres
g.) Commercial over high density residential.
10.)
11. )
12.)
13.)
14.)
15.)
I I i
I ! I 16.)
17.)
270.20 acres
High density residential over recreation/open space.
28.00 acres
High density residential over public/semi-public.
48.66 acres
Low density residential over recreation/open space.
38.79 acres
Low density residential over public/semi-public.
.25 acres
Public/semi-public over recreation/open space.
.33 acres
High density residential over low density residential.
219.23 acres
Medium density residential over low density residential.
. '
363.63 acres
High density residential over medium density residential.
51.19 acres
TOTAL 1464.97 acres
26
(
COMPREHENSIVE PL~~ -ZONING
COMPARISON
tit
Planned for more intensive use than present zoning.
. 1.) Industrial over aquatic lands.
--NONE- -
2.) Industrial over public/institution semi-public.
..................
:.:.:.:.:.:.:.:.:.:.:.:.:.:.:.:.:.:.
....................................
..................
........ ............................
..................
.................................. ..
...... ......... "'."'."' ...... ..........
.................................. ..
...................
....................................
....................
3. )
.......................
.... ..o. ... ....... ...
.. ........ ...........o.
............ ......................
.... ............... ... .......
....... ....... ........
.. ... .o........ ..... .......
...........o....................o. ..
................ ..o..o.......
.... ... ................
4. )
.. .. .. .. .. .. .. .. .. .. ..
..........
...........
..........
...........
..........
...........
..........
...........
..........
'r- )
::J .
37.88 acres
Industrial over low density residential. --NONE--
Industrial over medium & high density residential. 8.95 acres
Industrial over commercial. 37.65 acres
6.) Commercial over aquatic lands.
10.56 acres
7.) Commercial over public/institution semi-public.
28.46 acres
'8.) Commercial over low density residential.
.43.39 acre'"
9.) Commercial over Med. & high density residential.
168.50 acres
High density residential over aquatic lands.
1.58 acres
High density residential over public/institution semi-public.
27.09 acres
Low density residential over aquatic lands.
2.98 acres
Low density residential over public/institution semi-public.
10.10 acres
~4.) Public/institution semi-public over aquatic lands.--NONE
,15.) High density residential over low density residential.
114.78 acres
; , ; !
, : 16.)
17.)
Medium density residential over low density residential. '
74.84 acre"
High density residential over medium density residential.
19.53 acres
TOTAL 586.29 acres
.,..,
Aquatic lands & recreation/open space over public/institu-
tion semi-public. --NONE--
6.) Public/institution semi-public over industrial.
4.63 acres
e
1.)
2.)
~~~j~j~~~~~~~~~~~~~~~~~~~~~~~~~~j~
.....................................
3. )
.. ......... ...............
.... ...........................
......... .............
.... .... .............
........ ..............
.. .... .................
............................. ..
.... ..... ...........
...... ... .... ...........
4.)
.. .. .. .. .. .. .. .. .. .
..........
..........
.. .. .. .. .. .. .. .. .. ..
.. .. .. .. .. .. .. .. .. ..
.. .. .. .. .. .. .. .. .. ..
.. .. .. .. .. .. .. .. .. ..
..........
...........
.. .. .. .. .. .. .. .. .. ..
5.)
_COMPREHENSIVE PLAN - ZONING
COMPARISON
Planned for less intensive use than present zoning.
Aquatic lands & recreation/open space over industrial.
- -NONE--
Aquatic lands & recreation/open space over commercial.
103.99 acres
Aquatic lands & recreation/open space over high density
residential. 16.30 acres
Aquatic lands & recreation/open space over low density
residential. 158.63 acres
7.) Public/institution semi-public over commercial.
127.18 acres
8.) Public/institution semi-public over high density residential.
54.86 acres
9.) Public/institutioti semi-public over low density residential.
58.31 acres
0.) Low density residential over industrial.
- -NONE--
1.) Low density residential over commercial.
145.55 acres
High density residential over Industrial.
- -NONE--
High density residential over commercial.
675.62 acres
14.) Commercial over industrial.
34.20 acres
15.) Low density residential over high density residential.
253.67 acres
16.) Low density residential over medium density residential.
368.92 acres
17.) Medium density residential over high density residential.
216.02 acres
TOTAL 2217.88 acres
?~
EXISTING LAND USE - COMPREHENSIVE PLAN
COMPARISON
e
Planned for more intense use than present use.
1.) Industrial over recreation/open space.
.88 acres
2.) Industrial over public land.
24.33 acres
..................
..................
....................................
..................
..................
..................
..................
..................
.................................. ..
..................
..................
..................
..................
...................
.................................. ..
...................
3. )
Industrial over low density residential.
18.32 acres
.......... ........ ........
........ ....... ... ........
........ ......... .......
.... ........ .........
.................... .
.... ............ ......
......... ..... .......
.......... ............... ......
.. ......... ....... ...
.. ........-....... ......
4. )
Industrial over med/high density residential.
-- NONE--
.. .. .. .. .. .. .. .. .. ..
.. .. .. .. .. .. .. .. .. .. ..
..........
...........
.......... 5 )
...........
::::::::::::::::::::: .
Industrial over commercial.
181. 93 acres
6.) Commercial over recreation/open space.
6.65 acres
7.) Commercial over public land.
Public over rec/open space.
49.58 acres
140.73 acre'
139.12 acres
20.66 acres
18.82 acres
18.37 acres
19.74 acres
8.) Commercial over low density residential.
9.) Commercial over med/high density residential.
Med/high res. over rec/open space.
Med/high res. over public land.
Low density res. over rec/open space.
14.) Low density res. over public 1 an d .
" , , ,
, , 15.) High den. over low den. res.
I . , ' ) j
: I I , 16.) Med. den. low den.
' , over re$.
17.) High den. over med. den. res.
16.30 acres
45.91 acres
302.57 acree
63.32 acres
TOTAL 1067.73 ac re s
29
e
....................
.................................. ..
.................................. ..
.................................. ..
..................
.................................. ..
.................................. ..
..................
..................
..................
.................................. ..
.................................. ..
.................................. ..
.................................. ..
.................................. ..
..................
..................
.................................. ..
................................ ..
....................... .....
........... ...................
..... ....... .............
.................... ...........
.............................. ..
........... ...... ....
........... ..... .....
.. .. .. .. .. .. .. .. .. ..
...........
..........
..........
..........
...........
...........
...........
..........
.. .. .. .. .. .. .. .. .. .. ..
2DNING - EXISTING LAND USE
COMPARISON
Planned for less intensive use than present usage.
11. )
.Public over industrial.
6.20 acres
2. )
Public over commercial.
7.34 acres
3.) Public over medium & high density residential. 1. 08 acres
4.) Public over low density residential. 1. 60 acres
5. ) Public over institution/semi-public. 8.72 acres
6.) Institution semi-public over industrial. uNONE- -
7.) Institution semi-public over commercial. 4.44 acres
8.) Institution semi-public over high density residential.
1. 90 acres
9.) Institution semi-public over low density residential.
3.44 acres
Low density residential over industrial.
- -NONE--
Low density residential over commercial.
8.72 acres
Medium & high density residential over industrial.
1.53 acres
Medium & high density residential over commercial.
66.80 acres
14.)
Commercial over industrial.
u NONE u
15.)
Low density residential over high density residential.
52.11 acres
16.) Low density residential over medium density residential.
48.89 acres
17.) Medium density residential over high density residential.
99.63 acres
TOTAL 312.40 acres
30
APPENDIX 3
LAND AREA REQUIREMENTS FOR HOTEL FACILITIES
Hotel Rooms
Required
1975-80 -0-
1980-85 1,550
1985-90 1,650
1990-95 1,750
Total 4,950
Source: Hammer, Siler, George Associates
Acres
Required
-0-
62
66
70
198
e,
e
e
31
e
LAND AREA REQUIREMENTS FOR RESIDENTIAL GROWTH
Single Family Multi-Family
Housing Housing Total
1975-80 517 193 710
1980-85 445 148 593
1985-90 547 177 724
1990-95 681 214 895
Total 2,190 732 2,922
(e Source: Hammer, Siler, George Associates and the
City of Clearwater Planning Department
e
32
e
LAND AREA REQUIREMENTS
FOR INDUSTRIAL DEVELOPMENT
Expected Absorption
For Industrial Use Marketable Acres
(Acres) Required
1975-80 42 84
1980-85 33 66
1985-90 42 84
1990-95 55 110
172 344
e
Source: Hammer, Siler, George Associates and the
City of Clearwater Planning Department
e
33
e.
LAND AREA REQUIREMENTS FOR COMMERCIAL OFFICE SPACE
Gross Leasable Floor
Area (Square Feet) Acres Required
1975-80 434,035 25
1980-85 355,440 20
1985-90 473,045 27
1990-95 620,840 36
Total 1,883,360 108
Source: Hammer, Siler, George Associates and the City of
Clearwater Planning Department
.
e
34
--I
e:
LAND AREA REQUIREMENTS
FOR RETAIL TRADE
Gross Leasable
Store Area Acres
(Square F'ee t) Required
1975-80 571,187 52
1980-85 404,746 37
1985-90 559,932 51
1990-95 745,008 68
Total 2,280,873 208
Source: Hammer, Siler, George Associates and the
City of Clearwater Planning Department
.
'.
--
35
APPENDIX 4
Section 3:
THE PLAN FOR
· DOWNTOWN
CLEARWATER
(e
GOALS ANC OBJECTlVES
DOWNTOWN PUNNING GOALS
DOWNTOWN PLANNING OBJECTiVES
Si'ACE us:: F~OGF1A.v1
REiA1L
OF?lCE S?ACE
HOUSING
TiiANSl ENi" ACCOMMCDA iiONS
CONC1.US10NS
RellTAUZATION STFi.ATa~Y
Ce
f..ANC USE ANC,TFiANS?ORTATICN PUN
LANO USE PUN
TFiANS?O AT A TI ON ?LAN
URSAN DESIGN PUN
RETAIL ~AE AASA
WAlERFRONi" AASA
OTHER PROPOSALS
e~St .'
~ Ife:l,l Co"
1~6 ~
ie
<e
'.
36
I -
GOALS AND OBJECTIVES
The goals and objectives of the Downtown Plan.
provide the general framework to guide future
growth and development of the downtown area.
Their formulation has been based upon direct
community input from the Downtown Plan Task
Force and the community-wide survey question-
naire program. They represent the common area
of community agreement regarding the future
direction of downtown's development. They have
provided the foundation upon which the Plan for
Downtown Clearwater has been based.
DOWNTOWN PLANNING GOALS
1. Function
Strengthen Downtown Clearwater as a
muiti-use canter that will attract and serve
the people of the Clearwater area.
Downtown Clearwater should improve its
competitive position as an attractor of
people and business based upon the quality
and diversity of interrelated activities which
it offers. The revitalization of Downtown
should strengthen the traditional activities
of retail, finance, government. professional
and business services, residential, lodging,
recreation and culture to create a center
whic." will attract and serve those of all ages
who live, work, shop, and vacation in the
Clearwater area.
2
e
Regional Context
Strengthen Downtown Clearwater as a
.unique placa within the Tampa Bay Region
Downtown Clearwater's potential for
uniqueness is derived from its relative size,
setting and location. Its size enables a
greater diversity and choice of activities
than in smaller communities within the
region and less congestion and impersonality
than in larger cities. Its setting atop the
bluff overlooking the bay and gulf coast
provides a distinctive natural setting for itS
activities. Its location at the eastern end of
the causeway makes Downtown the gateway
to the vast natural, scenic, and recreational
resources provided by the. bay, the gulf ar.d
its coastal beaches. The revitalization of
Downtown should build upon these poten-
tials to craate a unique place which refle~..s
the distinct quality of living offered within
the Clearwater area. tit
3.
Community Role
Strengthen Downtown Clearwater's contri-
bution to the general well-being of the
community.
Downtown Clearwater should be strength-
ened to playa more vital role in maintaining
and enhancing the quality of life in
Clearwater. The revitalization effort should
be directed toward increasing Downtown's
contribution to the well-being of :.'1e
community through a) focusing on serving
the community, b) expanding employment
opportunities, c) improving business and
investment opportunities and d) increasing
tax revenues by means of stimulating private
redevelopment.
e
37
e.
4.
General Environmental Character
Improve the physical image of Downtown
Oearwater
Downtown Clearwater's physical image
must be improved to convey a strong sense
of placg for high-quaJity activities. An
attractive and personable setting must be
createtl that respects both the heritage and
naturaJ environmental features of Down-
town. The Downtown setting must be
conducive to a high level of personal servicg,
comfort, safety, and enjoyment. A pleasant
J:E!destlian-oriented environment should be
created within the downtown core area.
Special environmental features such as the
watariront, the bluff, mature live oak trees,
and historic landmarks should be properiy
reOJgniz2tJ, preserved, and enhancgd.
_5-
Implementation
Enable revitalization of Downtovm Clear.
water to be a suceassful and on.going
reaHty .
Revitalization of Downtown C1earNater
must be suCl:2SSfu1 and on-going. A work.
able plann ing/ decision-making/implemen-
tation program must be established and
institutionalized on a continuing basis
within the community. Succgss will require
establishing an on-going program which has
community support, pUblic/private sector
cooperation, realistic market (economjc)
support, creative design solutions and
effective implerr.entation mechanisms. Tne
current planning study must initiate such a
program and the community must carry it
on.
e
DOWNTOWN PLANNING OBJECTIVES
General Development Policy Objectives
1. Recognize and build upon the basic
strengths of the existing downtown area.
2 Focus on improving existing downtown
activity centers and, secondarily, on the
introduction of major new land uses.
3. Establish a compatible relationship between
development, natural features and clima-
tological conditions.
4. Recognize significant historic and architec-
turallandmarks.
Transport3tion Objectives
s. Make downtown highly ac::sssible from all
parts of me metropolitan area.
6. Provide a safe, efrlcient and convenient
downtown vehicular circulation system.
7. Provide pedestrian accommodations within
downtown that minimiz9 pedestrian/vehic-
ular conflictS.
a Provide convenient and attractive down-
town parking facilities.
9. Provide convenient and sheltered I=ubfic
transit steps.
10. Provide for truck delivery and service that
does not conflict with pedestrian and
vehicular circ-..:lation.
Land Use Objec-tives
11. Achieve a mix of mutually supportive land
uses in a compatible and func:ionally.
related arrangement.
12 Create a vital and attractive drJwntevm
shopping environment.
13. Promote downtoWTi as a canter for sovern-
ment, banking, professional and business
services. .
14. Promote additional residential and
hotel/motel accommodations.
15. Develop recreation and open space oppor-
tunities as a special feature and attraction of
downtown.
16. Create a development pattern which rein-
forcas existing activity canters and provides
an attractive interplay of building m~s
and open spacs.
38
SPACE USE PROGRAM
('
An achievable plan is of paramount importance
to Clearwater. The Plan for Downtown Clear-
water has been based upon a careful analysis of
market feasibility for attracting and accommo-
dating various potential future uses.
The market analysis for Downtown Clearwater
has estimated the potential SC3le and timing of
residential, office, retail and transient accommo-
dation development activity which could occur
within Downtown Clearwater by 1985. These
estimates are based solely upon market support
capabilities and not necessarily physical develop-
ment capabilities within Downtown.
RETAI L
Given the current conditions of Clearwater's
retail economy, new retail development within
downtown is likely to oceur, or be caused to
occur, only under certain circumstances and
where prudence and care attend the process. New
retail activity can be occasioned by:
(."
1. The replacement of existing stores, with
new merchants offering goods or services
different from those now furnished.
2. The relocation of stores both within the
CaD and, more importantly, from periph-
eral areas to it.
3. The identification of a specialty-shopping
trade not now served by the region's
existing complement of stores. For example, .
this could include inexpensive merchandise
keyed to a Iimite(j.income retirement
customer or specialized servi~s desired by
the general population but. not now
available in the area's existing planned
shopping centers.
4. Increased tourist patronage, particularly for
specialty shops and food and beverage
establishments.
5. Other types of stores and shops which o.
special merchandise or services that would
be supportable in a central location to the
entire region as that region (e.g., northern
. Pinellas and southern Pasco Counties)
experiences future population growth.
One special way of revitalizing downtown
Clearwater's retail posture is through the
introduction of a "theme" retail center. Numer-
ous projects of this type have been built in
various locations around the United States,
generally in older structures which have under-
gone architectural restoration. Examples of these
include the Cannery in San Francisco, Trolley
Square in Salt Lake City, Larimer Square in
Denver, Underground Atlanta and Church Street
Station in Orlando. These projects typically
combine food and beverage facilities with
specialty retail space. I n many cases they cater to
large numbers of tourists as well as area residents
and, indeed, can act as stimulants to the tourism
industry. For downtown Clearwater, such a
project is a potential eastern "an~hor" to .
retail core area. Illustratively, a theme retail-
entertainment center for Clearwater would
consist of the following elements:
''Theme'' Restaurants, Bar- Lounges
Number: 3-5
Average Size of Facility: 5,000 square feet of
gross leasable area (S.F. of G.LA)
Total Area: 15,000-25,000 S.F. of G.LA.
Retail Shops, Etc.
Ratio: Number Shops to Food-Beverage 4: I to 5: I
Number of Shops: 1 ~-25
Average Size of Shop: 800-1000 S.F.
Total Area: 9,600-25,000 S.F.
Grand T etaJ Area
Food-Beverage
Retail Shops, Inc.
15,000-25,000 S. F.
9,600-25.000 S.F.
25,000-50,000 S.F.
Parking 140-280 parking spaces
(1 space/175 S.F. of G.LA.)
e
39
OFFICE SPACE
tit There is currently an oversupply of downtown
office spac:e. CIearwater's future downtown
office spac:e market through 1985 is projected as
follows:
Timing: Beginning in 1980 or '81, after the
current supply of vacant space is absorbed.
Paca and Seale: Between 30,000 and 50,000
square feet per year, on the average, thereafter.
Land and Location: Oriented to Cleveland Street,
Osceola Avenue and the Court House area within
the Downtown Core Area; land requirements at a
t'/piC31 FAR (floor araa ratio) density of 1.0
would be approximately 1 aera per year.
HOUSING
The market potential for future downtown
housing is limited to multi.family units including
garden (rental) apartments, condominiums and
federally assisted elderly housing. Market poten.
It tials through 1985 can be summarized as follows:
Garden Apartments (or low-rise elevator build-
ings, no higher than four stories) marketed on a
rental basis.
lit
1: Demand for this product is weak at present,
but general market conCitions are e.xpected
to improve. Therefore, planning for new
apartment development can begin in 1977
for construction later that year.
2 HO'Ne'ler, as has been observed in many
communities in Florida and elsewhere across
the county, the current economic condi-
tions have made the private c!evelopment of
new rental apartment projects very difficult,
if no~ impossible. Rising constrUction and
financing costS, coupled with accslerated
construction costS have exceeded the
demonmated capacity of the market (or
willingness) to pay commensurately higher
rents than currently prevailing. Even under
the economics of development of saveral
years ago, a limited survey of newer rental
apartments in the central Clearwater area
indicates poor absorption of units. More.
over, obtaining financing for new residential
construction, at present, is virtually imposs.
ible (for both rental and condominium
development) .
:l As market conditions improve, and finan.
cing becomes available, small, locally-
developed projects (conventionally
finanC2d), likely with owner-managers, may
be developed in downtown Clearwater. A
reasonable pattern for these would be as
follows:
Beginning: 1977-78 (but-highly c:mtingent
on unpredictable conditions of mortgage
money market).
Paca and Scale: Average of twO projeC""..s per
year of 50 units each, or 100 units per year.
Land and Location: Typically on ptatted
(i.e., assembled lots), non-waterfront loea.
tion at densities of between 1 5 and 25
dwelling units per acre (or between 4.0 and
6.7 acres per year).
Condominiums (conventional mid to high-rise
condominiums)
1.
As indicated above, there is very litt!e
near-term prospea that a convemional
condominium is financeabfe in today's
mortgage money market. Moreover, there is
a sizeable inventOry of built but unsold
condominiums in the Cle3rwater area, and
until demand improves and this over-supply
is reduced no new condominium develop.
ment is likely to occur.
2
Development potentials ror downtown con-
dominiums can be characterized as follovvs:
Beginning: 1978
Pacs and Scale: One project per year,
average of 100 units per project.
Land and Absorption: Must be waterfront-
oriented to be competitive. Density 30-40
D.U. per acre, for annual land n~s of
25-3.3 acres.
40
Federally Assisted Elderly Housing
("
1. For federally assisted housing, oriented to a .
retirement market, demand appears
strongest of all sub-markets (one project
surveyed in Clearwater, Barbee Towers,
reports a waiting list of 250 persons). The
development of this type of apartment,
while predicated on demand to some extent,
is conditioned largely by the existence of a
sponsor organization (e.g., religious group)
and their demonstrated capacity to under-
take the project.
2 Development potentials for downtown fed-
erally assisted elderly housing can be
characterized as follows:
Beginning: 19n
Pace and Scale: One project every 3 years,
average of 150 units per project
Land and Absorption: Can be either
waterfront or non.water. Density at 40-50
D. U. per acre requires 1.0 to 1.25 acres per
year.
TRANSIENT ACCOMMODATIONS
As tourism in the Clearwater area expands,
increasing demand for new lodging accommoda-
tions will be felt. HOlNever, the occupancy levels
of existing establishments, particularly in the
downtown area, should be allowed to reach
minimum acceptable levels (65%-70%) before
new conStr'Uction is begun (unless removal from
inventory occurs).
For planning purposes, the following concept is
applicable for new ledging accommodations:
Timing: One new establishment about 1981 and
another about 1985.
Scale: Each establishment would be relatively
small, about 50-100 rooms.
Land and Location: A waterfront location would
be desirable, where the water amenity exposure
could contribute to higher absolute levels of
occupancy. Direct exposure to the most heavily
travelled road arterials is essential. Land area
requirements would be: 150 rooms @ 20-30
rooms/acre = 3.3-5.0 acres total.
CONCLUSIONS tit
The Space Use Program arising from the market
analysis of Downtown Clearwater depicts the
scale and timing of potential uses that could be
developed within downtown through 1985. This
program is summarized in Table 3.1.
An analysis was conducted to determine whether
these market support capabilities could be
physically accommodated within downtown.
Potential areas and sites for these projected uses
'M!re identified. As a result of this analysis, it has
been concluded that the projected market
support program can be accommodated ade-
quately within downtown, except possibly for
the residential program. It is questionable
whether the physical requirements of the total
residential market program can be realistically
accommodated because of two factors: 1) the
lack of available waterfront-oriented sites for
condominium development and 2) the major land
assembly effort required to assemble enough
adequately-sized residential development parcels,
currently under multiple ownership, to aChie
the projected program.
TASLE 3. 1: POTENT1AL SPACE USE PROGRAM
Downtown Clearwater, Florida. 1976-<15
1. Residential
Garden Apt.
High-Rise
Condo
Elderly
Space
800 D.U.
Land Area
32.54 a.
800 D.U.
450 D.U.
2050 O.U.
20-27 a.
9- 1 2 a.
61.93 acres
2. OffiC!! 150,OO0-250,COO s.f. ~ 5 acres
3. Retail.
Specialty Canter 25,000-50,000 s.f. 1.6-3.2 aclCs
4. Hotel/Motel. 150 rooms 5 . 7.5 acres
.1}1is does not indude re-use of existing retail space.
.
41
I
REVITALIZATION STRATEGY
e
The overall revitalization strategy for Downtown
Oearwater has evolved in response to down-
town's 1) existing problems and opportUnities, 2)
planning goals and objectives and 3) market
projections of space use. The basic strategy is
fourfold:
1. Articulation of Two Distinct Downtown
Districts
Future development decisions regarding
downtown land use and circulation should
be based upon a recognitior. of the t'NO
distinct ar.d functionally different districts
within downtown: the Downtown Core
Area and the Eastern Corridor Area. Future
downtown development would reinforcs
and articulate the essentially different but
o:lmplementary nature and functioning of
these two districts as follows:
e
a.) Downtown Cere Area-a pedestrian-
oriented, spacs-intansive, mixed-use
cantral area. Major componerns of thiS
area are the retail core area, the
government canter area, major banking
and offica centers, and the waterfront
area.
b.) Eastern Corridor Area-an automobile-
oriented, spaca-extensive commercial
use area. Major components of this
area are CIeve!and Plaza, the strip
commercial corridor areas of Cleveland
Street and Myrtle Avenue, and the
a~omobi1e servica canter area.
2
Bypass Through-Traffic
To facilitate a vital pedestrian-oriented
Downtown Core Area, it is essential to
re-route through-traffic around rather than
through the area:
e
a.) State Route 60 Redesisnation-from
Cleveland Street to the Cou.I:.Chestnut
one-way couplet streets.
b) Alternate State Route 19 Redesigna-
non-from Fort Harrison to Myrtle
Avenue.
3.
Focus on Key Project Areas
To restore a sense of investor confidence
and civic pride in downtown, it is essential
to focus earty attention on several key
project areas whose impact and image-
producing qualities will have maximum
effect:
a.} The Retail Cere Area: Tne retail cora
area along Cleveland Street has been
identified as a critical problem area. Its
declining economic viabilitv and
appearance require upgrading of its
functioning and appearan~ to at:ract
more shoppers.
b.) The Waterfront Area: The waterfront
is downtown's major physical asset. It
has vast potential to provide a major
public use attraction as well as serve as
a catalyst for downtown revitaliz1tion
because of the unique opportunities it
offers.
c.) Street Landscaping and Downtown
Gat2ways: A downtown nreet land-
scaping and entry feature program
would provide a simple. relatively
inexpensive but highly visible improve-
ment that would not only beautify the
area but could also provide it with a
much needed sense of . arrival and
special identity.
4.
-
Develop Additional Residential, Office
Space and Hotel/Motel Aa:ommodations in
a Supportive Manner as Market Conditions
Improve
42
I
r
LAND USE AND TRANSPORTATION PLAN It
LAND USE PLAN
Land uses of many kinds - shops, hotels, officss,
apartments, restaurants, entertainment .,.. are
what make a good downtown. The activities that
take placa on the various parcels of land, and the
interaction among those activities, are the things
that bring people into the area and make it a
vital, pleasant, even exciting p/aca to be.
- .
The Downtown Land Use Plan proposes that
future development within the Downtown Core
Area be comprised of a mixture of compatible
uses whic.~ are conducive to the development of a
compact, pedestrian-oriented central area. Pedes-
trian-oriented retail uses would be concentrated
along Cleveland Street between Oscsola and East
Avenues. Higher intensity office space uses would
be concentrated along the north Fort Harri-
son/Osceola corridor and the County Courthouse
area. Government offices uses would continue to
be concentrated in the government center are'a
Lower intensity office and business service u~
would be located along the Court-Chestnut Street
corridor west of Myrtle Avenue. The waterfront
area would be improved as a public resource
where downtown recreation, open space and
cultural activities would be focused.
The Eastern Corridor Area would continue as an
area predominantly composed of automobile-
oriented, space-extensive commercial uses along
eastern Cleveland Street and Myrtle Avenue.
Cleveland Plaza would be maintained as an
eastern downtown shopping/office subcenter.
The south Prospect Avenue area, where a large
concentration or auto parts, seNiee and repair
uses exist, would be further ceveloped as a major
auto service center area.
\..
Residel"!tial uses are proposed in both areas where
particular opportunities exist to either make
logical extensions of existing neighborhoods,
take advantage of amenity or view frontage or
create new neighborhood settings invclving more extensive area redevelopment in particuls.
opportunity areas not currently in residential
uses..
43
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44
TRANSPORTATION PLAN
To partake in downtown activities, people need.
transportation to get to and move within
Downtown. Transportation is vital to any city,
and most particularly its downtown area. The
transportation system of Downtown Clearwater
is composed of three primary elements: a
network of streets, public (bus) transit and
parking. Each of these elements is related to, and
affectS, the other parts. Streets provide traffic
ways for both private vehicles and mass transit.
Parking facilities, reached by the streets, serve as
terminal points of those streets. Transit seNes as
a distributor from parking facilities as well as an
imcortant adjunet to the street system. As with a
chain, the transportation system can only be as
strong as its weakest link. All elements must act
together effectively.
Vehico4lar Circulation Plan
A network of streets can only be effective when
each street is designed to playa specific role. If a
street is called upon to perform too many rcles~
it will be effective in none of them. The best
example of this in downtown Clearwater is
Cleveland Street - a street that purports to
provide swift movement for through traffic,
seNics to shops that abut it, access to parking
facilities just off it, and a safe and appropriate
environment for heavy pedestrian movements. In
practice Cleveland Street does none of these
things well. Through traffic has many conflicts;
progressive traffic flow can only be provided in
one direction. Access to parking Jots slip by
without being noticed by many drivers. Pedes-
trians must contend with heavy volumes of
passing cars, wait for a signa! indication before
entering the street, then dodge turning vehicles.
Potential shoppers riding on buses pass shops
without being able to alight, while people coming
from shops watch buses pass by without being
able to board.
The transportation plan for downtown Clear.
water would remove the through traffic from
Cleveland Street within the downtown core area.
The major east-west through traffic would be
rc-.Jted on Court and Chestnut StreetS, with a
It
secondary east-west route utilizing Drew Street
and the eastern part of Cleveland Street. In
similar fashion, the heavy north-south traffic
would be routed onto Myrtle Avenue, so that
Fort Harrison Avenue could function effectively
as a loeal service street. The pedestrian-oriented
streets would be Cleveland Street and Osceola
Avenue. Parking areas would be readily reached,
with proper signing, from the primary arterials:
Drew Street, Court Street, Chestnut Street, and
Myrtle Avenue.
East-west through traffic is already beginning to
bypass the core area as the result of the
completion of Pierce Boulevard which has made
Court-Chestnut the most convenient and direct
route to and from the beaeh. Redesignation of
SR 60 from Cleveland to Court-Chestnut
remains, however, a critical and necessary step to
remove state jurisdiction over Cleveland Street so
that the necessary street modifications within the
retail core area can be made.
e
The vehicular circulation plan also proposes to
improve East Avenue as the "Drew Street
connector" by creating northbound lanes east of
the railroad tracks. This is designed to alleviate
potential congestion, created by northbound
traffic on Myrtle desiring to turn left on Drew
Street, by encouraging westbound traffic on
Cleveland Street to use East Avenue for access to
Drew Street rather than Myrtle Avenue. The "T'
intersection at East and Drew more easily
facilitates left turns onto Drew Street.
In addition, it is proposed that Cleveland Street
be one-way eastbound between Memorial Cause-
way and Osceola. This is recommended to enable
left turns by eastbound traffic on Memorial
Causeway onto Drew Street. Without this change
left turns onto Drew Street would have to be
prohibited because t.'1e necessary traffic signaliza-
tion phasing to facilitate this left turn would
cause undue traffic delay and congestion at this
intersection.
An alternate solution to this troublesomee
intersaction problem at Memorial Causeway has
been suggested by A.M. Voorhees and Associates
45
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46
who are preparing the transportation element of
the Comprehensive Plan for Clearwater. This
alternative would simplify the intersection and '.
signalization problems by making Drew Street
one way westbound from Oscaola, as well as
Cleveland Street one-way eastbound from Memo-
rial Causeway to Osceola. This alternative is an
acceptable scheme for the traffic circulation in
regards to the Downtown Plan.
*T1U.FFlCSlGHA&..
3.3
MEMORIAL CAUSEWAY
INTERSECTION ALTERNATIVE
Source: Alan M. Voorhees & Auoe.. lne.
Public Transit Plan
The use of mass transit for daily trips to work.
extremely low in Clearwater. There is little
likelihood of significantly increasing work. trips
by transit without exorbitant subsidies. Never.
theleSs, transit is quite important to the
community, providing opportunities for many
residents and visitors who otherwise wou Id be
relatively immobile_
With minimal modification, the existing transit
system can measurably strengthen Downtown.
The Downtown transit plan calls for concen-
trating service primarily on Cleveland Street,
before reaehing the Pari< Street terminal. The
slight reroutings of five bus lines would provide
Oeveland Street with sarvice by saven bus lines
between Fort Harrison and Myrtle Avenues.
e
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TRANSIT PLAN
47
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Parking System
The proposed new developments for the
Downtown Core Area would require a total of
1,780 parking spacas. This represents an inerease
of about one-third over the current supply.
The provision of future parking within the
Downtown Core Area is an important issue_
Currentiy, most of the parking facilities within
the area are fragmented by ownership patterns.
There is a great need to (1) reorganize parking
into a coherent system, and (2) create an
informational signing program to effectively
dired: motorists to downtown parking facilities.
Furthermore, parking is a major land use in
downtown, requiring careful design treatment to
minimize its negative impacts on the visual
quality and character of downtown. Finally,
parking is costiy because of the amount of land it
requires. Parking requirements of existing zoning
may, in fact, create disincentives to private
downtown redevelopment because of the diffi-
culty and cost of acquiring sufficient land to
e meet these requirements.
The method by which future downtown facilities
are provided is a complex subject. I n view of the
need to create a more coherent and convenient
parking systam, as weH as to provide incentives
that will encourage private revitalization of
downtown, it is proposed that consideration be
given to adopting a policy that parking within the
Downtown Core Area I:e primarily a public
responsibility. In essence, it would be considered
as a pubiic utility. The existing policy of
providing public parking facilities would be
continued and expanded, under the responsibility
of either the City, Downtown Development
Board or parking authority. The parking agency
would be responsible for aCt:luiring and/or leasing
land to implement a downtown parking plan. The
l:enefits would be two-fold: (1) it would enable
the creation of a coherent parking system and
directional signing program with facilities that are
adequately located, sized, and organized, and (2)
it would provide a much needed economic
.. incentive to attract private redevelopment invest.
,. ment within the core area.
In furtherance of this policy, the public parking
agency would acquire and hold land of sufficient
size for efficient garage design at key locations
~thin the Downtown Core Area. Then, as
demand increases, the supply of parking can be
increased by building parking structures on these
lots. Future structured parking garages would be
oriented to long-term parking for downtown
employees, rather than shoppers, whose parking.
would be supplied primarily by surface lots
adjacent to the retail core atCa along Cleveland
Street_
There are two general locations for long-term
public parking garages. One would be in the
csntral area of the southern half of the
downtown core area, with immediate accass from
Court Street to serve future offic~ development
as well as the City and County government
csnters in this area. The second would be in the
csntral area of the northern half of the
downtown core area with immediate accass from
Drew Street to scrve future office development
and the new library. More specific parking system
improvements' are discussed in the Urban Design
Plan section.
48
URBAN DESIGN PLAN
The Urban Design Plan for Downtown Clearwat_
depicts the three-dimensional environmental
guidelines for the revitalization of the downtown
area through 1985. The primary focus is on two
general areas: the Setail Core Area and the
Waterfront Area. The Urban Design Plan also
depicts the design implications for future office
space, residential and hotel/motel facilities as
\\Ell as cartain government center and streetscape
elements.
-- --- -.. :..--
It
3.5
DOWNTOWN CLEARWArt:R 1985
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49
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Drew Street .
"'-nnectar
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Apartments
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Condominiums
Library
C<lachman
Park
Cleveland
.11
Jffi.
/' CLEARWATER HAFlSCR C:.A.
Harborview Park
50
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Specialty Food
Canter With
Office Space,
Hotel and/or
Elderly Housing
Above
Specialty
Retail
Canter
Improved
Retail
Parking
Infill
Retail
Pedestrian AHey,
To Parking
Improved
Retail
,Parking
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Cleveland Street
MaU '
Mass Brothers
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Retail
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3..7
RETAIL CORE AREA
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51
---,
e RETAILCORE AREA
The urban design plan for the retail core area
depictS the necessary upgrading to create a vital
and pleasant pedestrian-oriented shopping dis-
trict. Specific proposals to revitalize the area
include: a specialty retail center to serve as an
eastern retail anehor, a Oeveland Street semi-mall
to create a pleasant pedestrian shopping environ.
ment. improved retail area parking facilities,
storefront improvements and a Farmers Market.
1. A Specialty Retail Canter (Eastern Retail
Anchor)
A unique specialty retail csnter would be
created as an eastern anchor to. the retail
core area. This specialty center area would
be located on Cleveland Street benveen
Garden and East Avenues. It would serve to
counter.balance Maas Brothers, the western
anchor of the diStrict. and attract shoppers
along stores between the two anchors.
The basic ingredients of the eastern retail
anchor would be a specialty food and
entertainment-oriented canter on the south
side of Cleveland Street and a specialty
goods center, junior department store or
international bazaar on the north side of
Ceveland Street.
e
52
The specialty food and entertainment-
oriented center is envisioned as a series of
small shops and stores clustered around a
central landscaped court, opening into'
Cleveland Street, with outdoor cafes, flower
stands, shade trellises, etc. The center would
have a distinct "theme" and might include
such uses as theme or ethnic restaurants, a
dinner theatre, outdoor cafe, bookstore,
florist, butcher shop, fish and seafood shop,
fresh fruits and vegetable stand, crepe shop,
ice cream and frozen yogurt shop, wine and
cheese shop, a bakery, etc. It would be
linked to improved retail area parking
facilities to the west and the proposed
Farmers Market to the northeast.
In view of several design opportunities
present, as well as the potential for cre.'
a mixed-use center as part of the ea
retail anchor, three alternative concepts are
presented here for the specialty foods.
entertainment center site of the eastern
. retail anchor. These three sehemes range
from a modest proposal incorporating
several existing uses on the site to an
ambitious mixed-use complex incorporating
office space, a hotel and/or elderly housing
above the ground floor retail center.
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EASTERN RETAIL ANCHOR
3.9
53
e.
Alternative 1: This alternative, the most
modest of the three, would incorporate two
existing uses, a restaurant and office
building, into the design of the new
s;lecialty food-entertainment center. The
~nter would be organized around a series of
interconnected pedestrian courtyards, one
at which WCluld preserve an existing Uve
Oak tree on the site as its central featUre.
Alternative 2: This alternative would create
a totally new specialty food-entertainment
center, requiring total site clearance, that
would be organized around a central
courtyard spaca with o1Jtdoor cafes and
shopper amenities.
e
Alternative 3: This alternative, the most
ambitious, envisions a mixed use complex
incorporating offiee space and ei~'er a hotel
or elderly housing over the specialty
retail-entertainment center on t.,e ground
floor. While ruch a concept would be the
most difficult to put together and coor.
dinate, it would provide the strongest
anchor of the three alternative schemes.
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A three block long street mall would be
created along Cleveland Street from Osceola
to East Avenue. The design concapt for the
Cleveland Street Mall proposes to create a
pleasant pedestrian shopping environment
while retaining two-way vehicular aceess
within the entire three blocks of the mall.
Vehicular traffic wi:hin the mall area would
be limited to two lanes, one eastbound.
one westbound. Flanking these traffic fa
would be parallel short.term parking/un-
loading areas, bus stops and landscaped
planter areas. The landscape planters would
.be located near street intersections to "neck
down" the street width to the two moving
lanes as well as within the block to define
parking, bus stop areas, and midblock
pedestrian crossing areas.
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ClEVELAND STREET MALL
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The character and functioning of the
sidewalks would be improved in several
ways. The landscape planters would intra- .
duce street trees and landscape greenery to
provide a more pleasant pedestrian-oriented
shopping environment, buffered from vehic-
ular traffic. The planters would incorporate
not only landscaping but also seating areas
and drinking fountains for shoppers.
cross.walk demarcation stripes to define the
pedestrian street crossing zone. MidblOC.
pedestrian crossings are also proposed t
facilitate easy access to stores on either side
of the street.
.Existing midblock alleyways would be
converted into landscaped pedestrianways,
directly connecting the mall to improved
retail parking areas behind the stores.
Special sidewalk treatments at street inter-
section areas are proposed including special
paving; curb cut ramps for the handicapped,
elderly and baby carriages; as 'M!1I as
ImprovementS to building canopies and
awnings are proposed to provide continuous
protection from sun glare and inclement
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57
e,
'Neather conditions. The proposed landscape
treatment of the mall would also serve to
shade and cool the area on hot, sunny days,
making Shopping more comfortable_ In
addition, bus shelters are incorporated into
the mall design at bus stop areas.
Assorted streetscape elements ~ch as street
lighting, traffic control boxes, information
kiosks, ete. would be located in the sidewalk
buffer area along curb lines so as not to
impede pedestrian flow and window.
shopping activity.
The design conC2pt for the Cleveland Street
Mall provides not only a pedestrian
shopping environment which is pleasant,
attractive, comfortable, safe and convenient
but also retains vehicular accsss within the
mall and provides short-term parking,
unloading and sheltered bus stops immedi.
ately in front or stores_
.,
....
Parking Improvements
e
Retail parking in the eastern retail core area
would be consolidatarl and raorganized in
suriaca lots directiy behind the stores.
Existing alleys in this area would be
converted to landscaped pedestrianways
linking the retail parking to the Cleveland
Street. storefronts. Several smaller buildings
would be cemolished to provide expanded,
convenient and comprehendable parking
facilities fcr shoppe~
4.
Other Retail Core Arsa Proposals
e
Several areas along Cleveland Street are void
of retail activity because of vacant lots and
stores. Tnese areas should be infilled with
appropriate retail uses to provide contin-
uous I'Stail frontage along the street mall.
Vacant stores, with adequate promotion and
entrepreneurial vision, would be leased to an
appropriate type or single retail tenant or
possibly as a small specialty center com-
posed of a number of independent mer-
chants under one roor who specialize in
some related type of merchandize, i.e., artS
and crafts, ete.
Improvements to storefronts and signing
should be subject to design guidelines and
standards that will create a more harmo-
nious design character for the retail core
area. Improvements to storefTonts and
signing could be developed around some
consistent and unifying design theme to give
the area a unique identity.
A mall entrance feature with landscaping
and an informational kiosk and/or clock
would be located at Cleveland and East
Avenue.
Another retail concept illustrated in the
Urban Design Plan is the possibility of Maas
Srothers creating a roof-top retail area on
top of their lower (western) wing. This is
currently a roof-top parking area connected
by a ramp to their surface parking lot area.
Uses here might include a garden shop,
outdoor cafe overlooking Clearwater
Harbor, etc. The Urban Design Plan depicts
the physical opportunity that is present to
make this proposal a segment of a bluff-top
walkway connecting the new Library to
Oty Hall. This walkway network would
utilize the existing auto ramp cn t'1e north
side, and a proposed second level walkway
over Cleveland Street on the southside from
the roof.top retail level to the top of the
bluff behind Calvary Baptist Church.
5. The Farmer's Market
Tne Urban Design Plan proposas a Farmers
Market on a two block area fronti n9 en
Myrtle Avenue. This location is conve-
niently located for pedestrian acc~ss from
the eastern retail anchor as well as
automobile access from Myrtle and Caurt-
Chestrlut Streets. Its Myrtle Avenue front-
age provides good traffic exposure.
The Farmers Market would build upon t.~e
existing Bilgore Fruit vending area and make
adaptive reuse of the existing warehouse and
sheds to house portions or the market.
58
. WIIU
Drop-Off & Bus Parking
Street Landscaping
Outdoor City
Historical Exhibit
Trellis PavilJion
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Shade Trees
Waterfront Walk
Veteran's Memorial
Gateway Feature
Bait & Paddle Boat
~ Rental Shop
~ing Pier
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Bluff.Top
Walkway
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Stairs & Decks
Ferry Boat
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Deck
Historic Ship
. City Hall
Parking
Am ph itheataf
Arts & Culture Cante
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Street Landscaping
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WATERFRONT AREA
3.14
59
tit WATERFRONT AREA
The Urban Design Plan for the Waterfront Area
proposes its improvement as a public use
resource, attracting and serving the entire
community while appropriately reflecting its
unique setting. The Urban Design Plan envisions a
two-park system - one active and one passive in
nature - that are S'tronsiy linked together by a
walkway network atop the bluff and along the
water's edge_
Coachman Park
Coachman Park would be improved to reinforce
its existing character as a more restful and
contemplative ,. oas is", complementing the pro-
posed new downtown library. Proposed improve-
ments would attract more widespread public use
while reinforcing its existing charactar. These
improvementS inc!ude: 1) an outdoor historical
exhibit depicting the heritage of the city, 2) a
trellis pavilion providing shaded seating areas and
a 3) additional shade trees and landscaping along
_ the park's lower open areas.
Harborview Park
The proposed Harbonfiew Park would serve as
the central open space focal point of downtown.
It would I:e a civic pari< linking the city to its
'Naterlront. A variety of public uses are proposad
that respond to a wide spectrum of community
needs.
The existing parking lot for City Hall employees
and the city tennis c;:ourt facilities would be
replacsd by a resource-related park whose public
uses would echo its unique setting between the
land and the water, the urban and the natural
environment. Cantral features of the park area
l::etwesn the bluff and Pierce Boulevard would be
an interpretative trail, a civic amphitheatre and
an arts and culture center. An interpretative trail
system along the bluff west of Calvary Baptist
Church would explain the phenomenon of the
coastal bluff and its native vegetation. This would
el::e linked to an art museum, interpretative center,
and arts and crafts complex oriented to the
ClearWater area's heritage and culture. The art
museum would serve as the focal point of the
center and possibly could be housad in an
architecturally historic house that could be
moved to the park. An amphitheatre for outdoor
concerts and civic ceremonial purposes is
proposed west of City Hall, employing the
natural land form created by the bluff and
providing scenic vistas of the harbor from its
seating areas.
The park would extend to the water's edge
between Memorial Causeway and Smith's Finger,
linked by a pedestrian crossing area of Pierce
Boulevard. Here, a variety of public waterfront
uses would provide a ~ntral focoJs at the wetter's
edge. These uses might include an historic boat
mooring, a ferry boat landing to take people to
the Caladesi Island State Park, a restaurant boat,
. a fishing bait and paddle boat rental shop. A city
marina facility is also proposed in the sOl.:tnem
half of the cove, set back from the old Causeway
so as to not interfere with its use as a fishing pier.
Tne Veteran's Memorial at the base of the
Causeway would be reinforcad wit.1oj flag banners
and flower gardens to highlight the area as a
memorial which also serves as a gateway to the
city.
Pedestrian Linkages
Pedestrian linkases between these two parks
would be provided by a bluff-top walkway and a
waterfront wai kway.
The bluff-top walkway concept would extend
southward from the proposed library, thrcugh
the proposed Maas Brothers roof-top retail area,
and over Cleveland Street' on a s~ond level
walkway to the bluff-top area behind C:lvary
Baptist Church. Here the ..wI kway vvouJd become
an interpretative trail along the bfu ff-top. The
interpretative trail would lead to an obseNation
deck which would serve as a pivotal point linked
to both City Hall atop the bluff and the arts and
culture center below the bluff. A winding
stairway with decks would lead from d,e blumop
to the arts and coJlture canter. From here, the
park would be connected to t.~e waterfront by a
pedestrian crosswalk over Pierce Boulevard,
possibly controlled by a pedestrian-actuated
traffic signal.
60
The waterfront walkway along the harbor's edge
would be improved by additional landscaping and
pedestrian amenities such as benches and water.
fountains.
Additional street landscaping along Pierce Boule-
vard and Drew Street is recommended to buffer
views over surface parking lots and to further
beautify the waterfront areas.
Parking
Convenience parking would be retained in the
waterfront area~ Bus drop-off areas would be
added for groups using the park. Since the park's
high-use periods, such as for a concert, would
generally occur during off-hours in the evenings
and weekends, the waterfront park system would
rely upon existing downtown parking such as at
Mass Brothers for its overflow parking needs.
Existing city employee parking located in the
park site would be relocated to either a new
proposed city-county government csnter parking
structure, or possibly .to a below-grade garage
underneath the existing surface parking lot in
front of City Hall. Additional surface parking
could also be provided to the west of the office
building next to City Hall along Pierce Street.
OTHER PROPOSALS
Housing
e
The Urban Design Plan envisions several major
new downtown housing developments to provide
a larger, 24-hour.a day resident population. These
proposals include elderly housing, rental apart-
ments and condominiums.
Elderly Housing:
1. Fort Harrison Avenue Site: This site on the
northwest quadrant of Fort Harrison and
Pierce Street would provide elderly housing
convenient to both the retail core area and
the bus layover station. The layover station
would be shifted eastward onto the existing
city parking lot to accommodate the site
requirements for the elderly housing. The
improved alignment of PierC8 Street at Fort
Harrison Avenue would be coordinated with
this project.
2 Haven House Site (Court and Ewing): This
site would provide elderly housing adjacsnt
to the Haven House elderly center. rA
Urban Design Plan envisions the phasing ~
development to allow the existing Haven
.House facility to relocate to the Winn-Dixie
Store, which would be converted into a
Clearwater community center for the
elderly. The center would provide a
csntra/ly and conveniently located recre-
ational, educational and meeting facility for
the elderly citizens of Clearwater. This
complex would also seNe to reinforce a
proposed landscape entry featu re into
downtown at the fork of Court and
Chestnut Streets.
3. Eastern Retail Anchor Site: Elderly housing
could potentially be located above the retail
space of the Eastern Retail An c.'1 or at
Cleveland and East Avenue, as part of a
mixed-use development concept.
Apartments:
4. Drew Street Opportunity Area: This site,
bounded by Fort Harrison, East Avenu-.
. Hendricks and Jones Streets, represents"
. major redevelopment opportunity area for
61
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I -.I. 3.15 HOUSING
e
downtown residential usas. Most of the area
is characterized by old and obsolete
buildings and usas_ A major land assembly
effort is required to aCquire sufficient
property to create a neighborhood setting.
The Urban Design Plan envisions both
mid-rise and garden apartments that would
be arranged into an in-town neighborhood,
facilitated by vacating Garden Street
between Hendrieks and Jones Streets.
5. Booth Street Area: This site provides a
redevelopment opportunity area for lower
density garden apartments that 'NOuld blend
into the existing neighborhood satting while
preserving the existing mature live oak trees
that provide the site with a major natural
amenity .
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6. Grey Moss Inn Site: Tn is site offers
potential for either rehabilitation of the
existing Inn strUcture or a new building to
provide in-town apartments.
<Andominiums:
7. Oak Bluffs Site: Tnis site, atop the bluff and
adjacsnt to the new Oak Bluffs high-rise,
offers a potential downtown condominium
site with waterfront views.
8.. North Fort Harrison Site: This site, located
between Drew and Jones Streets, provides a
potential redevelopment area for a condo-
minium, also providing necessary waterfront
views.
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62
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~ 3.j6 OFFICE SPACE
OfficeSpacs
New downtown office buildings are envisioned in .
the Urban Design Plan to reinforce and
strengthen the basic land use structure of the
Downtown Core Area. Offiee space proposals are
located in three general areas:
1. County Courthouse Area - The general
clustering of lawyers, title companies and
other similar offices in the Courthouse area
re fleets the demand generated by the
County Courthouse and Clerk's office.
Vacant parcels, as well as marginal buildings
and uses in the surrounding area to the east
of the Courthouse, provide potential sites
for office development having quiek access
to both the Courthouse as well as
Court-Chestnut street.
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2.
North Oscsola Avenue Area - seve.
potential office space development areas
exist fronting on North Osceola Avenue.
These sites are currently used for surface
.parking lots and drive-in banking facilities.
They provide excellent opportunities for
waterfront views and, therefore, are most
appropriate for more prestigious and higher
density downtown office space facilities.
3.
Eastern Anchor Area - Office space could
potentially be located above specialty retail
sp3cs at the Eastern Retail Anchor at
Cleveland Street and East Avenue. Such
development would serve to reinforce the
proposed eastern retail anchor and be part
of a mixed-use development concept.
-c:..~
63
Hotel/Motel Aco:lmmodations
tiThe Urban Design Plan envisions three potential
downtown areas for new hotel/motel accommo-
dations.
1. Sand Castle I nn Expansion - Projected
demand could be aa:ommodated by expan-
ding of the existing Sand Castle I nn. This is
the only waterfront-oriented site available
within downtown. To aceommodate this
expansion, the upper most (eastern) wing of
the mote! could be replaced by a higher
building whose additional rooms would view
Oearwater Harbor over the lower western
wings of the existing motel.
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~.~~~lccCf;' ~ " ... ~!~?;f2-:~~;J
-'. ~ -~ ': -...l t h - - ~.: :: ~--;..~
/ . - i ,: [~,,_ . W !....:: JJ~ ' ~." lxo:'"~3 ~It~~-...,c---~~~ ;-<:
..... ~~ ~._ co . r"l~ J.l . ....;., -.:....' ........ ~_~~~ ....,-..~........(.,.__
~ u",,"",,- tIIJ,..... ,." '-.-- -. - _,___"'_ ..- . . .~ _ "_'- ."~.'
'- . 3.17 HOTEL/MOTEL
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2. Myrtle/Court-Chestnut Intersection Area -
This area, at the intersection of the
proposed redesignation of SR 60 and SR
Alt. 19, provides a potential motel develop-
ment area whieh has good traffic exposure.
3. Eastern Anchor Area - This area, while
without the locational attributes of the
other two alternatives, would be convenient
to downtown business activities and help
reinfores the eastern retail anchor as part of
a mixed-use development concept.
...
...
-c:.-"'VEORl
64
Other Projects and Considerations
1. Downtown Ubrary - The new downtown.
library facility, replacing the existing library
on North Osceola Avenue, is a potential
"early start" project which would be
coordinated with improvements to Coach-
man Park.
Design Plan along .major downtown art8
streets will serve to visually reinforce down.
town entry routes, beautify the downtown
area, and provide climate control from sun
.glare and heat reflection. Three downtown
gateway features are proposed: 1} at the
entry to the Cleveland Street Mall at East
Avenue, 2) at the fork of Court and
Chestnut Streets near Greenwood Avenue
and 3) at the Veterans Memorial adjacent to
Memorial Causeway and Pierce Boulevard.
2. City-County Government Parking Structure
- The Urban Design Plan envisions a joint
city-county parking structure on the north-
east comer of Osceola and Court (Haven) as
the most centrally convenient, available and
accessible site within the Government
Center Area.
4. Traffic Signing System . The proposed
downtown signing program would be com-
posed of a coordinated system of signs with
a unique high-quality graphic design and
special downtown logo. The signing system
would serve to 1} direct motorists to major
3. Street Landscaping and Downtown Gate-
ways . The street landscaping and down-
town gateways proposed in the Urban
...
...
" ~ I J
C:~VJ' ,.J:e' e~ .~-.:-. '~~;:'r~=t ~ _
. I r--. _~,. i ~.7(-/'o-l.:. . :::.= ..
.~>.-: i-..~~ . ,."'_7"'~~;'-;ii",i :;
J----~'U"l...,....,~ ~ - -:m=i ,,.~....-! ~=".'-"""""'" ..
~~~_~J_ ..' ==:)==':l?'>t_.....~..;;~p~~n=~~TTt.::=::!'c.tV
-'"')'... ~.. "-4 ,,"Go'" ~-:~-iMo-! '" - ~.r ~ ..
'~3i ~~ ';. , --= 'i' za:.,. ~ ."..! 5 : ~:;: --
,-, ~~~~fi -;c- r-':='L.~~' .r':..-. ;~ ~. .,~~.[~~
..... - ---z:=~ .. ~ -o""CC...- ~.. c--t- ....
-'-. Jc.~ ~C' - ..,.,.."....:.:. ~=..; ---t - - .
~. . H ~ qJ c 1 ' ~ ~ ,-1i ~C' i . ~ _ ! ~ 2 ~.:
~:'--. .4 J~~ ~4c~. ~~--J ~~ r .",~~~=-~ 3.:.~~ -:----
I~~"'>' '#i~~ ~= ~ n- ~ ~ , ai,t Z .....,: ~."., ~ 2
t"l ~ ~~~i ~.:: I r:J.: ~ ~::
,... -~. ~ ~ ~... ~. I Q' ,_ ___ "".. _ _
m 3 ~.# ~.C" '~ ~.....=- ~ Jt
~ ~:~~~~_. ~ - "--.~ ~~!,!!"- ""... "-"'"'""
:;!: ~ . . .. ~~- '':''~~ 1 ~~ lJ ::, _ ,iL' , :
~ ~,. ,.~,. - - - QO'O ~ .~ 1. ll'-~. d :
S .:::~~ffE~~~ -gU~~ :;::_~~ €~ .-=-=-,:
..:::........... _li.E.~2i~ r. ;. 3 G:' r~. :./ -== - -.,.--; e. ; - ~ - >;;-
~ -" ..... --=-- ...~. I S ~~ _ --' "- . I I ..,; ~~ _ 'I ." _.::
. '(--- ~ e.': '~;, f": ~~ -'LL.... _.~ -' -/ ~. .' ,..: I I '--....,:;:;
~ ~ .... ''<.~ ~ Q - ....... r--,.- -, I;' ~(L. ~:l!::
~ ,.,.-~~;]i-II 2-l--'r [f~-c.~F:~~~~~.--:~~~ -===
, _.__...._ ~ - I ~ ~..
( -~......: I i"_.~ ~ II .~,:
" -~ ;-~ ~~ n..: : ':- t...-J i.:: ~-,
. ~-- - ~____.-1,-- __... -0 C _ I,
. - ,~'.....:--~i 1 m4. -J1 - . '- --1'- s r ;
~ :." - m.) \ I ~~ E i-'=':;:~l
'~ .. . . ~ . ~ - \ .0; ~t
f'c~~-':; I -;:-. & a . -~i~~;---:-~~~[-.
~~~~::n::~... ~'~!-]!< ~~
@ / ~ 1(:,___..:: 'L14~2c ~~~'"I_~:cAEs.~~__c-_~.
I ~ ---~~. 3.18 ofAERPROJECTS'~
65
-
downtown activity canters 2) direct motor-
istS to publie parking facilities and 3)
provide a special identification for the
downtown area.
Critical locations for the traffic signing are.
1) the CourtlCleveland/Gulf-to-8ay intersec-
tion, 2) the fork of Court and Chestnut
Street near Greenwood Avenue, 3) the
Oeveland Street and Myrtie Avenue inter-
section, 4) the Memorial Causeway and
Pierca Boulevard intersection and 5) the
Court, Chestnut and Drew Street intersec-
tions with Fort Harrison Avenue.
5. Cleveland Plaza Improvements - The Cleve-
land Plaza Shopping Canter would be up-
dated as a downtown subcenter and eastern
gateway to the downtown area. Proposed
improvements include additional straet and
parking lot landscaping and storefront reno-
vation.
_S. Future City and County Government
Expansion - While there are no acknow-
ledged expansion plans for either City or
County government space within the gov-
ernment center area, the following general
recommendations are proposad:
e
a. Future City office space should be
consolidated near the existing City Hall
whenever possible, to not only enable
their efficient operation and SC!rvice to
the public but. also strengthen the
Downtown Core Area's general vitality.
b. Future County government offica
space should generally be located to
the west of existing facilities on
county-owned land presently used as
surface parking lots for employees.
This would be facilitated by an em-
ployee parking structure that would
free this land for office space expan-
sion.
66
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Cl'n"
,1J!JCURr..
ORDI::.iA:\CE NO. 2213
AN ORDlc-L';'NCZ OF THE CITY OF CLZA.?V{A TER, FLORIDA,
COMPLYING WITH THE "LOCAL GOVER,,"ME::.iT COMPRE-
HENSIVE ?LA:'0II:'-1G ACT OF 1973", AS AMENDED;
ADOPTING THE PARKS AND RECRE--\TION ELEMENT AS
PART OF THE COMPREHE:'-1SIVZ PL';'N FOR THE ENTIRE
CITY OF CLEAR WA TER, FLORIDA; ADOPTING THE
ATTACHED ZXEI3IT; PROVIDING FOR PROPER PiOTICE
OF PROPOSED ENACTMENT; AND PROVIDING FOR THE
EFFECIIVE DA TE OF THIS ORDINANCE.
BE IT ORDAI:-<ED BY THE CITY COMMISSION OF THE CITY
OF CLEARWATER, FLORIDA:
PIar.. as =equired '-:Jy :b.e It!....ocal Government Com?renensive Planl1ing ~A.ct of
Section 1. L""le ?a.rks and Recreat~on Ele!':"'.ent of the COr:lprener:sive
197511, as aoended, and as set far:h in t...1.:e a.ctac~:d cX::::'C:llt~ desc:r~=cci as:
Composite Ex..'tibit A - Document entitled" Executive
Summary, Parks and Recreation E:le!':'le~t oi :l:e Cor:::-
prenensive Planl', consisti.:lg of 31 pages,
is adopted in accorc.a:J.ce ~.vi:...1.:L t..~e 1lLocal Gover::....~ent Cor::?!'ehe!:si?~ ?~a;1.:J.i...'"1g
.A..ct of 1973:1, as a::;,..er..ded, :or the e:1~:re Ci:y oJ! Clear-:.va:er, Florida.
Sect:on 2. T~e 2.~:2c21cd ~.:Cib:.: de5c:-:bec. 2.3:
Com,?osil:c Zxb.i~i~.;' - Doc~-ne::.t cn~itlcd "Zxec'..:..tive
Surr.mary, Parks and Recreation El~:::..e:l!: oi ::..."1.e Com-
prehensive Plan", consisting of 31 ?ages.
is adopted. as ?art oi :his o!"c.i~ance 2.S i! it \vas S ~t ior:..~ l!: :cl1 herei.::.
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,_,,..; \:.t~ ';)y :his
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Sec:io!1 3.
For :.'-:e ?u=?oses oi t:t~s o:-c.:.::.a.:1ce, ....'" area e!:cor:-_?asse~
0:':11.:la.::ce snall ~e :::'esc=i~ed as:
T~e e~:i:'e area .,vi::...."-:i...~ ..~o:> ?rese::: ':1ou:1.c.a:-:es .::)! :~e
Cit"',.f of Clear:val:e.:- a.s 3i..:C~ :'OL:...",:c.a:':es a=,= ex?a:1cec. a::d.
reaeii!led ':JY :-'::"--='=8 a::.::.eX3.::'Or'..5, a::.c. :::e C~~'/ or Cl~a:-',va:er
se!'vice area 'Nt:ic:;. se:-"..ice 2o=ea :'5 .:u::-::-:e:' c.esc:,:.':)ec. as :ol.lo'v:3:
:OoU-"1c.ec. on :..~e .,Iles: ':Jy ':-~e GuLf oi :V~exico, 0:1 :.'-:e ~i;:>:,:~ ~y
the ce:1.terli:1.e or :Ju~eci::1 Pass; :he::.ce Souchcas:::e:-ly :0 a ,?oi::c
in St. ';ose?c: 5 50\1":::2. a.??:-ox::-::a~ciy 700 feet So'..:~:te3.5t of
)"loonsni:1e :sla.::ci, excl'..;.c.:~g ).':oo~s::.i~e :sLa.::c.; :::e:1ce s.'..:e =:2.5:
:~rol.;.gh .st. j:)se?r.: 5 Sou---:c. a::c. 3.1o~g -.....-:::0:1, 5c~e~: :0 :<ee::e ?,:Ja~:
:hence due :-io:-':~ :0 COw-lt:y R.oa.d. 34:; =-'-:~::ce c..~e ~as:: ::0 :::e
Souche=~y ex:e::510:1 oi County ?.oa::: 70; :~ence s.ue )..'o:-:~ ato::g
COu...."1i:~,: ?,oa.c -,:, :'~ 3t3.:~ ?",Jac. 53C; :::e::ce ',:'~.le '::3.5:: :0 \..--. 3. :::'5:-:'.~:a'::
19, exc~'J.d:.::g :..'-:e :>.L.'"1ec.i~ :::.c.us::=ia: ?a:-:..;:; :.."-:e::ce c.1.:.e ):0:'::.. :0
C;.::-le'.,/ C:ee_<; :':'-:e::ce '::a3:e=>:: :.:> ~',:c:.l',,:~:=:,_- 3\)::;:~-: ?.:a.:.:
:~ence d:le So...::::' a??r:)x:...--:-.a:ely S, ~CO fee: :c. C::',:-c)',\":-.ec. ?:",J?e::-:-:;
:~e:1ce .=....:.e ':::a5: 3.??:-::x:....-::a:.::~:.. 2. ~I~':; :'ee:: ::.e::'~e ~-:~):-:i 33~
:'ee:; :':'-_e::ce '::a3: :-j :ee::: :::e::ce :..'..:e So',,:,:.:-. 3.??::;x:.:-:-.a:e~.:';, ~:~.;
:eet:o State ?,~ac. 56C; ':....~e:-.c~ ',c:-=.5: E.=-.::' .so~,,:::_'.v~5::8 ~'.~':;'~'_~:2::-
300:':: ?J.:!::': ::-:e::c-= :....:e 5<~'':'':2 :: :::-? ~~::::::.-:~.::-e :: A~~~~3.:~:' ,=-:-"='~~::
:::e::c2 :::~.5: ~:~r:; ~~.l':'.:.ga:o: C:-ee:.: a:-:c. :::~ sy..::~-:-=:-:;. ~::O:'2 0:
..1..::i2::=':::::- :"'3.~:::~ ~::::. .-='_:,~:.-= :J::':~ ::: :>J;:~: :3 =2.-::''': :l:".-:" -.~.-?::2:
- ~ ,.. ._,
_:':":"'.;;.3. "::2.-.-::'u :.__= '.~:~',::: ::._:= '----_-22..:-.-::~:_:=:-
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an.::' ?L'1ellas-Billsborough Cou...-::y li..."'T;.its; the~ce due South
to the Court::ley Carr'.podl Causeway; t.11ence Westedy,
Sout..'1westerly, and Southe=ly along the shore1i:1e of Old
Tampa Bay to the centerline of Allen's Creel<; t..'1ence East
to u.S. 19: t..'1ence Nort.h to Bellair Road extended; ,hence
due West on Bellair Road to the Seaboard Coast. Li:le Railroad
tracks; ':...~e!lce due !'rorL~ to and along Ft. Harrison _-\venue
to D Screet; t.."ence due ~Nest approxl.."nately 150 feet; chence
due )lorth to B Stl.eet; thence due West to 4th Avenue; thence
due North to ",0\. Street; ~~ence due East to Ft. Har:-ison _-\venue;
thence due North to Watkins Street; thence due West to Waters
Street; thence due 01or:..'1 ap?roxi..-nate1y 700 feet; thence West
to the Intracoastal Water;vay; thence South--Southwest
approxir.1at.ely 6, 000 feet; t...'1ence due West to the Gul.i of ",lexico.
Section 4. All required a:ld optional elements a::ld ?arts of the
Comprehe:lsive Pla:l as required or- allo,"ved by ~'1e TrLocal Gover:'..n1e~t
Comprehensive Planni:lg .~ct of 19i5:', a.s amended.. whic;;. =.=e set .:o:-:h 1"" :-t.:e
attached ex..'1ibit adopted herei::l, are hereby adopted as ?art of t.his o:,di::a::lce.
Section 5. _~ll developr::;.enc '...lndercaken and all actions :aken i:1 !"ega:-d
to development orders, allla~d develo~)!'nent :-egula:ions ~!:ac~ed or a:ner...c.ed
shall be co::.sisten~ wit." t....~is Plan and su.ch ~le:ne::1t and ?a!"t :hereoi 1:1 :-ega=d
to the land covered oy ~is eleC"i.e.::t a.nd ?or':ions of ~~e Com?1"e::~!lsiV'e ?~an
as hereby adopted shall be cons:'S;:enc \V::..tl t:-:i.s Plan a::c. e:a.c~ ele.:-:-..e::: a.~ci
part t....lereor.
Sec:ion 6. Notice oi t~e ?ro?o.5cc c!:.3.cL-:lent ai =~~.s ':):'~::.a::ce ::3.S
been pro?e=ly aciver:ised :::1 3. ::e~.t.ts:?a?e!" of ger:.e:-al c:.=c::.1at:8:J. ~:l 3.c:::>1":::a:'.ce
wit..'-1. Section 166.0~1, Florida Sca:'..lces.
SeC::'8n 7. ..-\11 public ~ea::'::5s and ?u~lic pa:-ci.ci.?a::.an ~e;l.:i=ec.
:)urs~a::C:::l .3ec::.on 163.3131, ?:ortc.3. .3tat'1:es, a:lC ~ec::'Jn :-:3. 31~~, ?::1:-::::'3.
\ Sca:utes, ,c....s ?receded c..':e cOJr.s::::e:,a::'-:J:: OJ: ::1.is o:,d:::.3.::ce,
;'!;.
>
~, ner.ce:o:,:i ado?ced fa:, the ?u:'?05eS or SeC:'o:: 103.313.. ,,-), ?L::r,ca
"'\ 0
#~ .;o"1d shall become effective '...":".=edi...:eLy ',"?o" i:s ?assage,
~ ~ ?ASSC::.:J 0,,; ::1::1.5:- ::1.':::X:::::<G October 2, 1080
e
Sec:ior: 3. This or-::.i::a::c2 :'5 :tere6:'l ac.o;)tea a::d 5~'"'lail je ;:::J::S:.c.e::ec.
::::a:"...l:.e:5 ,
?-.\SS':::':) O~
.s~C~~=' _.;.:-.:::
-;"-\- ~:-
- - '-~-
? Z-.....= ::<C 4;:<:; _-\::C?:-:::::;
October 16, 1980
~-\. :::e s::
sl Charles F. LeCher
s I Lu.cille Williams
:~ ~a -/:) :- - C"J ::-'..::-'.:'.5 .5 :.::::-. e :"
ro. ,-' .
,-:.:y .--.. ~ ':~..::.
.
PARKS AND RECREATION ELEMENT
e
of the COMPREHENSIVE PLAN
Prepared by:
.
City of Clearwater
Planning Department
and
the Department of Parks
and Recreation
September, 1979
e
I.
II.
I I I.
IV.
e
V.
VI.
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TABLE OF CONTENTS
I NT RO DUCT ION. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Page No.
1
2
5
DEMOGRAPHIC OVERVIEW.........................
GOALS, OBJECTIVES, & POLICIES................
INVENTORY
A. Open Space/Passive Recreation
1. Definition of Open Space.............
2. Criteria for defining Open Space.....
3. Categories of Recreation/Open Space..
B. P arklan ds
10
13
15
1 . Min i Parks...........................
2. Neighborhood Parks..... ..............
3. Communi ty Parks....,..................
4. Undeveloped Properties..... ..........
C. Recreation Facilities. ......... ......~...
STANDARDS
A . De fin i t ion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
. B. Open Sp ace. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
C. Par k 1 an d. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
D. Recreation Facilities. ...................
IDENTIFICATION AND ANALYSIS OF NEEDS
21
21
22
23
28
29
31
31
33
A. Op en Spa ce . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
B. Parkland.................................
C. Recreation Facilities....................
D. Non-Traditional Recreation Needs.........
54
54
57
61
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VII.
VIII.
IX.
X.
XI.
XII.
TABLE OF CONTENTS
PLAN FOR OPEN SPACE/PARKLAND.................
PLAN FOR RECREATION FACILITIES...............
PLAN FOR NON-TRADITIONAL RECREATION NEEDS....
COS T .J.~NAL Y S IS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
METHODS OF FINA~CING........... ......... .....
CONCLUS I ON. . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . 0 . . . .
Page No.
70
83
101
103
109
113
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TABLE 1
MAP 1
MAP 2
MAP 3
}IrA P 4
TABLE 2
TABLE 3
TABLE 4
TABLE 5
TABLE 6
TABLE 8
TABLE 9
TABLE 10
TABLE 11
TABLE 12
TABLE 13
TABLE 14
TABLE 15
MAP 5
rvrAP 6
APPENDIX FOR TABLES AND ~lAPS
RECREATION/OPEN SPACE SITE INVENTORy......
MINI PARKS SITE INVENTORy.................
NEIGHBORHOOD PARKS SITE INVENTORY...o.....
CO};WUNITY PARKS SITE INVENTORy............
UNDEVELOPED PARKS SITE INVENTORy..........
SUGGESTED PARKS AND RECREATION STANDARD FOR
CLEARWATER. .
STATE & LOCAL FACILITY STANDARDS....... ...
FACILITIES AND THEIR PRIMARY USER GROUPS..
RECREATIONAL USER AGE CATEGORIES - 1979...
OPEN SPACE BY PLANNING DISTRICTS..........
RECREATION FACILITIES BY USER GROUPS AND
PLANNING DISTRICTS.....
COMPARISON-CLEARWATER STANDARDS & EXISTING
CONDITIONS.. .
PROJECTED POPULATION BY 1995.......... ....
WATER ACREAGE AVAILABLE TO THE CITy.......
CITY PLANNING DISTRICTS R~NKED BY EXISTING
OPEN SPACE.......
CITY PLANNING DISTRICTS R~NKED BY OPEN
SPACE ACREAGE DEFICIENCy.... ....
PRIORITIES FOR ACQUISITION OF OPEN SPACE
LAND BY DISTRICTS..... ..........
RECREATION FACILITIES COST BY PLANNING YEARS.
PLANNING DISTRI CT MAP.....................
MINI, NEIGHBORHOOD, COM0lUNITY AND UNDEVELOPED
PARKS BY PLANNING DISTRICTS.....
Page No.
18
24
25
26
27
32
34
51
52
55
56
59
60
63
72
73
78
105
106
107
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MAP 7
MAP 8
MAP 9
tvlAP 10
MAP 11
r.lAP 1 2
MAP 13
MAP 14
MAP 15
jvlAP 16
MAP 17
MAP 18
jvlAP 19
ivlAP 2 0
jvlAP 21
M..I\P 2 2
MAP 23
jvlAP 2 4
r.lAP 2 5
APPENDIX FOR TABLES AND MAPS
PROPOSED LOCATIONS OF FUTURE OPEN SPACE PARKS.
FACILITY PLANNING ~~PS BY DISTRICTS
BASEBALL DIfu~ONDS REGULATION..............
BASEBALL DIAMONDS yOUTH............ 0 0 . . . . .
BASKETBALL COURTS. ..................0 .....
FOOTBALL/SOCCER FIELDS..............oo....
GOLF COURSE (MUNICIPAL)................o..
GY~fNAS I mrs . . . . . . . . . . . . . . . . . . . . . . . . 0 0 . . 0 . . .
HANDBALL COURTS...........................
HORSESHOE COURTS..........................
LAWN BOWLING COURTS.......................
PIC N I C A REAS a 0 . . . . . . . . . . . . . . . . . . . 0 . . . . . . . .
PLAYGROUND APPARATUS AREAS................
RECREATION CENTERS........................
SHUFFLEBOARD COURTS... ..0....... ....... ...
SOFTBALL DIAMONDS ADULT...................
SO FTBALL DIAMONDS YO UTH. . . . . . . . . . . . . . . . . 0 .
SWIjvlMING POOLS.............................
TE NN I S CO U R T S . . . . . . . . . . . . . . . . . . . . . . 0 . . . 0 . .
ivillLTIPURPOSE RECREATION COMPLEX...o.o.o...
Page Noo
108
114
115
116
117
118
119
120
121
122
123
124
125
126
127
128
129
130
131
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INTRODUCTION
PARKS, RECREATION & OPEN SPACE
Americans have more time to devote to hobbies, sports,
and other recreational activities than ever before. Leisure time
is becoming increasingly valuable as our lives are subjected to
the quickening pace and pressures of complex urban societies.
Large sums of money are spent and increasing amounts of decreasing
open space are demanded in the pursuit of leisure activities. As
a result, many social, economic, and environmental conflicts are
generated which must be addressed at all levels of government.
In accordance with Chapter 163 F.S., the City of Clearwater is
meeting this responsibility through effective planning and program
implementation, trying to determine the most efficient and ef-
fective ways to manage Clearwater's recreation-intensive economy.
The purpose of this plan is to inventory, evaluate, and
determine Clearwater's parks, recreation and open space needs and
opportunities through 1995, and to provide a viable program for
meeting these needs based on projected growth patterns, available
resourc~s, and other relevant parameters of planning. This
recreation/open space plan, which is one element of Clearwater's
Comprehensive Plan, has been prepared in cooperation with the
City's Department of Parks and Recreation and has been presented
for citizen review on numerous occaSIons. Hopefully, its realistic
goal will prove both adequate and attainable by 1995.
1
DEMOGRAPHIC OVERVIEW
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Clearwater is located in central Pinellas Count Yo
The
City limits extend from the Gulf of Mexico on the west to Tampa
Bay on the east. Clearwater is partially bounded on the north by
Dunedin, on the south by Belleair and Largo and partially by
Safety Harbor to the east. In all, the City service area
encompasses approximately 33 square miles of land and water.
The northern and southern boundaries are irregular due to the
prevailing annexation policies that permit urban development to
occur in unincorporated areas. Agreements between the City, County
and neighboring municipalities have resulted in mutually agreeable
service area bOwidaries which effectively supercede municipal
boundaries for planning purposes (see Map 5).
Enjoying one of the most advantageous locations on
e
Florida's west coast, Clearwater has experienced rapid and sustained
urban growth. This is reflected by the fact that the City's
permanent resident population has increased from 52,074 in 1970 to
an estimated 92,000 in 1979, a rise of 80 per cent in just nlne
years. ,Although this extremely rapid growth rate slowed in recent
years, ihe City's population is expected to resume growing at a
pace far above normal. By 1995 the population is expected to approach
137,171 personsol
Clearwater's population contains two subgroups, which are
somewhat unique to cities of comparable population.
These subgroups
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are tourists and elderly citizens, both of which requ1re special
attention when planning for specific recreational/open space
needs.
Tourists are primarily attracted to Clearwater by its
mild sub-tropical climate, sandy beaches, abundant fishing oppor-
tunities, and other natural amenities. One and a half million
tourists visited the City in 1976 alone.2 Estimates prepared by
the United States Department of Commerce show that tourism is
expected to "increase in the Clearwater area by 10 per cent in the
period from 1975 to 1980, 26 per cent during the 1980's, and 21
per cent during the 1990's.3
Elderly citizens, like tourists, are also attracted
to Clearwater primarily because of its pleasant living environment.
However, these people are also lured by the area's equally attractive
low cost of living and other financial advantages, such as a very
low property tax millage rate and assessments and the State of
Florida's tax exemption law which allows tax breaks for homesteaders,
widows, and citizens over 65 years of age. In 1975, persons over the
age of 65 comprised approximately 29.2 per cent of the Clearwater
area's population. This trend 1S expected to continu~ and by 1995
the percentage of elderly will likely approach, if not surpass,
35.5 per cent.4 Despite this large number of elderly citizens, many
of whom are living on their savings and social security benefits,
Clearwater has consistently had the highest household income level
in Pinellas County averaging $14,003 in 1975.5
3
In short, the City of Clearwater is a relatively
wealthy community, ideally located on Florida's west coast, and
IS blessed with pleasant weather year round. It has been, and
IS expected to continue experiencing rapid growth through 1995,
with the largest influx of people being in the 65 and over age
bracket. The City is also extensively patronized by tourists and
will continue to be a favorite .spot for vacationers. All of these
factors contribute to a large demand for specialized parks and
recreation facilities unique to the Clearwater area.
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GOALS, OBJECTIVES AND POLICIES
In order to more directly meet the recreation/open space
needs of Clearwater, a comprehensive set of objectives and action
policies is proposed. This set forms the basis for overall manage-
ment and general direction for future recreation/open space planning
and land use. For purposes of this element, all of the recommended
recreation/open space management objectives and policies for the
City will be included to provide decision-makers with coordinated
policies in one packageo
The methodology utilized for setting management direction
IS that suggested by The Research Group in Managing Growth and
Change: Policy Direction for Clearwater, Florida.6 The format
included the hierarchy of Goals, Objectives and Policies.
Goal - A General statement of a desired and/or ultimate purpose
that applies over a long-range time frame. Goals are the
links that tie human activities together.... ...they deal
primarily with quality of life.
Objective - A short-range statement of a desired end or specific
purpose. The objective differs from the goal in that
it is relatively specific and can usually be measuredo
The attainment of objectives are guideposts toward the
achievement of a goal. Objective must be realistic,
attainabile, and continually reevaluated in terms of
longer-range goals.
5
Policy - A definition of action which will or will not be taken
by the community in order to achieve previously defined
goals and objectives. Policies provide the step between
identification of desired ends and the actual achieve-
ment of those ends. Development decisions made by the
community are based on policies.
This system captures the essence of the planning process
ln that it moves from the general to the specific while identify-
ing needs and a means of reaching them. The culmination of policy
effectuation is resource allocation and implementation leading to
objective attainment.
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GENERAL GOAL: To acquire and properly develop park and recreation
lands and waters, as well as ancillary facilities,
which are utilized for maximum satisfaction of the
physical, psychological, social environmental and
recreational needs of Clearwater's residential and
tourist populations-while striving to protect and
enhance the City's natural environment and to secure
for the future an adequate supply of open space
acreage designed to meet these needs.
RECREATIONAL OBJECTIVES
A. 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.
RECOMMENDED POLICIES
1. Consider the varying desires of the City's population when under-
taking recreational planning to ensure meeting the needs of the
population both now and in the future, with special attention to
the needs of low and moderate income groups, minorities and other
population groups, which may have significantly limited recre-
ational alternatives.
2. Correct any deficiencies in the supply of recreational lands and
facilities within developed areas of the City, and strive to
prevent any such deficiencies from occurring in the future.
3. Ensure to the greatest extent possible that recreational lands
and facilities are made available to special user groups such as
the handicapped, the poor, and the elderly.
4. Select and design all recreational areas and facilities to be as
easily accessible to users as possible with a minimum of environ-
mental damage.
5. Guarantee the perpetuity of all recreation and open space lands
within the City.
6. Beautify parks and selected open space sites to enhance the
quality of life in the City and make it a more attractive place
to live and visit.
7. Ensure that all possible measures are taken to protect the health,
safety and welfare of individuals using city recreational lands
and facilities.
8. Consider and coordinate with the plans and activities of the Com-
munity Development Department, Engineering, and other unjts so
that recreation is well integrated into all governmental services.
9. Consider the programs of soccer associations, little theater orga-
nizations, and other local community groups in recreational planning.
7
10. Advance the fullest utilization of all public land (including
unused and underused) compatible wi th other goals. e
RECREATIONAL OBJECTIVES
B. Encourage close cooperation between public and private
providers of recreational opportunities in order to
promote the most efficient, economical, and balanced
recreation system possible.
RECOMMENDED POLICIES
1. Advance the development of a complete recreational system through
cooperative efforts with other governments and agencies.
2. Enhance city-wide recreational opportunities through the establish-
ment of joint-use agreements between the Department of Parks and
Recreation, the Pinellas County School Board and St. Petersburg
Junior College.
3. Identify the capabilities of both public and private providers
of recreational opportuni ties so tha t the users will be afforded
a maximum of options possible by incorporating the resources of
the private sector.
4 .
Encourage private developers to provide recreational opportunities
fOT their existing and future residents.
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Ensure easy access to recreational resources by private sector
organizations as well as by individuals.
6. Strictly enforce the adopted City policy of requiring a ten per
cent dedication of land or cash in lieu thereof on annexations
for the express purpose of maintaining the standards set forth
in this plan whereby future generations and future immigrants to
the City will be assured an adequate supply of such lands and
waters.
RECREATIONAL OBJECTIVES
C. Strive to maintain and enhance those physical characteristics
unique to established and future resource-based recreational
lands, including historic and archeological sites.
RECO~WENDED POLICIES
1. Management of recreational lands must recognize the natural
carrying capacities of the City's lands and waters and take the
proper steps to ensure such capacities are not exceeded, in order
to protect these valuable resources and maintain their free
services to the community.
2 .
Incompatible land uses located in or near recreational areas, and
any action which is known to have severe adverse impacts on such e
areas, should be minimized or abolished completely.
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3. The City should utilize areas of ecological, historical or
archaeological value for resource-based parks and recreation
development in order to achieve efficient land utilization and
resource protection.
4. The historic preservation element of the City's comprehensive plan
and private organizations, such as the Suncoast Archaeological
Society, should be consulted when considering recreational develop-
ment of lands thought to have some historical or archaeological
significance.
RECREATIONAL OBJECTIVES
D. Conserve those natural open space areas which constitute
aesthetic and ecological assets. (These areas are discussed
in detail in the Conservation Element of the Comprehensive
Plan. )
RECOlvITvIENDED POL I C I ES
1. Preserve coastal and in terior wetlands, floodways, floodplains,
and other environmentally significant areas to enable them to
perform their natural functions for the community and minimize
environmental costso
2. Conserve (use wisely) all upland natural areas remaining in the
City, especially those with unique vegetative and wildlife
resources 0
3. Pursue the creative use of recreational open space areas through-
out highly urbanized sections of the City in order to provide
visual relief from urban monotony.
4. Promote among city residents a true level of environmental under-
standing and a sense of personal responsibility for conserving
the natural environment through the advancement of environmental
education. Provide recreation/open space properties which have
the diversity of resources necessary for nature study and enjoy-
ment of natural assets in order to assure this understanding.
5. Coordinate recreational development planning with other plans
concerning water quality, fish and wildlife management, and
environmental education; especially as applied to the conserva-
tion of natural lands and waters for recreational development
and purs ui ts .
9
EXISTING RECREATION/OPEN SPACE
PROPERTIES AND FACILITIES
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Open Space/Passive Recreation
Both the State of Florida and the City of Clearwater's
service area are rich in open space resources - forested flatwoods
and sand hills, rolling grasslands, cypress and hardwood swamp
forests, freshwater lakes and marshes, citrus groves, tidal swamps
and flats, and sparkling beaches among others, However, the
remainder of today's open space may become tomorrow's subdivisions
and shopping centers unless protection is afforded to an adequate
supply of these needed areas.
The classification of open space should be recognized
as an important element in all land use, resource, and development
planning. When used to its full potential, this classification
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can provide better urban design, conserve vital open space areas,
manage future growth, protect environmentally sensitive lands and
waters, and establish the high quality living environment desired by
present and future generations,
Therefore a plan of conservation governlng Clearwater's
city-owned open space resources is essential. Such a plan must be
instituted while available land still exists and while advanced
planning can identify and reserve suitable areas.
In August of 1976, the Environmental Management Program
and Conservation Plan7 was completed by the City of Cleanvater's
Planning Department. This plan was the first element to be
completed and adopted in the updating of the comprehensive plan
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for the City as mandated by the Local Government Comprehensive
Planning Act of 1975. This document was adopted as the
"conservation element" of the plan by the City Commission on
April 21, 1977. Enumerated in this plan element were the
existing open space areas located in the ten planning districts
of the City at that time. Open space areas are generally
considered to be land or water, either in public or private
ownership, unoccupied or predominantly unoccupied by artificial
development, and having use for parks, recreation, agriculture,
conservation, preservation, historic or scenic purposes.
With the use of this definition, the "conservation
element" identified 5,062 acres of open space area remaining at
that time in the service area of the City. Although this element
established policy for the, management of public lands and the
control of private development, the open space/vacant land in-
ventory did not consider ownership of these areas. Subsequently
a considerable amount of construction has been undertaken by pri-
vate developers, and much open space acreage has since undergone
urbanization. If such transformations are allowed to continue at
their present pace, they could have serious adverse effects on
Clearwater's natural environment. A more detailed explanation and
description of these effects and their costs to the community are
presented in the "conservation element" under the Value Perspective/
Natural Functions Section.
Often gradual changes such as these are not noticed until
their cumulative impacts become evident. By then their harmful
11
effects may be very difficult, if not impossible, to correct.
Additionally, it must be kept In mind that "it is historically
evident that the preservation of open space will not just happen,
it must be planned.1l8 Working under the premise that open space
areas should have certain qualitative features, as w~ll as
quantitative, and have utility for human purposes, the Planning
Department developed specific criteria for open space and
categorized open space areas accordingly.
Areas that meet these criteria will be considered as
recreation/open space. Recreation/open space areas will serve the
double function of conserving sufficient open space area in the
City to provide for an attractive and healthy environment while at
the same time provide areas for both active and passive recreation.
In addition to their recreational value, these areas have much
value to the community from an environmental and ecological
perspective as identified in the conservation element. As such
these areas will contribute to efficient land use within the City
and be economically prudent.
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CRITERIA FOR DEFINING PRESENT AND FUTURE
RECREATION/OPEN SPACE
The proper identification of open space requires the
establishment of specific criteria. Land is not considered to be
open space merely because it lacks artificial development; it must
have utility as functional open space. As such, many areas which
might seem appropriate for inclusion in the City's open space
inventory are not so classified. These would include areas such
as overflow parking lots, private retention ponds, stadium out-
fields, and other similar areas. The following criteria were
utilized In assessing Clearwater's recreation/open space inventory:
1. Primary Functional Use - The primary use of land and
water determines whether or not it can be also utilized
for open space purposes. For example, spray irrigation/
sod farm fields are utilized for a specific purpose and
are not conducive to usable open space classificationso
Likewise unpaved parking lots have a primary use not
conducive to functional open space. However, passive
parks and some pIcnIc areas do have primary uses compat-
ible with and complementary to usable open space. In
many cases the primary use is that of open space itself,
such as environmentally sensitive land. In these areas
open space is considered to be the primary urban use;
such lands have tremendous value and utilization for
ecological purposes that directly impact surrounding
urban developmento
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2. Unobstructed Movement - The functional aspects of e
these areas necessitates that a person's movement not
be highly restricted by artificial improvements.
Therefore, to qualify as functional open spaces, such
areas must be either unoccupied or predominantly
unoccupied by man-made structures, such as buildings,
fences, walls, towers, etc.
3. Ownership - Since only those lands which are owned by
governmental bodies or corne under the provisions of
contractual, open space agreements with such entities
can actually be considered protected from private
development, no land is classified as open space unless
it meets one of these two conditions, or unless its
perpetuity as open land is guaranteed by some legal e
instrument, such as a covenant or deed restriction.
4. Land Re sources - I den ti fi ca tion may take in to accoun t
such physical resources such as vegetation, soils,
geological formations, critical habitat, and surface
waters. Land for recreation/open space should generally
be in its natural state, i.e., not built upon, paved,
filled, excavated, or otherwise void of natural
amenities. Though it is not essential that lands be
blessed wi th an abundance of natural ameni ties to
qualify as functional open space, such conditions are
preferredo
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5. Other Conditions - Qualification may also take note
of accessibility, activity, historic, archaeologic,
ae~hetic and other cultural characteristics attached
to a particular area. These conditions should be
considered as modifying aspects or refinements in
relation to preceding specific criteria for recreation/
open space classification.
CATEGORIES OF RECREATION/OPEN SPACE
e
The following are the categories of recreation/open space
recognized by the City of Clearwater Planning Department.
1. Conservation Areas - Areas to receive special protection
because of their environmental or ecological valueo
These areas should have limited and highly controlled
access and a minimum of low intensity development that
is compatible with the natural amenities on the site.
Examples of this classification are:
a. Tidal swamps (mangrove forests), tidal marshes,
tidal flats and other estuarine resources.
b. Floodplains and freshwater wetlands (swamps and
marshes).
c. Areas of cultural or historical value.
d. Areas of unique wildlife habitats and/or vegetation
(rookeries, forests, wetlands, critical habitat).
e. Areas with significant aquifer recharge capabili-
ties.
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f. Areas with unique scen1C vistas
and/or unusual
e
aesthetic characteristics.
2. Natural Park Areas - Land which 1S designated open to
the public and maintained ln as natural a state as pos-
sible. These areas are often identified by the presence
of some natural element unique to the area. Examples
of this classification are:
a. State, regional, county, and specifically desig-
nated local parks.
b. Areas of un~que natural amenities with limited or
no man-made facilities: i.e., nature study areas,
passive recreation, etc.
c. Areas of historical or archaeological significance
from a natural perspective, e
3. Urban Park Areas - Parks which are more intimately re-
lated to local urban development, and are highly user-
oriented. Examples of this classification are:
a. Community, neighborhood and other city parks,
b. Public water areas such as ponds and lakes.
c. Botanical and zoological gardens.
d. Appropriately developed wooded areas and nature
trails.
4. Urban Recreation Areas - Local areas which have been
committed to organized outdoor recreational programs
and facilities regardless of their size. Examples
of this classification are:
a. Camp grounds.
bo Picnic sites.
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~ c. Developed scenic, archeological and historic sites.
d. Play fields.
e. Playgrounds.
Because of the detailed quantification of open space/vacant
lands by ecosystems in the Clearwater service area as presented in
the "conservation element", it was not deemed necessary to further
quantify these areas by the categories just described; however, the
total acreages of existing open space by city ownership, exclusive
of special active recreation facilities is itemized in Table 1.
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Parkland 4It
Having sufficient recreation/open space acreage is not
an end in itself. To be truly effective in serving the recreational
needs of the City, this acreage must be divided into a viable parks
system. For the purpose of this plan, parks are generally consid-
ered to be a subdivision of recreation/open space, either owned
and/or managed by federal, state or local government and dedicated
to a public use or uses. Usually these areas offer opportunities
for many types of both active and passive recreational pursuits.
Additionally, these parks should be properly distributed geograph-
ically throughout Clearwater and be conveniently accessible to all
City residents.
In classifying Clearwater's recreation/open space area
into park categories, numerous existing park sites had to be It
considered. Not all of these areas fit neatly into anyone
category.
The majority of recreation/open space areas are
classified as being mini-parks, neighborhood parks, community
parks, or undeveloped properties. Clearwater's existing parkland
and undeveloped properties are described and quantified as follows:
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. Mini-parks
Mini-parks are generally "walk to" parks of less than one
acre which serve active and/or passive recreation needs at a sub-
neighborhood level. To be truly effective, these parks should be
located in areas of the City void of other types of parks and be
developed to meet the needs of the immediate surrounding population.
In Clearwater mini-parks have usually' served one of two
functions; either as passIve recreation areas for senior citizens or
as play areas for children. This second function has taken a higher
priority because young children are less mobile than adults and have
a more difficult time reaching distant recreation facilities.
Frequently, the need for mini-parks is alleviated by the
presence of nearby school grounds which often provide these same
e needs. For this reason the location of school grounds is taken into
consideration when planning for the creation of new mini-parks.
Ideal locations to establish future mini-parks would thus be In areas
that have high concentrations of young children and that are removed
from other parks or school facilities.
In Map 1 the ten mini-park sites In the City are located,
totalling 6.8 acreso
Neighborhood parks
Neighborhood parks range In sIze from one to ten acres.
These "walk to" parks are designed to meet the particular active and/
or passive recreation needs of the individual neighborhoods which
they are intended to serve. Like mini-parks, the need faT these parks
e may be reduced by the presence of neighborhood schools surrounded by
large areas of recreation/open space or nearby community parkso
21
Despite the fact that the adopted standard for neighbor-
hood parks is from one to ten acres, it is suggested that the city
establish a minimum size of four to five acres for their creation.
This would not only allow for more flexibility in development but
also keep to a mInImum the number of properties that could become
maintenance problems.
In Map 2 the twenty-nine neighborhood parks currently
located within the City are shown totalling 98.5 acres. Of these,
twenty-six are presently developed. The remaining three lack suffi-
cient facilities to be qualified as neighborhood parks, yet are not
totally insufficient so as to be categorized as undeveloped lands.
Community Parks
Community parks are the largest category of parkland
administered by the City, rangIng in size from ten to fifty acres.
These "walk or drive to" parks are designed to serve both the
active and passive recreational needs of several neighborhoods, and,
at times the entire city. Frequently, community parks are excellent
sites for locating recreation facilities which can not be conveniently
located in smaller parks because of their limited access to the
general public or because the cost of these facilities prohibits
their placement in more than a few areas.
Map 3 shows the six community parks currently located
within the City, totalling 161.9 acres of land and water. Of these
all are considered developed except for Cooper's Bayou, though this
park is continually mowed and trimmed as if it were a developed
facility.
22
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It
e Undeveloped properties
Map 4 shows the twenty tracts of undeveloped property
owned by the City and reserved for future active and pass1ve
recreation needs. These lands and waters, totalling 313.8 acres
are of varying sizes and physical features; however, the majority
are suitable for future recreational development. Additional
areas in water and land are also being obtained primarily through
Clearwater's Public Open Space Ordinance 20-11 Cd) 1, although
other methods of acquisition may. and shoul~ also be employed.
The uses to which these properties will be developed 1S
still undecided at present, although some recommendations will be
made in later sections of this plan element. Undeveloped properties
are extremely valuable in helping to maintain a healthy parks and
tit open space system; therefore, they should be identified and obtained
while suitable land still exists.
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23
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27
e
Recreation Facilities
A truly sound parks and recreation system must include an
appropriate amount and assortment of active recreation facilities.
Such facilities provide citizens with the opportunity to pursue
their favorite hobbies, sports, and other recreational activities.
Determining the exact number of facilities to be built, as well as
their location, is a complex task which requires a great deal of
analysis before any action should be taken. Such an analysis must
also be based on an accurate inventory of what presently exists and
who is served by these facilities. These facilities may be placed
in parks or in special facilities areas (see Table 1), which are
defined as tracts of land which have been converted from their e
natural state to areas utilized specifically for active recreation.
Special facilities areas are intended to fulfill a particular
recreational need. They are not designed to be geographically
dispersed throughout the city; however, they should be located where
they are accessible to the general population.
e
28
e
STANDARDS
Standards are predetermined norms used to measure the
adequacy of parks, open space, recreation facilities and their
ancillary facilities. Periodically standards are established by
organizations such as the National Recreation and Parks Association
and the Florida Department of Natural Resources, Division of Recre-
ation and Parks. Unfortunately these state and national standards
are usually general in nature and often not specific enough for
planning at the municipal level of government. Therefore, the
Planning Department, in conjunction wi th the Department of Parks
and Recreation, has developed a set of specific standards for the
City. This was accomplished by modifying the State of Florida's
most recent standards presented in Outdoor Recreation in Florida,
197610 to meet the level of detail required by the City. The result
is a set of standards specifically attuned to Clearwater's geo-
graphical setting, socioeconomic characteristics, tourism, and the
City's present and future growth patterns as discussed earlier.
The actual computing of recreational standards is conducted
through'what is known as the ratio method. This is a means of deter-
mining need on the basis of population. Because this method responds
to both density and growth, it is considered to be the least arbi-
trary method available. The ratio method of standards computation
assists in determining needed recreational lands and/or facilities
by prescribing one recreational unit (e.g., one acre of land, one
tennis court , etc.) for a previously established number of people
tit expected to use them to their maximum capacity. For example, Clear-
e
29
water's standard for neighborhood parks IS two acres of land for
It
every 1,000 citizens.
A potential danger for planners, administrators, and
elected officials is the misuse of recreational standards as a
substi tute for the "expressed" needs and desi res of a Ci ty' s ci ti-
zens and tourists. Recognizing this fact, the Planning Department
has attempted to directly contact its residents through the dis-
tribution 0 fa" Re cre a ti on Nee ds Survey" in orde r to de te rmine
what they feel IS needed for a vital parks, recreation and open
space system. By utilizing both the City's established standards
and the results of the "Recreation Needs Survey," it is felt that
the Planning Department has minimized the danger of an over-reliance
on standards at the expense of untapped citizen desire.
Finally, it must not be forgotten that standards, even
e
those contained in this plan, are in reality:
"... a compromise between an ideal concept
and an assessment of reality. (They are
not, therefore, unattainable or extravagant.
Standard really means minimum acceptable.
Too frequently the minimum part of the
phrase is discounted or ignored, and offi-
cials are inclined to settle for less than
the minimum. So in some respects, the mere
existence of such standards entail the
likelihood that they will be misused."ll
Both the City of Clearwater's Planning Department and the
Parks and Recreation Department have taken every conceivable pre-
caution to insure this does not happen by drafting the most realistic
standards possible. This is reiterated in the section describing
the methodology utilized to establish these standards for each sport
or activity. Additionally, it is hoped that those people, be they e
30
~ professional planners, elected officials, or private citizens,
who employ these recreation standards will remain conscious of
such m1suses and guard against them.
Open Space
In a rapidly growing community such as Clearwater, a
sufficient quantity and quality of open space 1S not guaranteed
by its mere existence. Such lands could easily be converted to
uses that are non-recreational or adversely impact the natural
environment,without a firm commitment to environmentally sound
policies and standards by the governing bodyo
The City Planning Department had adopted an open space
stan d a r d 0 f "... 1 0 a c res per 1, 0 0 0 pop u 1 at ion. " T his stan d a r d
excludes undeveloped areas in private ownership and special use
e areas, along wi th regional, state and national parks as recommended
by the authors of Managing Huni cip al Le is ure Se rvi ce s from whi ch
this standard is derived. Since this standard responds to both
population growth and density, it is felt to be an appropriate
standard for the City of Clearwater.
Parks
Table 2 identifies the City of Clearwater's adopted parks
standards according to the classifications described earlier, which
are basically those recommended in Outdoor Recreation in Florida,
12
1976, prepared by the State of Florida, Department of Natural
Resources, Division of Recreation and Parks. Some modifications have
been made to facilitate the adaptation of these standards to Clear-
water's recreation system.
~
31
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tit Recreation Facilities
Developing local standards for recreation facilities is
considerably more difficult than establishing standards for parks
and open space. Although the definitions of the various sports
and activities are more simple, the differences in recreational
preferences by varying populations and user groups generate in-
numerable directions which might be taken in attempting to estab-
lish a norm. Because the establishment of standards for recreational
facilities lS much less scientific than a fixed ratio such as the
open space figures, the methodology utilized for deriving the local
standards will be fully explained for each sport or activity.
National and State standards are available as guides for
determining the number and/or location of various facilities.
4It State standards appear to be a more appropriate guide on which to
base those standards proposed for Clearwater since they have been
adjusted to the unique characteristics of Florida communities, such
as their tropical climate, tourist population, etc. The formulation
of standards is a most important task. Once adopted, they reflect
not only the City's basic management policy, but also act as a yard-
stick against which to measure the provision of both present and
needed future recreation services. The standards will remain constant
as Clearwater's population increases or decreases, although they
should be adjusted if the needs and interests of the citizenry change.
Table 3 shows facility standards as suggested by the State
of Florida, and corresponding standards recommended for the City of
Clearwater.
e
33
TABLE 3
e
STATE AND LOCAL FACILITY STANDARDS
Outdoors
Foo tb all/ So cce r
Fie 1 ds
Golf Course
(Municipal)
Gymn as i urn
Handball Courts
Classification State Standard * Clearwater Standards
Baseball Di amon ds 1/6000 people a) 1/1500 Primary Us e rs
Regulation b) All di amonds __.~ i g~ ~~~_~
Baseball Diamonds I One baseball a) 1/1500 Primary Users I
Youth I (softball) i
Diamond 3,000 b) All di amonds lighted
people i
Baske tball Courts i None I a 1/1000 Primary Us e rs
1/80,000 people
)
b) ~ mile serVlce radius
a) 1/6000 Primary Users
b) All fields lighted
1/40,000 Primary Users
1/50,000 people
(18 hole course)
1/5000 peoEle
1/10,000 people
I
I
I
I 1/10,000 Primary Users
I a)1/3000 Primary Users
~J 1 mile service radius
I a)1/200 Primary Users
! b) 1 mile service radius .
j 1/2000 Primary Users ~
1 mile radius I
Horseshoe Courts
Lawn Bowling Courts
Picnic Areas
Playground
Recreation
I
I
I
I
Apparatus I
Cen ters I
I
None
None
4 acres of picnic
area for every
1000 people
None
1 recreation center
per 5000 people
None
Same as shown for
youth baseball
Same as shown for
youth baseball
1 neighborhood pool
per 3200 people and/
or 1 community pool
per 25,000 people
1/2000 people
a) 1/2000 Primary Users
b) 1 mile service radius
c) All courts lighted
Shuffleboard Courts
Softball Diamonds
Adult
Softball. Diamonds
Youth
Swimming Pools
Tennis Courts
~mi1e service radius
a) 1/7500 Primary Users
b) 1 mile service radius
1/700 Primary Users
a) 1/4500 Primary Users
b) All fields lighted~
a)1/4500 Primary Users
b) All fields lighted
a) 1/22,400 Primary Users
b) 1 mile service radius
SOURCES: A.
Criteria for Leisure Facilities, Florida Design Standards
and Quantities for Parks, Recreation and Open Space:
prepared jointly by Florida Recreation and Park Association
and Florida P1~Lning and Zoning Association, January 1975.
e
B.
Outdoor Recreation in Florida 1976. A Comnrehensive
Program in Meeting Florida's Outdoor Recr~ation Needs:
prepared by State of Florida, Department of Natural
Resources, Division of Recreation and Parks, May 1976.
34
~ Methodology
The methodology used for arrlvlng at the standard for
each Clearwater recreation facility will be addressed individually,
wi th cons i dera tion given to the "adequacy", as we 11 as to the
"accessibility" of that facility. For example, Clearwater may be
providing a sufficient number of tennis courts, but not in the
proper geographic locations whereby the maXlmum number of primary
users will benefit.
Prior to analyzing Clearwater's standards against those
proposed by the State of Florida, the following should be noted.
1. State standards are based on a City's total
population while Clearwater's are based only
on the population of a facility's potential
user age group.
e
2. The existing supply and demand for each
Clearwater facility played a substantial role
in formulating de standard for each parti-
cular facility.
State standards imply that baseball and softball fields
could be used for multi-purposes, and shared by different age
groups, however, the sharing or joint usage of Clearwater's fields
is not always feasible. This is due to the fact that the users of
these fields, e.g., youth baseball, youth softball, and adult
softball leagues, all play at night and during the same months of
the year. Therefore, the state standard was adjusted and developed
individually for each of the user groups. For example:
e
3S
State Standards -
e
One regulation baseball field for every 6,000 people.
112,557 = 18.76 (or 19 baseball fields)
6,000
One youth baseball/softball field for every 3000 people.
112,557 = 37.52 (or 38 baseball/softball fields)
3,000
According to State standards, Clearwater would need 57 baseball and
softball fields to adequately serve its total service area popula-
tion of 112,557 people.
Adjusted Standards (Clearwater's)
One regulation baseball field for every 1500 primary users.
10,131
1,500
One youth baseball field for every 1,500 primary users.
= 6.75 (or 7 regulation baseball fields)
12,385
1,500
8026 (or 8 youth baseball fields)
e
One adult softball field for every 4,500 primary users
48,398
4,500
= 10.76 (or 11 adult softball fields)
One youth softball field for every 4,500 primary users.
12,385
4,500
2.75 (or 3 youth softball fields)
According to adjusted standards, Clearwater would need 29
ballfields to adequately serve the various primary user age group
populations participating in the various baseball/softball programs.
Fewer ballfields are needed when applying these adjusted standards
In that they take into consideration the fact that 51,774 people,
or forty-six per cent of Clearwater's service area population, are
e
36
e
e
e
considered to be non-users of these facilities. This percentage
includes 7,879 children under the age of six, and 43,895 people
over 55 years of age as shown in Table 5. It appears obvious that
state standards would be more appropriate for cities containing a
much smaller percentage of senior citizens than Clearwater.
Regulation Baseball Fields
Adequacy: Clearwater has nlne fields, as shown in Map 8,
tha tare buil t to accommoda te re gul a tion baseball games. Each 0 f
these diamonds has gO-foot bases, which are required for all leagues
comprised of persons over thirteen years of age. Presently, how-
ever, only six of the nine fields are being used for these leagues.
Of the three fields not being used, one is Jack Russell
Stadium, home of the Clearwater Bombers Softball Team and the
Philadelphia Phillies major league baseball team during spring train-
ing. The remaining two, Phillip Jones and Ray Green fields, are
being used by adult softball leagues, a program which presently lacks
adequate facilities to meet demands.
Since the population of the prlmary user group lS 10,131
(Table 4), and since six fields are currently satisfying the baseball
needs o~ this age group, it is concluded that the provision of one
field for every 1500 primary users is a desirable standard to
maintain.
Youth Baseball Fields
Adequacy: State Standards suggest that youth baseball fields
could also be used by adult softball teams, but, as suggested prev-
iously, this arrangement is not practical in Clearwater.
37
Nine youth baseball diamonds presently exist which ade-
quat~ly serve the Clearwater, Del Oro, and Wood Valley Little
Leagues. Currently, these fields are not over-booked, nor 1S there a
waiting list for team memberships. Therefore, with a primary user
population of 12,315 there is a ratio of one youth baseball field for
every 1,376 youngsters, thus yielding the recommended standard of
one field for every 1,500 pr1mary users.
Adult Softball Diamonds
Adequacy: 127 teams participated in the City's adult soft-
ball program during the summer of 1979. Three fields are specifically
identified for this activity, although these are supplemented by
regulation baseball fields 1n an attempt to meet the demand. This
attempt fell short in 1979 when ten teams were turned aHay due to
the shortage of facilities. A need exists for additional fields,
not only to meet the present demand, but also to replace the regula-
tion baseball fields which may not always be available for softball.
Adult softball has a potential user population of 48,398
people. Establishing a standard of one field for each 4,500 users
would yield eleven facilities which in turn would accommodate132
teams, .each playing two games per week. Three games would be
played on each field, four nights per week. This schedule would
also allow for team practice sessions, which heretofore have been
extremely limited.
Youth Softball Fields
Adequacy: Table 1 shows three fields suitable for youth
softball, which involves the same age-group population as youth base-
ball. However, experience has shown that feHer youngsters participate
in softball and, therefore, the proposed Clearwater standard is lower.
38
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Three softball fields appear to be sufficient to meet the
needs of the 12,385 potential users of this program. To continue
this supply ratio, a standard of one field per 4,500 primary users
is recommended.
Prior to discussing standards for other recreation facil-
ities, it is interesting to compare the number of ba11fie1ds Clear-
water would need if applying State standards as opposed to applying
the adjusted standards are recommended.
Accessibility: The geographic distribution of ba1lfields
throughout the City is not critical since teams are formed on a
league basis with players accustomed to travelling.
Basketball Courts (Multi-purpose outdoor courts)
Adequacy: Basketball courts, according to State standards,
should be provided at the rate of one for every 5,000 people. How-
ever, the State standard does not specify whether this ratio applies
to outdoor basketball courts (multi-purpose courts) or to gymnasiums.
For the purpose of this element, the State standard lS assumed to
relate to gymnasiums rather than to outdoor multi-purpose facilities.
Therefore, based on this assumption, there is no standard against
which tD compare the standard recommended for Clearwater.
The primary user population of 22,516 youths, divided by
twenty-one existing courts, results in a ~rrent -ratio of one court
for every 1,072 people. The present demand placed upon these facil-
ities indicate that this ratio is low, and that the provision of one
court for every 1,000 primary users would be more appropriate.
39
Accessibility: Since the prlmary users of outdoor multi-
purpose courts are youths between the ages of six and nineteen, the
majority of whom do not drive, it is proposed that these facilities
have an effective service radius of one-half mile.
40
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Football/Soccer Fields
Adequacy: Football and soccer, unlike baseball and soft-
ball, can share the same facilities Slnce their seasons are conducted
at different times of the year.
One field for every 80,000 people is the standard proposed
by the State, but this standard does not identify whether this field
1S a "stadium" with impressive and elaborate facilities, or a park
or playground type of operation. Therefore, to be consistent with
municipal needs this standard was bypassed and it is recommended
that a standard establishing one football/soccer field for every
6,000 pr1mary users be adopted.
The formulation of this standard took into consideration
the fact that Clearwater now has only three suitable fields available
for a pr1mary user population of 60,783 persons between the ages of
SlX and fifty-fouro It was also based on the facts that approximately
600 youngsters played football in 1977, and that over 1000 persons
registered to participate in the 1978 soccer season. Because of the
scarcity of City-o\med facilities, the soccer leagues played their
1978 games on private fields which may not be available in the near
future.
The shortage of adequate fields for football and soccer is
critical. To meet the recommended standard, Clearwater would need a
total of ten fields, or seven more than is presently available. It
is felt this number of facilities would adequately fulfill the
football/soccer needs of the City.
Accessibility: A standard 1S not recommended for the place-
ment of football/soccer fields SInce participation is organized on a
league basis although it would be convenient to have some fields close
41
to residential neighborhoods for practices and other field and hobby e
events (track, kite flying, model airplanes, etc.), while still main-
taining a central complex for organized events.
Golf Course
Adequacy: Clearwater has one public par 3 golf course for
92,293 pr1mary users over the age of 13. The State Standard for par 3
golf courses is one for every 100,000 population and for 18 hole golf
courses one for every 50,000 persons. Using the State Standard the
City would need two additional 18 hole courses. Since the City owns
one golf course which is heavily used, and since golf is a lifetime
sport used by City residents as well as our tourist population; it 1S
re commende d that the Cle arwa tel' standard be one course fo l' eve ry
40,000 prlmary users. This standard does not delineate between par
3 golf courses and 18 hole courses; however, it is further recommended It
that since the City has one par 3 course. that primary effort should
be placed on developing an 18 hole course.
Accessibility: A ten mile service radius or 15 to 20 mln.
driving time was determined to be appropriate, since adults with means
of transportation are usually involved in golfing.
Gymn as i ums
Adequacy: Gymnasiums are needed to serve City sponsored
youth and adult basketball and volleyball leagues. Clearwater does
not olm any gyms and has relied for years on those belonging to the
Pinellas County School System and the National Guard Armory. This
arrangement has proven to be most valuable and should be continued;
however, a major problem surfaces when being fully dependent upon
gyms owned by other agencies. The amount of time available to e
42
tit the City at these facilities is becoming increasingly scarce.
Reasons for this include crowded school conditions and the success
of expanded athletic programs for girls on the middle school and
high school levels. The scheduling of these school programs under-
standably has priority over City activities. Also time is not
available to expand into new gym-oriented programs and activities,
such as gymnastics, tumbling, judo, wrestling, trampoline, etc.
Gymnasiums at John F. Kennedy, Oak Grove, and Clearwater
Comprehensive Middle Schools, and at the National Guard Armory are
the only facilities available for the City's adult basketball and
volleyball leagues. St. Petersburg Junior College IS used for youth
basketball on Saturdays, while Clearwater High IS now accessible
only on Saturdays and during the summer months for basketball clinics.
tit Sixty adult basketball teams, ~nvolving approximately 600
players, registered in November of 1977 to play in City leagues.
Each team plays twice a week which translates into sixty games per
week being scheduled at the four available gymnasiums. To accomo-
date this program, four games are scheduled at each gym, each night
starting at 6:30 P.M.
Ladies volleyball IS conducted at the St. Petersburg Jr.
College gymnasium starting at 8:45 P.M., two nights per week. An
earlier starting time is not available since college programs are
in progress until 8:30 P.M.
The Parks and Recreation Department's youth basketball
league, including 37 teams of approximately 340 girls and boys, is
limited to Saturday play only at three local schoolso
tit The six gymnasiums that are noW available to the City are
crowded and are not adequate. The aforementioned programs are thus
43
cramped and future growth 1S restricted. The State Standard of a e
gymnasium for every 5,000 people, yields nine facilities when applied
to a pr1mary user population of 48,398.
It is felt that the Clearwater standard of one gymnas1um
for every 10,000 primary users would be more appropriat& thus
yielding a need for only five facilitieso
Accessibility: Criteria are not established for the
distribution of gymnasiums since basketball and volleyball are
played on a league basis, with teams being accustomed to travelling
to different facilities.
Handball Courts
Adequacy: Handball courts not only accomodate the game
of handball, but they are becoming increasingly popular for prac-
ticing tennis and for playing raquetball. Clearwater currently has tit
six courts, two each at Sid Lickton Field, Morningside, and Del Oro
Parks. Observation of these facilities reveal continuous heavy usage.
State Standards, which suggest one court for every 10,000
total population, would indicate that eleven courts are needed to
serve the 112,557 people living in Clearwater service area. This
same standard, if applied only to the primary user age group popula-
tion of 48,398 people, would show a need for only five handball
facilities. Since the City now has six courts which are heavily used,
and since the City's standards are based on primary user age group
populations, an adjustment of the State Standard was deemed appropriate
1n order to more adequately meet the demand currently being displayed
by Clearwater residents. The standard formulated and recommended 1S
one handball court for every 3,000 PTimary users. Meeting this .
44
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standard would provide sixteen facilities, or ten more than presently
exist.
Accessibility: Residents between the ages of fourteen and
sixty-four are identified as being the primary users of the City's
handball facilitieso Since the majority of this age group have access
to automobiles, a service radius of one mile is proposed.
Horseshoe Courts
Adequacy: In the absence of a State Standard for this
type facility, and based on present demand, it is recommended that
Clearwater provide one court for every 2,000 pe6ple who are 55 years
of age and older.
The application of this standard results in twenty-two
courts being needed to adequately serve the potential user population
of 43,895 (Table 4). Since twenty-one facilities presently exis~
only one additional court is needed to numerically meet the standard.
Accessibility: Horseshoe courts were determined to have an
effective service area of one mil~ since the majority of users have
access to transportation. This geographic standard, when applied to
existing courts, revealed an absence of services in several locations
within the City.
Lawn Bowling Courts
Adequacy: Clearwater, with twenty-two lawn bowling courts
for a primary user population of 43,895, has an existing ratio of one
court for every 1,995 persons. This ratio appears sufficient to
meet the demand for the service. Therefore, continuing to provide
one lawn bowling court for every 2,000 senior adul ts is recommended
as an appropriate standard.
Accessibility: Facilities for lawn bowling requlre constant
45
supervision as well as specialized maintenance. This being the case, 4It
it is recommended they be situated in a centralized complex to serve
the entire City, rather than scattered with individual service areas.
Picnic Areas
Adequacy: Clearwater presently has limited picnic facilities
at Del Oro, Marshall St., Ed Wright, Morningside, Crest Lake, and
Woodgate Parks. As a rule, these areas are too small to accomodate
large church or company picnics, but they appear to be successful in
meeting the local needs of families living in the immediate neighbor-
hoods or communities. Collectively, the above mentioned parks have
approximately fifteen acres devoted to picnicking.
According to State Standards, the City should provide plcnlC
areas at the rate of four acres for every 1,000 people. The adoption
of this standard would result in Clearwater needing 452 acres to ade- e
quately serve its total service area population of 112,557 persons.
However, it is recognized that the Pinellas County Parks
Department, via their regional parks system, fulfills much of the
picnicking needs of Clearwater's residents. Therefore, with a desire
to supplement rather than duplicate county efforts, the State standard
was disregarded and replaced by a reduced standard for Clearwater
relating primarily to the provision of "neighborhood" picnic facili..
ties and their geographic locations.
Accessibility: A one mile service radius was determined to
be appropriate since adults, with means of transportation, are usually
involved in picnic activitieso
Playground Apparatus Areas
Adequacy: Playground apparatus includes items such as e
46
4It swings, slides, climbing towers, and creative wood equipment for
young children. State standards are not available to use as a guide
for the placement of this equipment and it would be arbitrary, at
best, to state that a certain number of units should be provided for
a specified number of youngsters. Therefore, a standard for adequacy
is not proposed for Clearwater.
~ Accessibility: Realizing that playground apparatus does
play an important role in the recreational pursuits of young children,
it is recommended that such equipment be strategically placed through-
out the City at numerous locations that are readily accessible. To
accomplish this, it is proposed that each play site be considered
to effectively serve only those youngsters living within a radius of
one-half mile.
4It Recreation Centers
Adequacy: Recreation Centers are buildings which may in-
clude meeting rooms, game rooms (with table games, pool tables and
table tennis tables), gymnasiums, restrooms, and an office. A recre-
ation center is the hub of all recreational activities for users
within a particular neighborhood where recreational classes as well
as free play activities are conducted. Indoor recreational activities
such as dances, bridge lessons, "slimnastics", arts & crafts, and
cultural classes are all conducted at centers. Recreation centers
are also used as meeting facilities for citizens in the surrounding
neighborhoods and are oftentimes built in conjunction with picnic,
playground, and special facility areas, and, more often than not, are
built in conjunction with neighborhood and community parks. The State
e standard is not clear. However, according to most sources, it is
generally considered to be one recreation center per 5,000 people;
47
whereas, the current Clearwater standard 1S one center per 7,500 e
people.
Accessibility: Realizing that recreation centers serve as
a major link between the residents and the local government, it is
important to place centers so that the majority of residents can be
accessible to one in their neighborhood. It is recommended that
centers be strategically placed throughout the City to effectively
serve residents living within a one mile radius.
Shuffleboard Courts
Adequacy: Sixty-six shuffleboard courts are currently
provided by the City of Clearwater, fifty-six being located at one
major complex. The complex, the Clearwater Shuffleboard Club,
receives heavy participation from the senior adult population;
while the other ten courts, scattered about the Ci ty, are used e
sparingly. Indications are that shuffleboard facilities are more
popular when provided in large numbers at one site where participants
have increased opportunities to find games, to socialize, and to meet
other people of similar interestso
With a primary user population of 43,895, and an existing
ratio ot one court for every 665 people, it appears the present de-
mand for shuffleboard is being satisfied. Therefore, to adequately
provide for future needs, it was determined that Clearwater should
adopt the standard of one shuffleboard court for every 700 potential
users.
Accessibility: A standard for the distribution of shuffle-
board courts is not recommended. However, it is suggested that
facilities if needed in the future, be added to the existing complex, 4It
48
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or placed on a single site In a different location.
Swimming Pools
Adequacy: State standards, as reflected in Table 3,
propose that a city provide one neighborhood pool for every 3,200
people, and/or one community pool per 25,000 residents. To adequately
serve the city's total service area population of 112,557 persons with
this standard would require 35 neighborhood and/or 4 community pools,
However, Clearwater residents are blessed by having beauti-
ful natural beaches for swimming and a climate conducive to the
proliferation of home swimming pools. It is therefore suggested
that fewer public pools are required than would be needed for resi-
dents of an inland or less wealthy community. To supplement this
valuable resource, an adjusted standard of one pool for every 22,400
people is considered adequate.
Accessibility: To conveniently offer SWlmmlng services to
the citizens of Clearwater, it is proposed that each pool be consid-
ered to have an effective service area of one mile, This standard lS
more explicit and more quantifiable than the walking distance or
short driving distance as suggested by the State.
Tennis .courts
Adequacy: The State standard of one tennis court for every
2,000 people was deemed appropriate and acceptable for Clearwater with
no modification necessary. At the present time the City slightly
exceeds this standard by providing one court for every 1,975 primary
users. Numerous facilities have been constructed in the past few
years in response to demands from citizens who are playing tennis In
increased numbers.
49
'-
Accessibility: It 1S felt that Clearwater offers excel- 4It
lent opportunities for those desiring to play tennis. Two major
facilities, the McMullen Park and the Bayfront complexes, are
suitable and available for special events, tournaments, tennis
leagues, and everyday recreational play.
Complementing these complexes is a system of neighborhood
courts which are easily accessible to most residents.
To continue to provide Clearwater residents with conve-
nient tennis opportunities it is recommended that each facility
be considered to effectively serve those persons living within a
one mile radius.
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TAB L E 4
FACILITIES AND THEIR PRIMARY USER GROUPS
Facility
Primary User Age
Group (in Years)
Baseball Diamonds Regulation
14 - 19
Baseball Diamonds Youth
6 - 13
Basketball Courts - Outdoor
6 - 19
Football/Soccer Fields
I
6 .J 54
Golf Courses
14 - Over
Gymnasiums
14 - 54
Handball Courts
14 - 54
Horseshoe Courts
55 - Over
Lawn Bowling Courts
55 - Over
Picnic Areas
All Ages
Playground Ap~aratus
6 - 19
Recreation Centers
All Ages
Shuffleboard Courts
55 - Over
Softball Diaillonds Adult
14 - 54
Softball Diamonds Youth
6 - 13
Swimming Pools
Tennis Courts
All Ages
6 - Over
51
Clearwater Service
Area Population
10,131
12,385
22,516
60,783
92,293
48,398
48,398
43,895
43,895
112,557
22,516
112,557
43,895
48,398
12,385
112,557
104 678
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TABLE. S
RE.CREATrONAL IJ$"E:R. AGE. CATE:.GOR~E..$ .,.. 1 9-7 9-
Planning
PLANNING 5 and 55- and District
DISTRICTS Under 6-13 14-19- 20.-54 Over Totals
#1 762 1,197 9.80 3,701 4,.245 10.,885
#2 1,194 1,877 1,536 5,801 6,655 17,063
~
#3 1,223 1 923 1,573 5,941 6,815 17,475
#4 1,257 1,976 1,616 6,105 7,002 17,956
~5 798 1,254 1,026 3,876 4,446 11,400
#6 196. 308 252 952 1,090 2,7 8e
.:J.- 1,036 1,628 1,332 5,030 5,770 14,796
.". J
#8 294 462 378 1,426 1,637 4,197
#9 383 603 492 1,860 2,134 5,472
#:10 736 1,157 946 3,575 4,i01 10,515
AGE GROUP
TOTALS 7,879 12,385 ~O,131 38,267 43,895 112,557
.. --
PER CENT OF
TOTAL 7 11 9 34 39 100
Source: Clearwater Planning Department
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IDENTIFICATION AND ANALYSIS OF NEEDS
The City's serVlce area population, rather than just the
population of its incorporated area, is used as the base for deter-
mining needs because more accurate figures are available on the
service area, and also because it is necessary to anticipate future
annexations for planning purposes. Although the serVlce area popula-
tion is approximately 21,500 persons higher than that of the City's
incorporated area, it is felt this difference is off-set by:
1. the average number of tourists in Clearwater on
anyone day (4,110 ln 1976):
2. those people who live outside the City who have
purchased City "User Cards" (Approximately 1,200
in 1978)
e
3. those non-residents that have not purchased User
Cards who utilize City facilities in spite of the
efforts of the Parks and Recreation Department to
halt this practice. This should not be construed
as an attempt to plan facilities for non-residents,
but rather a means to guarantee an adequate supply
for Clearwater taxpayers, present and future.
It is also necessary to determine the location of different
age group populations throughout the City's service area. Table 5
shows the approximate number of people, in five major user cate-
gories, who live in the City's ten planning districts which comprise
the service area. These figures provide a basis for accurately
assessing the recreational needs of the population on a purely
numerical basis.
Based on these population figures and on the assumption
that the standards proposed in Chapter 5 are appropriate and ac-
ceptable, the identification of needs is then simply a matter of
e comparing Clearwater's existing conditions (inventory) to these
S3
recommended standards. tit
This analysis will be applied separately to the three
major categories: 1) Open Space, 2) Parkland, and 3) Active
Recreation Facilities.
Open Space
It was previously recommended that Clearwater adopt the
open space standard of "....10 acres per 1,000 population," as
stated in the text, Managing Municipal Leisure Services.
This standard, when applied to Clearwater's estimated
service area population of 112,557, indicates a need for 1,125.6
acres. After subtracting the 776.3 acres of existing open space,
as reflected in Table 6, we find that Clearwater is 349.3 acres
short of the established standard.
Parkland tit
As mentioned earlier, open space acreage must be divided
into a system of different type parks to effectively serve the
varying recreational needs of the citizens of Clearwater. The
assessment of needs for the different parks is evident when com-
paring the existing acres as shown in Table 6 with the suggested
standards in Table 2. For example, the standard for neighborhood
parks is two acres for every 1,000 people. Based on a service area
population of 112,557 persons, Clearwater needs a total of 225.1
acres of neighborhood parks. Since the city has only 98.5 acres of
land and water in this category, a shortage of 126.6 acres exists.
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Recreation Facilities
Facility needs are based only on those age segments of
the population that are considered to be the primary or potential
users of the particular recreational facility under consideration,
instead of the City's entire serVIce area population. For example,
the number of youth baseball fields should be based only on the
number of youths living in Clearwater's service area that are ex-
pected to be users of these facilities. This same reasonIng would
hold true for shuffleboard and lawn bowling courts which are prI-
marily used by senior adults and not by pre-school children, teen-
agers, or even young adults. This is not to say that teenagers
might not use shuffleboard facilities, but only that the number of
shuffleboard courts, and their location, should be based on the
primary user population. The user groups are defined in Table 4
for determining recreational needs.
Utilizing the past user trends of Clearwater's Parks and
Recreation Department as a guide, Table 4 summarizes these primary
user groups according to various recreational facilities.
Table 8 shows the number of facilities available to the
specific user group in each planning district. It is also noted
whether or not facilities in that planning district are above or
below established city standards for each facility. Only those
facilities with a designated service area radius are listed; those
that have been designated to serve city-wide recreational needs are
not listed.
Often an overlap occurs In a servIce area of a facility
from one planning district to another, making it difficult to rely
57
I
on this information completely. For this reason such information tit
on the geographical distribution of facilities must be used in
conjunction with the recreation facilities maps located in the
following section of this document.
Additionally, a need for recreational facilities in a
planning district may be influenced by those recreational facili-
ties located at neighborhood schools. No recommendations for the
establishment of facilities have been made without taking into
account the inventory of school facilities in the City's service
area.
Table 9 reiterates the Clearwater standard for each
facility, compares existing conditions to these standards, and
identifies the gap, whether it results ln a need or a surplus.
This gap is a quantifiable statement of present facility needs
for the City of Clearwater. This table 'also projects the antic-
ipated needs ln 1995 based on the estimated population
of each primary user group at that future date.
e
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58
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Planning
-District
1
2
3
4
5
6
7
8
9
10
TOTALS
1975
10,675
16,840
17,392
15,881
11,121
2,798
14,840
2,548
4,636
9,993
106,724
TABLE 10. PROJECTED POPULATION
e
City of Clearwater and Service Area
1980
10,938
17,119
17,496
18,475
11,470
f,798
14,783
4,609
5,682
10,646
114,053
1985
11,166
17,360
17,586
20,717
11,772
2,867
14,734
6,391
6,5.86
11,210
129,389
1990
11,436
17,645
17,691
23,366
12,129
2,905
14,675
8,496
7,654
11,877
~
127,874
SOURCE: Clearwater Planning Department
;,po< .~.:
't. q t~. ~~*' .,.,,,.
.. ".I. .... r.l,~~:... ,.' .' n ;,
U~.,.... ,~-
60
1995
11,770
17,999
17,822
26,656
12,571
2,953
14,602
11,112
8,981
12,705
137,171
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NON-TRADITIONAL RECREATION NEEDS
In addition to the more traditional active recreation needs
such as basketball, swimming, tennis, etc., there are many less tradi-
tional recreation needs such as fishing, primitive camping, boating,
cycling, JoggIng, equestrian trails, and nature centers.
Because of Clearwater's pleasant climate many of these less
traditional recreation activities are of primary concern for many
residents, especially in the areas of boating and fishing.
This plan would not be complete without addressing these
recreational needs.
Boating
Adequacy: Boating is a popular sport along the suncoast due
primarily to the Gulf of Mexico and the intercoastal waterway system.
Boating enthusiasts range from the large sailboat and plea-
sure crafts to small skiffs and rowbQats. However, the primary users
own medium size fishing/skiing boats.
There IS ample saltwater space for all boating enthusiasts.
Freshwater boating is limited to non-motorized boats in all City owned
lakes with the exception of Lake Chautaugua. Freshwater boating can
be done in several of the COWlty'S lakes, such as Lake Tarpon and
Lake Seminole. It should be noted that these lakes are very heavily
used.
Accessibility: Table I indicates that the city owns 9 public
boat ramps of which 8 are located at the Seminole Boat Launching Faci-
lity. This facility is heavily used. Saltwater boating and access
requirements will be addressed in the Marina Plan which is being
prepared jointly by the Clearwater Planning and Marina Departments.
61
Freshwater boating and water sports are limited due to the e
small Slze of lakes within Clearwater. With the development of Lake
Chautauqua Park much of the need for freshvater boating will be meta
Additional fresmvater boating and skiing can only be accomplished
by driving outside of the Clearwater Planning District.
Fishing
Adequacy: Clearwater is blessed with the resources necessary
to partake of both fresh and salt water fishing. At present the City
owns 48.9 acres of fresmvater and approximately 3,050 feet of water-
front on Alligator and Chautauqua Lakes (Table 11). Additionally, the
City holds title to about 28,600 feet of salt water shoreline.
As fishing is appealing and within the physical capabilities
of people of nearly all ages, it can be assumed that a large portion
of Clearwater's 107,000 population are potential fishermen. Unfor- e
tunately, there are no standards that carr aid in predicting the popula-
tion served by a given fishing facility. However, a publication pro-
duced by the State of Florida Department of Natural Resources, Outdoor
Recreation in Florida 1976, states that the demand for fishing re-
sources by the people of our general area is high as compared to most
other regions of the State. Furthermore, this demand is expected to
grow by approximately thirty percent over the next ten years.13
At present none of the City's lakes is being managed for
fishing purposes. The nearest lake with some degree of fish manage-
ment is Lake Tarpono In order for Clearwater's citizens to reach the
nearby managed freshwater facilities involves travel on several of the
area's more heavily used roads. Upon reaching these local lakes, the
fishermen will find that the facili ties are crowded wi th fishermen as e
well as other recreationists. Most of the attractive freshwater
62
TABLE II
FRESH WATER ACREAGE OWNED BY CITY
e
SITE
ACREAGE
5.0
10.8
1.5
5.4
5.1
16.9
1.3
1.9
Countryside Tr.act. 20
Cres t Lake
Hibiscus Lake
Lake Lucille
Moccasin Lake
Norton/Wright Park
Skycrest Park
Terrace Lake
TOTAL
48.9
FRESH-WATER WATER-FRONT LENGTHS
e
SITE
Alligator Lake
Chautauqua
'"
FEET
1,550
800
SITE
TOTAL 2,350
SALT - WA TER WATER-FRONT LENGTHS
FEET
4,500
2,130
13,200
8,800
TOTAL 28,630
Coope r I s Bayou
Edgewater Drive
Memorial Causeway
Sand Key
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63
fishing spots that the State of Florida offers are located in the tit
central highlands portion of the peninsula ~a minimum of 60 miles
from the Clearwater area).
Therefore, it would appear to be a wise investment to
manage to some degree several of the City's present lakes for
fishing purposes. Several City lakes were studied in the past by
the Florida Game and Freshwater Fish Commission. The Commission
suggested a number of possible actions to improve fishing. Some
possible manipulations suggested were construction of brush pile
fish attractors, providing shoreline access for bank fishermen
while retaining a healthy amount of bank vegetation (a checkerboard
effect), and selective treatment for smaller fish used as food by
desirable game fish. The following is a summary of the Commission's
recommendations. tit
Name of Water Body Recommendations
Lake Bellevue Shoreline checker boarding
Motorless boats only regulation
Fishing dock
Bush pile fish attractors*
Crest Lake
Treat filamentous algae*
Hay bales*
Mocassin Lake
Shoreline checker boarding
Selective treatment for shad*
Motorless boats only regulation
Lake Chautauqua
Brush pile fish attractors*
Improved boat ramp*
An updating of the Commission's 1973 investigations and findings IS
currently being conducted.
tit
64
e One possible improvement that ,,,ould benefi t the sal twater
fishermen would be the provision of fishing 'piers at City properties.
Additional measures that would result ln improved saltwater fishing
would be the protection and promotion of native vegetation along
shorelines and on shallow bottoms. Due to the extensive development
of bayfront properties and bottomlands, there has been a reduction ln
fish quality and quantity that has been noticed by the fishermen.
Accessibility: It is difficult to determine exactly what
the best service area of the City's lakes and waterfronts are for
fishing use. However, in considering saltwater accessibility one
should note that the City is bounded on both the east and the west
by saltwater giving residents good access to fishing areas. By
studying a map of the Ci ty, it will also be noticed tha t Ci ty-o,med
e lakes are spread fairly evenly throughout Clearwater thereby giving
the City fairly good access to freshwater lakes.
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Recreational Path System
A recreation path system would encompass such recreational
activities as bicycling, walking, jogging, physical fitness, riding
horses, riding off street motor bikes. The system would include
bicycle trails, equestrian trails, jogging/walking trails, physical
fitness trails, and motorbike trails.
1. Bicycle Riding
According to a study done by the State of Florida Department
of Natural Resources in 1976, bicycle riding accounted for the greatest
number of user-occasions than any other outdoor recreation activity in
the state. They also indicated that the district that Clearwater is
located in has the second largest need for bicycle trails within the
state.14
e
Clearwater's present bicycle system covers 29 miles of side-
walks and streets, all of which are loc~ted west of U.S. 19, north of
Nursery Road and south of Union St. This system 1S designed primarily
for school age children and is not designed for transportation purposes.
e
The City of Clearwater Planning Department with aid from the
Department of Housing and Urban Development has conducted a study and
developed a Bikeway Plan for the City of Clearwater. We feel the Bike-
way Plan should be adopted and included as part of this open space/
recreation plan. Please refer to Bikeway Plan for more complete in-
formation.
2. Equestrian Trails
Equestrian trails should serve areas where horses are al-
lowed or where actual concentration of horses exist. Also routes
tit
66
e should avoid the use of streets and roads. These two criteria for
equestrian trails limit the development of such trails to the portion
of the City east of U.S. 19, north of Coachman Rd., and south of
Curlew Rd. At the present time there is no way to determine the
demand for horseback riding within Clearwater. There is, however,
strong indication that persons wishing to ride will frequent places
where horses can ride in a natural, open setting rather than the
streets and roadways of Clearwater. Equestrian trails are not
compatible with other trail systems, therefore limited development
IS proposed.
3. Jogging/Walking Trails
Jogging/walking trails can use existing bicycle trails,
however, it should be pointed out that this is not the most desir-
e able situation. Jogging/walking trails should serve residential
areas especially those areas with teens~ working age adults and
retirees. Also jogging trails should serve schools and recreation
areas where they can be tied in with physical fitness programs and
activities. There has been tremendous national emphasis on jogging
and walking in the past few years as is evidenced by the increase
of City residents who jog and walk throughout the City. This is
one of the most popular and fastest growing individual sports In the
nation. With the increase of participants the need for specially
designed trails and routes for runners and walkers must be considered.
4. Physical Fitness Trails
At present the City has no designated physical fitness
trails. It is recommended that fitness trails serve schools and
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67
recreation areas where they can be tied in with existing physical
tit
fitness classes and other athletic programs.
Fitness trails should
be one to 2 1/2 miles in length with a variety of fitness apparatus
along the trail.
Increased awareness by the public and increased
programming by the City will mean an increased demand for such
trails.
5. Motorbike Trails
In recent years there has been an lncrease ln off-street
motorcycling. Since there are no dedicated motorbike trails or
sanctioned riding areas for motorbikes, riders participate in their
sport wherever they can find open space land. This in itself has
caused much concern by the majority of non-participants and by land
owners who do not wish motorbikes to use their property.
From
an environmental standpoint motorbikes can be very detrimental to
e
open space land.
. .
For this reason it is proposed that a facility be
provided so that participants in this sport will have somewhere to
go. Motorbike trails should not be located in residential neighbor-
hoods or developed areas where conflicting land use situations can
e xi st.
6. Primitive Camping/Nature Centers and Trails
Clearwater is void of any facilities to accomodate reSl-
dents in the area of camplng and nature-environmental education.
With the growth and urbanization of Clearwater and loss of primal
open space land, it becomes imperative to save some land for camping
and nature acti vi ties. There is a growing demand for "back to nature"
type activities such as canoeing, hiking, nature walks, bird and
e
animal searches, camping, orienteering, etc. A need exists to pro-
68
4It vide for such facilities Slnce the nearest area is at Ft. Desoto Park
some 45 minutes away. Transportation problems prohibit many persons
from participating in these activities.
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PLAN FOR OPEN SPACE/PARKLAND
4It
According to Table 6 the city presently has a deficit by districts of
496.0 acres of open space needed to meet the Clearwater standard of
10 acres per 1000 persons. This table also reflects that the pro-
jected needs by 1995 will be an additional 138.6 acres. It is the
city's intention to secure and acquire land to meet the deficiencies
of open space land In as many planning districts as is possible,
and while doing so to offer a well balanced variety of parks in-
cluding mini, neighborhood and community, both passive and active,
in all districts.
In order to accomplish this goal and because of availability
we are proposing that open space land be acquired as rapidly as pos-
sible.
The follm'ling table reflects the amount of land to be acquired
e
each year in order to meet standards:
Acres Needed to
Meet Gap
Acres Needed to r.leet
Projected Growth
1981
1982
1983
1984
1985
1986
1987
1988
1989
1990
1991
1992
1993
1994
1995
TOTAL
80
80
50
50
50
50
50
46
40
496
40
30
20
20
10
13.6
138.6
A comparison and analysis of each district is needed In
order to more fully understand the plan and priorities for open space
land acquisition.
(Refer to district map 5).
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District I
This district is restrictive In nature by the natural
boundaries of water, the Gulf of Mexico on the west and the Inter-
coastal Waterway to the east. The Gulf and Intercoastal Waterway,
although recreational in nature and certainly open in respect to
"open space criteria", do not fall within our inventory and are
therefore not an element of this plan. The beach and causew~y offer
a unique type of open space area not found in most congested areas 0
It is important to note that Clearwater Beach is included in this
study as 28.4 acres even though the acreage may change due to beach
erosion and tidal current changes. District I contains the only
County Park within the entire City, Sand Key Park, which accounts
for 28.5 acres of open space land. This district currently has a
surplus of 3.4 acres, however, by 1995 it is projected that 5.4
additional acres will be needed. Some of the needed acres will be
secured by the beach extension and rehabilitation program. The
remaining deficiency of land should be acquired in Island Estates.
At present, there is no open space land available in Island Estates
for citizens' use.
District II
This district ranks first in existing open space acreage
available (Table 12). This is primarily due to the 93.9 acres allo-
cated for the Clearwater Country Club. Even with this ranking
District II has the 4th largest deficiency of land needing 41.7
acres (Table 13). District II is congested and heavily populated
leaving a minimum of open space land available for purchase. It may
e be difficul t to find addi tonal open space land wi thout having to
make some type of condemnation of older facilities and structures.
71
TABLE 12
City Planning Districts Ranked by
Existing Open Space Acreage
Planning District
Total Open Space
Acreage Sector Ranking*
1
108.2
128.9'
79.0
4
1
6
2
3
4
21. 6
9
5
90.6
5
6
10
7
38.1
8
8
111.8
3
9
128.2
'65.9
2
10
7
*
Standing within the City
72
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PI anning
District
1
2
3
4
5
6
7
e8
9
10
*
TABLE 13
City Planning Districts Ranked by
Open Space Acreage Deficiency
GAP (acres needed to
mee t standard)
Acres Sector Ranking*
3.4 sur'"
plus
41. 7
95.8
158.0
23.4
27.9
i 109.9
i
I 69.8
I surplus
!
i 73.5
! surpl us
I
39.3
8
4
3
1
7
6
2
9
10
5
Standing within the City
e
Projected Needs by Total Needs
1995
Acres Acres Sector Ranking;
--~----,..._----- ----'.'------.-.. ----'.-. .-.---.---,-,---..,'- -..-----.~.~-._1
8.8
9.4
5.4
51.1
I 99.3
i
I
I 245.0
I
I 35.1
I
I
I 29.5
I
I
I 108
i
I
I . 7
i surplus
I
I 38.5
; surpl us
1
j
,
61. 2
8
5
3.5
3
87.0
1
11. 7
6
1.6
7
2
-1. 9
69.1
9
35.0
10
21. 9
4
73
The Ci ty should attempt to secure land In the north and central e
portions of this district (see map 5)0
District III
This lS also one of the oldest and most populated districts
In the city ranking 5th according to available open space acreage
while having the third largest deficiency in land of 95.8 acres.
There is a great deal of commercial development including Downtown
Clearwater, Sunshine Mall, business strips along Missouri Ave.,
Ft. Harrison Ave. and Court St., within this district. In addition,
there are many high--use multi-family living units within this dis-
trict making it more congested.
Land is at a premlum In this district and it will be very
difficult to secure the necessary land to bring it up to standard.
Neighborhood and mini-parks are needed In this area, since Norton e
Park and Glen Oaks provide the necessary Communi ty Parks.
District IV
This portion of the city has the largest deficiency in open
space land needing 158 acres. The inventory reveals only 23.4 acres
of open space land in this district. District IV has the largest
population i.n the city with 17,956 and by 1995 it is projected to
have 26,656 persons. Land is presently available, however, it needs
to be acquired as soon as possible, since tremendous growth will
continue to take away available land. Approximately 1/3 of the
needed land may be realized from land dedication; however, well over
100 acres will need to be secured through other means. District IV
is in need of open space land in all areas of the district with the
exception of the northeast corner. As can be seen by Table 5, e
74
~ District IV will be in need of 87 additional acres by 1995. Total
deficit for this district will be 245 acres. Because of this and
other factors, District IV is of primary concern.
District V
This district is primarily a residential district with
limited commercial development. Included in this district is the
Clearwater Air Park, St. Pete J.C. and a private golf course.
District V ranks fourth in available acreage and is only
23.4 acres short of standard. This district is in relatively good
shape in comparlson to other districts primarily because of acreage
at Crest Lake Park (36.5) and Northeast Coachman Park (16.8).
Acreage should be purchased in the central and northwest portion of
this district, since very little, if any, land dedication will be
e realized. District V will also help relieve some of the open space
needs of District VI.
District VI
This is a commerical business district containing the
smallest segment of Clearwater's population, 2,788 people (Table 5).
Clearwater High School, located in the middle of this district, yields
the only open space relief for the entire district. Since this lS
a narrow district with relatively no land available for acquisition,
it is proposed that the acreage needed by this district be included
in District V to the north and District VII to the south, with the
majority of the open space requirements being located in District VII.
District VII
District VII ranks eighth in open space land available and
tit correspondingly has the second greatest deficiency in land needing
109.9 acres. No major attempts have been made to acquire open space
75
land in this district due to the fact that over 60% of the land and e
residents live in the county. However, for planning purposes it is
important to begin acquiring land in this area with the anticipation
of future annexation into the city. It will be very difficult to
secure land since there is virtually little or no land left available
for development. There lS some vacant land In the southern portion
of this district; however, it may not be readily accessible for the
majority of residents. Needs exist throughout this district. We
propose the development of small mini and neighborhood parks and
joint use of school facilities such as Plumb Elementary and Oak Grove
Middle School in order to accomodate some of the open space needs.
District VIII
This district consists primarily of the north Countryside
development. The surplus of land presently shown as 69.8 acres re- e
suIts from the city's land dedication orrlinance and acquisition of
the "eagles nest" property from the school board. Some of this
surplus will be lost by future recreation development. It should
also be noted that Countryside High School, located in the southeast
corner, provides some open space land and recreational facilities.
This district lS projected to have the second largest growth rate by
1995 and that the surplus of 69.8 acres will be largely then used up
by the additional need for 69.1 acres.
District IX
District IX has the second largest amolmt of open space land
available with 128.2 acres; however, 73.5 acres is surplus, over and
above the required 54.7 acres needed to meet standard. All of the land
designated in this district is undeveloped at the present time, The tit
76
e majority of the land is in areas of high environmental sensitivity,
therefore the intended use of well over 100 acres is to be for
nature parks, camping areas, and wildlife preserves. There is still
a great deal of undeveloped land in this district; therefore, the
city may be acquiring additional land through land dedication. With
this additional land, it is felt that District IX's needs will ade-
quately be served through the year 1995.
District X
It lS difficult to provide open space land equally for this
entire district due to the land configurations and the natural water
boundary of the Old Tampa Bay. U.S. 19 and State Road 60 segment the
southern half of this district and make development and purchase of
any open space land south of Rt. 60 very difficult. All of the present
e open space land now available lS located north of State Road 60. Table
5 reveals a gap of 39.3 acres presently needed and the possible future
needs of an additional 21.9 acres. With the development of the Per-
forming Arts Center some additional acreage will be added to the in-
ventory. This has not been included since it is not certain as to how
much land will be left for open space use. There are some large tracts
of land still availabl~ and it is recommended that the deficit in land
be made up primarily by purchasing one large parcel.
After analyzing each district separately and comparlng the
needs and future growth trends of each district, the staff has devel-
oped the following priorities for the acqusition of open space land.
(Table 14) Map 7 gives proposed recommendations for site location and
type of park.
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TABLE 1-1
Priorities for Acquisition of
Open Space Land by Districts
Total Amoun t of Acreage to be Acquired each year to meet standard
Dis- Acreage I ~L_l?2-[.
Trict Deficit 81 82 33 84 85 86 87 88 89 90 91 92 95
1--- ---
I 5.4 5.4
II 51.1 10 20 10 11.1
III 99.3 30 10 10 10 10 12 5 12.3
IV 245.0 50 30 10 20 20 30 22.9 211 .9 20 2.6 10 13.6
V 35.1 10 20 5.1
VI 29.5 10 10 9.5
VII 108 30 20 9.5 34.1 :3.4
VIII .7
surplus
IX 38.5
surplus I
X 01. 2 20 I 10 10 :: 1.2
-
TOTAL 634.6 80 80 SO SO 50 50 SO 46.0 40 1';0.0 30.0 20 20 10 13.6
I
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tit
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METHODS OF FINANCING OPEN SPACE ACQUISITION
e The City of Clearwater has had a history of rapid growth,
thereby putting the city at a deficit in terms of open space land
available. It is easy to see how rapid development can expand into
the outlying areas and consume open tracts of land. As a direct
result of this rapid expansion, open land, whether it be agricultural
or unused, is disappearing. This process not only reduces the op-
portunity to gain access to open space, it also makes it difficult
and expensive to obtain open space for future use. Legal tools which
can be used for the preservation and acquisition of open space may
include: open market purchases, condernnatio~ leasing, open space
zoning, subdivision regulations (land dedication), preferential
taxation, easement~ and donations.
Purchase: Outright purchase of the fee simple title is the surest
tit method of controlling and thus preserving open space. When purchasing
1 and, it is importan t to remembe r that 1 and values tend to in cre as e, and
the sooner it is purchased the less it will cost over the long run.
One disadvantage of the outright purchase is the elimination of the
property from the tax rolls.
Control of property may be maintained while deriving some
economic benefit by one of two methods, the first being the leaseback
arrangement. A purchase leaseback arrangement allows local government
to guarantee the continued existence of open space whil~ deferring the
cost of maintenance. In the purchase sa1eback arrangement, property
is purchased and then resold with certain deed restrictions. This
allows the land to remain on the tax rolls while effecting a greater
degree of control upon development.
tit The cost of land varies from district to district and from
79
one site to another, making it virtually impossible to predict the e
cost of the land. From all current indications and from past pur-
chasing contracts, the average cost of land is $20,000 per acre.
Therefore, if all the needed land were purchased in this manner, it
would cost a little less than 13 million. However, this plan does
not propose to purchase all of the land, only a portion thereof.
Condemnation: Eminent Domain may be used to acquire land if the
owner refuses to sell. A condition of any condemnation action re-
quires that the land be purchased for a public purpose, not for
speculation. This method should only be used to acquire valuable
park and open space land when there are no practical alternative
methods of preserving a property; because land acquired by condemna-
tion would be more difficult to obtain, and thus, more costly than
land available on the open market.
tit
Lease: Land may be preserved for a specified period of time by means
of a lease. However, the method would be costly and temporary if not
combined with a purchase agreement. A lease purchase would then re-
semble a deferred payment process, whereby rent monies are applied to
the purchase price.
Zoning: Zoning is probably the single most important legal device
available for carrying out the land use plan of a commwlity. Through
zoning, incompatible land uses can be separated, and population densi-
ties can be controlled. As related to parks and open space, zonlng
can be used to maintain open areas of varying types.
Zoning for agri-
culture and recreation can be useful to a limited extent. The rights
of the property OWJl.er to sell or otherwise develop cannot be arbi-
trari1ydeprived by such action. Other devices, such as planned unit e
80
~ or cluster zonlng or the transfer of development rights allows the
consolidation of development effort in order to allow for more
effectively used open space.
Subdivision Regulations: Subdivision regulations are the legal means
of guiding the development of subdivisions. Ordinance No. 1449 of the
City of Clearwater provides for the dedication of parkland for new
subdivisions over 10 acres. In addition, all new properties annexed
into the city for residential purposes must dedicate 10% of their
land or money in lieu thereof. Land dedication on the development
site lS preferred by most developers because of the related economlC
benefits of parkland to any development. The City staff lS currently
studying the land dedication policy and may be proposlng In the near
future some changes which will have a positive influence on open
e space. This is an excellent tool, and one which has been and will be
used extensively on a citywide basis.
Preferential Taxation: High property taxation on urban undeveloped
land puts pressure on the landolffier to capitalize on the inherent
value of his land, thus encouraging the pace of development. As urban
development becomes more prevalent, the pressures of development on
land values and property taxes tend to increase. Preferential property
taxation may relieve some of this pressure from the landowner, there-
fore, giving him the opportunity to more easily maintain his land in
an undeveloped state. This would preserve properties needed for public
use until they can be acquired. It also may mean the difference between
profit and loss for various agricultural enterprises, thus maintaining
more land in an agricultural use. The use of this method is usually at
tit the discretion of a higher governmental body, and cannot be directly
81
controlled by a municipality without proper legislation. e
In 1967, the Florida State Legislature passed a statute
permitting preferential taxation on certain properties designated by
local government. This preferential taxation is based upon an assess-
ment of the present use rather than potential value. This, however,
lS a temporary devic~ for Florida has a ten year limitation on any
designaied land. It should be considered as an interim method when
other means of preserving open space are not available.
Conservation Easements: A more recent concep~ that has been most fre-
quently used by the Federal Government in maintaining scenic parkways,
is the idea of obtaining an easement. The easements are acquired in
a manner similar to road or drainage easements, but the restrictions
deal with maintaining open space. Thus, the property remains in
private olmership and on the tax rolls, but the development rights tit
are restricted. This has potential for'preserving waterways and
linear systems.
Donations: Occasionally, landowners donate land to the ci ty for tax
purposes. In rare cases, the city may acquire land from estates.
These two methods are rare, and are not counted on heavily in the plan.
The above methods provide local governments with the tools
necessary for the preservation of open space. An open space preserva-
tion program can only be effective if the appropriate methods are
implemented in a timely fashion.
tit
82
4It
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PLAN FOR RECREATION FACILITIES
A district analysis (Table 8) was conducted in order to
determine the deficiency of facilities within each district. Loca-
tion of needed facilities was based on this analysis for Basketball
Courts, Horseshoe Courts, Handball Courts, Picnic Areas, Playground
Appara~us, Recreation Centers, Swimming Pools and Tennis Courts.
Other facilities not dependent upon geographic standards
are located in areas best suited for their type of use. Included In
this group are Baseball Diamonds, Football/Soccer Fields, Golf
Courses, Gymnasiums, Lawnbowling Courts, Shuffleboard Courts, and
Softball Diamonds.
Maps 8-25 have been prepared to designate existing facilities
and proposed facilities. Those facilities whose geographic location
and needs are based on a service radius are indicated by circles
scaled to the recommended standard. The placement of new facilities
on these maps indicate the general areas where new facilities should
be located in order to serve the maximum number of primary users as
derived from preceding demographic data.
Areas of overlap indicate an existing or proposed surplus,
although this should not be considered as a duplication of serVlces.
This merely shows where the minimum standards are exceeded and indi-
cates desirable conditions. In cases where there is a standard for
primary users and for service radius, both standards have been met.
The symbols recommending the placement of future facilities
demonstrate the realistic approach of using existing city-owned
properties where possible, although acquisitions of land for these
83
facilities can also be considered.
Baseball Diamonds (regulation)
Table 9 reveals that the city currently has achieved
desirable conditions for regulation baseball diamonds through 1995.
This fact remalns valid if all fields designated as regulation base-
ball diamonds can be used as such. If, however, fields are to be
used for other purposes, thereby preventing the primary user group
from participation, additional fields would be required.
Baseball Diamonds (youth)
According to proposed standards the city will need one new
baseball diamond by 1995. Planning Map 9 reveals the proposed loca-
tion of this one field to be in the Countryside areao This location
was picked primarily due to the large increase of user population
projected for this district and in Districts IV and IX which are
adjacent. An excellent alternate site \~ould be to locate the field
in District IV. Because of the present desirable conditions"it lS
suggested that this field be developed between 1990-1995.
Basketball Courts
In order to meet the standard for Basketball Courts, Map 10
reveals the addition of 9 new sites and 14 new courts. A total of 13
new courts will exceed our numerical standard by 7 courts, however,
this is necessary in order to meet the geographic site and district
standard.
District I - New site proposed for Island Estates. At present, this
need can be met by constructing one court on leased St. Brendan's
property. No guarantee for continued use.
84
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tit District II - With the inclusion of school basketball courts, the
needs are met and the site requirements are adequate.
District III - One new court needs to be added at Ross Norton
facility to meet numerical standard. Site standard can be met
by using school facilities, and by renovating and using St.
Cecelia's School basketball courts.
District IV - One new site is proposed in the eastern segment of
district, along with the addition of one court to the Montclair
p lay ground site.
District V - Kennedy Middle School helps meet site standard; however,
one new site and two courts are proposed for eastern part of
district.
District VI - Geographic standards are to be met by facilities In
e surrounding districts.
District VII - Two new locations with one court each are proposed.
This area is of low priority, since most of the land in this
district is not in the incorporated city. Facilities at Clear-
water High School are used to meet recreational needs.
District VIII - Two new locations are required, both of which can be
met by existing city properties in Countryside. Countryside High
School will also be a possible source for basketball courts.
District IX - Two new sites are required.
District X - One new court is to be added at Del Oro, while courts
at Condon Gardens and Eisenhower Elementary School will help meet
site standards.
Priorities for meeting standards on outdoor basketball courts
e are as follows:
85
Project Proposed Project Completion Date e
1. Si te 6 1985
2 . Site 2 1985
3. Site 3 1985
4. Norton Park 1985
5. Si te 9 1990
6. Montclair Park 1990
7. Si te 1 1990
8. Del Oro Park 1990
9. Site 5 1990
10. Si te 8 1995
11. Si te 7 1995
12. Site 4 1995
Football/Soccer Field
At present the city has 3 football/soccer fields, only one
of which is lighted (Map 1]).
With the tremendous growth of soccer the demand for fields
has rapidly increased, thereby making it impossible for the city to
meet the demand. Joint use contracts with Pinel1as County School
4It
Board and the Clearwater campus of St. Pete J.C. have allowed the
city to use their properties as temporary soccer fields. The city
has made a commitment at the Jr. College to develop a large grassed
playing surface that can be used by the school and the city.
Ideally, a large soccer complex containing 4 to 8 fields lS
recommended. St. Petersburg Jr. College has enough property to accom-
odate approximately 6 to 8 fields allowing, the city to meet its
standard. However, since there is no guarantee that the city will
continue to have use of these fields, it is proposed that the city
convert some older existing facilities into football/soccer fields
and that some new fields be constructed (see Mapl1).
If an existing facility is reconverted, such as Site 1 - Ray
Green Field; Site 2 - Phillip Jones; and Site 3 - Belmont Park, then
e
new facilities must be constructed in order to make up any deficits
86
e created. Si tes recommended are as follows:
Site 1
Convert Ray Green Field into two soccer fields and continue
to upgrade lighting at Jack Russell Stadium parking lot to allow
two more fields.
Site 2 - Convert Belmont Park into one field.
Site 3 - Develop one additional field at Woodgate Park. Presently,
this park has one soccer facility.
Site 4 - Develop one neH field in Countryside at Tract 20.
Site 5 - Develop two new fields on city owned property just north of
the northeast corner of Gulf to Bay and U.S. 19.
Priorities for meeting standards are:
Project Proposed Complete Date
l. Site 2 1980
2 . Site "? 1980
.J
e 3. Site 4 1980
4. Site 5 1985
5. Site 1 ,1990
Golf Course (Municipal)
This plan calls for construction of one 18 hole regulation
golf course to meet present needs. Land is available and preliminary
site work has been done on constructing a golf course on city property
in the northeast section of the city known as the 320 acreage. An
additional course will be needed by 1995. Location for the second
course has not been determined, however, the city does own the property
known as the Clearwater Country Club. This course is semi-private and
open to the public on a limited basis, therefore, this golf course
could be considered in the future as a city owned facility.
If it
ever reverted back to city control, the course would then become public
e and the standard woul d be me t. Comp le t ion date fo r new gol f cours e is
1985.
87
Gymn as i um
e
The ci ty has no gymnas l ums and is dependen t upon othe r
government agencies such as the Pinel1as County School Board, St.
Pete Jr. College and National Guard for minimal use of their gymna-
siums. Facilities used by the city are found on Map 6. These
agencies have been very cooperative In allowing the city the use of
their facilities, however, there is no guarantee of continued use.
Thus, the six additional gymnasiums are ShO\vl1 on J-.lap 13. Proposed
locations are based on needs and land presently owned by the city.
Priorities are as follows:
Project
1. Site 3
2. Si te 2
3. Site 5
4. Site 1
5. Site 6
6. Site 4
Project Completion Date
1985
1985
1990
1990
1995
1995
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Handb all Courts
The present demand for handball courts far outweigh the
city's supply. There are only 6 public courts at 3 locations. Future
sites and courts are recommended as follows:
District I - Two new courts at Youth Maritime Center. Island Estates
residents can use these courts or ones proposed for Bayfront
Complex.
District II - Three new courts at Martin Luther King Center with ad-
ditiona1 4th court open as a tennis wall.
District III - Three new courts at Norton Park Center with additional
4th court open as a tennis wall. Bayfront Tennis Complex could
be used as an alternate site for this district.
e
District IV - Four new courts located in the central portion of this
88
district.
4It
District V - No new courts recommended, however, courts at Sid
Lickton Field should be lighted.
District VI - Does not contain enough prlmary users to warrant con-
struction of a court.
District VII - Meets standards.
District VIII - Two new courts in Countryside area.
District IX - One new court with ~dditional tennis wall.
District X - Meets standards.
These recommendations include the development of 3 tennis
walls in conjunction with the handball courts. This is done because
of the compatibility of construction methods and compatibility of
activity. This plan exceeds standard by 1 court, however, in order
e
to meet geographic standards. This additional court must be included.
Priorities for completion are as follows:
Project
1. Site 1
2 . Site 3
3. Site 4
4. Site 2
5 . Site r-
::>
6. Site 6
Project Completion Date
1985
1985
1985
1985
1990
1995
Horseshoe Courts
As sho'wn In Table 9, the ci ty has 21 courts of which 12 are
located at Ed Wright Park (on Map 15). The courts at this location
constitute a major horseshoe pitching club and all residents who are
interested and serious about the sport of horseshoes utilize this
facility. In order to meet the geogr~phic standards of the 1 mile
service radius, it would be necessary to develop courts at five
~ additional sites, And in order to meet district standards of one
court per 2000 primary users, it would be necessary to construct 15
89
courts on the se sites. I f this propos a1 was adhe re d to new sites e
would be as follows:
District IV
District V
District VII
District VIII
District IX
5 new courts
2 new courts
4 new courts
2 new courts
2 new courts
The Recreation Department has observed through the years
that satellite horseshoe courts such as ones at M.L.K. Center, the
beach courts, and Del Oro Park are not used with any consistency.
On the other hand, the courts at Ed Wright Park are used on a
regular basis. The horseshoe club (primary users of Ed Wright Park)
is s imil ar to the Lawnbow1 ing and Shuffl e bo ard Courts that have 1 arge
centralized facilities at Stevenson Creek.
Because of this past experience and history, it is recom-
mended that the city strive to meet city wide numerical standards by e
building 6 courts at one prlmary locati6n, namely Ed Wright Park.
In this manner it lS felt we can better meet the needs of the citi-
zens. Proposed completion of new courts would be 1990.
Lawnbowling Courts
At present the city has 22 courts at Stevenson Creek. With
a standard of one court per 2000 primary users the city presently has
an ample number of courts. By 1995 it lS proposed that the city will
need 5 additional courts. The courts, if and when needed, should be
placed at the Stevenson Creek Park. Projected completion date 1995.
Picnic Areas
Picnic Areas are very compatible to the open space plan SInce
they comp 1 imen t rather than take away from open sp ace acre age. Pi cnic
areas are relatively inexpensive to develop and maintain. The expense e
90
e involved is the acquisition of land in order for facilities to be
developed. In order to meet the standard, it has been proposed to
establish 8 new locations. The city already owns7 of the 8 new sites
proposed, thereby reducing the major cost of land acquisition. This
does not preclude the fact that future picnic facilities could be
developed on newly acquired open space land. The proposed sites are
as follows:
District I - Mandalay Park, Sand Key Park. Since picnicking already
occurs at these two sites, full development of these facilities
for the public's use is recommended.
District IV - Frank Tack Park
District V - Northeast Coachman Park
District VII - Be1cheer property
4It District VIII - One of the Countryside Tracts of property.
District IX - Lake Chautauqua and Moccasin Lake properties
Priorities of development are as follows:
Pro j e ct Project Completion Date
1. Site 3 1985
2 . Si te 4 1985
3. Site 8 1985
4. Si te 6 1985
5 . Site 2. 1990
6 . Site 1 1990
7 . Site 7 1995
8. Si te 5 1995
Playground Apparatus
The city presently has 15 playground locations, nine of
which are located in Districts II and III. The remaining 8 districts
are all in need of one or more playgrounds. Playgrounds, like picnic
facilities, can be placed on relatively small parcels of land and can
e
91
be constructed at a relatively low cost compared to other facilities.
Proposed sites to meet the 1/2 mile service radius are as
e
follows:
District I - Island Estates Playground. At present the city has a
playground on land owned by the Catholic Church; therefore,
present needs are met. However, there is no guarantee that the
city will have continued use of this property, thus the concern
for a city-owned playgroundo
District II and III - Exceeds standards
District IV - Two playgrounds needed; one at Montclair site and the
other in the southeastern portion of district
District V - North East Coachman Park
District VI - Persons in this district will have use of Crest Lake
and North East Coachman Parks. There are only 593 primary users
in this distric~ therefore no new sites are recommended.
~
District VII - Belcheer property and new site in southwest portion
of district.
District VIII - Need two sites In the Countryside area. Property lS
available.
District IX - Lake Chautauqua north, and in central portion of
district.
District X - None proposed, due to playgrounds at Eisenhower School
and Condon Gardens.
Priorities are as follows:
Project Project Completion Date
1. Site 2 1985
2 . Site 4 1985
3. Site 8 1985
4. Site .., 1990 e
.)
5. Site 5 1990
92
,.-~~~ ~- -- -- --
tit Project (cont) Project Completion Date (con t)
6. Site 9 1990
7 . Site 7 1995
8. Site 6 1995
9. Si te 10 1995
10. Site 1 1995
Recreation Centers
Seven new recreation centers are needed In order to meet
numerical and geographical standards. By .looking at Hap 19 it is
easy to see why the seven sites are needed. While the city has
many sites in Districts I, II and III, all of which meet or exceed
standards, there are only two centers east of Highland Ave. to
serve the remainder of the city. Recreation centers can be built,
and are built, in conjunction with other recreational facilities,
such a~ tennis courts, basketball courts, playground equipment,
e
bal1fields, etc.
Proposed centers to be built are as follows:
District IV - Two centers will adequately serve this distric~ even
though the population in this district would indicate that three
centers are required. The two sites arc: one in central district
near Frank Tack Park and one in eastern portion of district.
Woodgate Park would be a third location if additional need for a
center arises.
District VI - Will be served by centers In District V and VII.
District VII - Two centers will be needed; one at Morningside on
Belcheer property and another in western portion of this dis-
trict. However, much of the land in this district is unincor-
porated. Location of a second center in this area should be a
.
low priority.
District VIII - One new center In Countryside area.
93
District IX - One center In northern portion of district will
tit
serVlce the majority of the population in this district.
District X - Two centers are needed; howeve~ only one at Del Oro
is proposed. At present there is a second center at Condon
Gardens which lS operated by the city.
The priorities for development are:
Project Proposed Completion Date
l. Site 1 1985
2 . Site 5 1985
3. Site 7 1985
4. Site 4 1990
r- Site 2 1990
J.
6. Site 6 1995
7. Site 3 1995
Shuffleboard Courts
Present conditions are sufficient to meet the standards
for shuffleboard courts. Shuffleboard courts, like lawnbowling
e
courts and horseshoe courts, are primarily used by special interest
groups and clubs. A main center like Stevenson Creek meets the
primary needs of shufflers. It has been shown that the smaller
satellite courts are used sparingly. Future needs for shuffle-
board courts (14 new courts by 1995) will best be met by adding on
to the present facility at Stevenson Creek or by developing a new
complex of 14 courts in the north sector of District IV. Completion
of this project would be 1995.
Softball Diamonds, Adult
There has been a deficiency of softball diamonds for
several years within the city, as can be seen by the present need for
8 new softball diamonds. Softball programs are being held on any
field available, including youth baseball fields, regulation baseball
.
fields and youth softball fields. The problem is that most of these
94
,- - -
tit seasons overlap creating a tremendous scheduling problem, not to
mention the fact that other types of fields do not meet the neces-
sary requiremen~ for a good softball facility. Persons who are
interested in softball will travel great distances to play, there-
by reducing the need to locate fields throughout the city. This
plan proposes that two four-field softball complexes be developed
to meet the deficit. If by 1995 two additional fields are required,
they could be constructed as a 2 field complex. Since a four field
complex would require a substantial amount of flat land, there are
few locations within the city that would be adequate. Possible
sites would be north of Chesapeake ballfield and Countryside 320
acres. Priorities would be to build one complex immediately and
another by 1990, with the remaining 2 fields to be constructed by 1995.
e Youth Softball Diamonds
According to Table 9, desirable conditions have been met
for the city and no new additional fields will be required through
1995.
Swimming Pools
The city operates three swimming pools, one each in District
II, III and VII. In addition, Bobby Walker Swimming Pool located at
Clearwater High (Map 23) in District VI is leased by the city and
available at certain times for public use. This plan requires 3
additional pools to meet the user standards and 3 locations to meet
geo graphi cal standards. As can be seen on Map 23 the re are vis i b 1 Y
six sites needed to meet geographic standards, but only 3 sites are
proposed. The proposal for swimming pools are as follows:
e District I - The ci ty owns the pool at Pier Pavilion and leases it to
a private contractor. The city can lease back this pool to offer
95
classes and a swim program. Also, individuals in this district 4It
have easy access to swimming in the Gulf of Mexico.
District IV - The plan is to build an Olympic size 50 meter pool in
this district. By doing so, this would take care of the needs
In District V and VI thereby not requiring additional facilities
In these areas.
District VIII and IX - These districts could be served by one facility
strategically placed near State Rd. 580. In addition, the southern
half of District IX can be served by a new facility in District X.
District X - One new facili ty is required to service this district and
part of District IX.
Priorities are as follows:
Project
Proposed Completion Date
1. $ite 6
2. Site 2
3. Site 4
1985
1990
1995
e
Tennis Courts
Table 9 reveals that the city presently has desirable condi-
tions, wi th 53 tennis courts. This is due primarily to 17 courts at
McMullen Park, 9 at the Bayfront Complex and 6 at Clearwater High
School. As can be seen on map 24 only 2 new locations are needed In
order to meet geographical standards for the entire city. This lS a
good situation to be in, however, an analysis of each district
shows that 7 of the 10 districts are in need of more courts to meet
district standards. This means that either more courts must be built
on existing facilities or completely new sites developed. To meet
district standards, the city would have to build 34 new courts by
1995. This is 23 courts more than are required to meet 1995 citywide e
96
4It numerlC standard of 11 new courts. Rather than building 34 new
courts it is proposed that the city plan for 16 courts on 5 new
sites.
The plan is as follows:
District I - This district has a deficit of 2 courts that can be
made up by a surplus of 2 courts located at the Bayfront Tennis
Complex.
District II The surplus of one court in District III at the Bayfront
Complex can be used by District II leaving this district with a
deficit of 4 courts. It is proposed to build 4 courts at one new
site In north section of district.
District III - Has surplus of 3 courts. To be used by residents of
other districts.
tit District IV - Propose to build 8 new courts on two new sites; one
site to be in eastern part of district, while second one to be In
northwestern section.
District V - Has a need for 6 courts which can be filled by those at
Clearwater High School.
District VI - Only requires one court to meet standard, therefore can
use one surplus from McMullen Complex.
District VII - This district has a surplus of 14 courts, one to be
used for District VI and two to be used by District X.
District VIII - Propose to light 6 courts at Countryside High which
can then be used by the public. Need will be satisfied.
District IX - Construct 2 new courts at one site in the central area
of district.
tit District X - There is a deficit of 4 courts, 2 of which Hill be
cove re d by 2 courts from Hdlu11en. The 0 the r 2 co urts s houl d be
97
constructed at a new site In district.
e
This plan best meets the citizens' needs in all districts.
Priorities for tennis courts are as follows:
Project Project Completion Date
l. Light Countryside
High 1985
2. Si te 3 1985
3. Site 1 1990
4. Site 2 1990
5. Site 4 1995
6. Si te 5 1995
e
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98
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Su}~ARY OF FACILITIES PLAN
This plan has been developed from an individual facilities
standpoint. The Staff and the Parks and Recreation Board have looked at
and studied in depth each particular facility. Needs, locations,
priorities and accessibility of future facilities have each been
addressed. This plan tells where the city's strong points are by
numbers of faci1i ties and proper location, and tells, conversely, where
the city's weak points are.
This is not to say plans for any single facility are totally
independent from every other facility. On the contrary, different
types of facilities can be located and constructed on one site to meet
the needs of the majority of the public. In comparing all of the
facilities maps, it can be seen that many facilities fall within the
same planning areas.
For this reason, In many cases, the majority of facilities
needs can be met by the development of multipurpose complexes similar
to those constructed at Norton Park or Martin Luther King. A multi-
purpose complex includes a cross section of many different facilities
and is generally located on a piece of property of approximately 20
to 40 acres. Included in such a complex would be a recreation center,
tennis courts, basketball courts, gyrrmasium, swimming pool, handball
courts, ballfields, softball, football/soccer, picnic areas and play-
ground apparatus. The multipurpose complex almost totally meets the
general needs of each geographic section of the ci ty. In the long
run these complexes help prevent duplication of facilities and are a
superlor means of offering recreation to a larger segment of the popula-
tion than just a small park with only 2 tennis courts and playground
99
eq uipmen t.
In some cases, area residents may need only playgrolli~d
apparatus and that should be planned for; howe~er, long range p1an-
ning attempts should be made to concentrate on developing these
larger multipurpose complexes. Additionally, a concentration of
numerous facilities on one site results in reduced costs for mainte-
nance and supervision.
Map 25 reveals proposed areas for multipurpose complexes
and shows how they can meet the needs of all citizens of Clearwater.
It should be noted that the existing complexes, Youth Maritime Center,
Norton Park and Martin Luther King need a few additional facilities
in order to be considered complete multi-use facilities.
Tentative priorities for development are as follows:
Proj ect
1. Site 1
2 . Site 4
3. Site 3
4. Site 2
Proposed Complete Date
1985
1990
1990
1995
Tables 8 and 9 summarlze the recreation facilities needs
of Clearwater. For a facility by facility needs analysis, refer to
the full plan.
100
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~ Plan for Non-Traditional Recreation Needs
Several non-traditional recreational activities are des-
cribed on pages 61 through 69. It can be observed that several
needs exist in these areas, therefore the following recommendations
are proposed:
I. Boating - Construct boat launching facilities whereby residents
from Clearwater can use Tampa Bay. Presently, the closest
boat launching facility into Tampa Bay is at Phillipe Park.
Develop Lake Chautauqua Park in such a manner so as to include
boat launching facilities.
II. Fishing - Develop a lake management program for existing lakes'
(Lake Be11evue, Crest Lake, Moccasin Lake, and Lake Chautauqua)
recommended on page 64
e III. Recreational Path Systems -
1. Bicycle Trails - Adopt the proposed Bikeway Plan for the
City of Clearwater which was developed 17 June 1978. This
plan would be a guide for future development of the bike-
way system. In addition this material is very specific
and contains all the information needed to augment the
overall comprehensive plan.
2. Equestrian Trails - No plans are proposed for equestrian
trails.
3. Jogging/Walking Trails - The proposed bikeway plan will not
only serve cycling needs but will also be used by joggers
and walkers. The bikeway plan ties in many recreation and
school facilities thereby meeting the criteria for accept-
tit able jogging paths. r-Iost joggers will run beside the bike
101
path Slnce grass lS a much better surface for runnlng. 4It
Walkers would have to compete for sidewalk space, however
it is felt that bicycle riders who use the paths would have
the courtesy to watch out for walkers. Additional jogging/
walking paths could be developed at multipurpose complexes,
Moccasin Lake Park, Lake Chautauqua Park, along Bayshore
Drive and Alligator Lake Park.
4. Physical Fitness Trails - These trails can be installed
with the development of large multipurpose recreation
centers. Fitness trails where possible should be located
near shower and restroom facilities. Three trails are
proposed for the city: Crest Lake Park, North Clearwater;
and Norton Park.
5. Motorbike Trails - None are proposed. tit
IV. Primitive Camping/Nature Centers and Trails
An ideal location for primitive camping and other types of
outdoor nature activities is the Lake Chautauqua property. The city
has planned for several years that this be the intended use of said
property.
Moccasin Lake Park is another site which lS planned to be
developed as a nature facility with nature trails, boarm'la1ks, nature
center, observation platforms, etc. With the full development of
these two facilities, the city will meet the need for nature centers
and primitive camplng.
e
102
e
COST ANALYSIS
It is very difficult (if not impossible) to predict the
cost of facilities for future years. With rapid inflation and a
fluctuating building market, planning becomes more difficult. How-
ever, in order to plan for the future, some cost figures must be
established. Following is a list of facilities and the typical or
average cost to construct such facilities. The majority of these
cost figures were taken from the August 1978 Fla. Recreation Facility
Cost Survey conducted by the Recreational Services Section of the
Division of Recreation and Parks, Department of Natural Resources.
Other costs were obtained through recent contracts and construction
projects the city has experienced over the past year (1978-79).
Note: Facility costs do not include the cost of land. This has been
e covered in Chapter VII "Plan for Open Space/Parkland". In addition,
all costs where applicable reflect cost for lighted facilities rather
than unlighted.
tit
Baseball Diamonds Regulation
Baseball Diamonds Youth
Basketball Courts Outdoor
Football/Soccer Fields
Golf Course
Gyrnnas i um
Handball Courts (3 wall, 4 courts)
Horseshoe Courts (per court)
Lawnbowling Courts (per court)
Picnic Areas (without pavilion & RR)
" "(with pavilion & RR)
Playground Apparatus
Recreation Centers
Shuffleboard Courts (4 courts)
Softball Diamonds Adult
Softball Diamonds Youth
Swimming Pools (bath house, inc)
Tennis Courts (2 courts)
Bicycle Trails (6' aspha1 t)
(Jogging/Walking Trails)
Boat Ramps (double)
Physical Fitness Trails
Contracted
$ 39,534
29,239
14,000
30,000
1 to 2 million
250,000
34,004
750
4,500
In House
$ 28,500
20~910
12,000
20,000
50,000
12,000
200,000
13,525
29,239
29,239
300,000
30,000
30,000
25,089
500
3,000
5,000
45,000
10,000
11,500
20,910
20,910
per mile
26,000
22,000 per mile
18,829
8,000
12,189
6,000
103
By using these cost estimates we can arrive at the total
cost of the proposed recreation facilities plan (see table 15).
Cost estimates used are based on the contracted price for each
facility rather than the In-House cost.
While this master plan has been primarily concerned with
future needs and demands of the City, there is a very real concern
and systematic plan for the upkeep and rehabilitation of existing
facilities. Often times when emphasis is placed on acquiring new
lands and facilities, the maintenance and capital value of existing
facilities begins to decline.
The City staff carefully realizes this factor and has
made great strides in order to prevent this from happening. A
predetermined portion of the Parks and Recreation budget is allo-
cated for the general upkeep and maintenance of capital investments
within the Parks and Recreation Department including recreation
buildings, ballfields, playgrounds, e~c. While the majority of
capital investments and facilities are budgeted for, there are
some facilities and items which are not covered in the budget.
These include certain playgrounds and parks, lighting systems,
and parking facilities to name a few. The city has attempted to
identify these areas and provide for them in separate Capital
Improvement Budgets. A need exists to continually update and
maintain our present facilities.
104
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e
e
e METHODS OF FINANCING RECREATION FACILITIES DEVELOPMENT
With a total projected cost of over seven million dollars
for facilities and approximately thirteen million dollars for open
space land, several financing methods will be needed in order to
enact this plan. There are many revenue sources available to cities,
the two primary sources being Federal and State Grants, Loan
Programs, and Taxing Methods.
Open Space Land: A program to help commlillities acqulre and develop
land for park, recreation, conservation, scenic or historic purposes
in urban areas. Acquisition costs include costs for acquiring land
and certain structures, demolition of inappropriate structures and
real estate services. Improvement costs include park development
and costs for basic facili ties, such as roadways, signs, landscaping
e and other items, but not costs for maJor construction. Relocation
assistance must be provided.
Public Land for Recreation, Public Purpose and Historic Monuments:
Through this program, local governments can lease or acquire public
land for historical monuments, recreation and public purposes.
Outdoor Recreation Technical Assistance: This program assists other
federal agencies, states, local governments and private interests in
the development and operation of effective programs to meet public
needs for outdoor recreation and related environmental quality.
Special advisory services may be provided on request to
state agencies concerned with planning, financing, developing and
managing outdoor recreation programs, and related research and educa-
tional projects may be provided to public and private academic and
4It research organizations. Technical assistance lS glven to state and
109
of the total group. Membership fees also represent a most equitable 4It
method of.providing serVlces and facilities to both Clearwater and
non-Clearwater residents.
District Taxes: District taxes are ad valorem taxes collected within
specific areas to support programs within these areas. Although
special taxing districts for parks and recreation are not common,
some facilities are to a large degree supported by special district
taxes. This would draw residents of the surrounding non-incorporated
areas into the financial structure of those facilities they live
close to and are able to benefit from.
General Obligation Bonds: To meet the needs established in this plan,
it will be necessary to borrow money to be repaid from subsequently
collected revenues. Borrowing permi ts local government to meet the
obligation of special projects that result in wide fluctuation in the tit
annual budget. The most common method of borrowing money for use In
developing non or low revenue producing public facilities, such as
open space and recreation facilities, is the sale of general obligation
bonds. Such bonds are backed by the collection of ad valorem taxes on
property, sometimes imposed specifically for the payment of the bonds.
They can be requested by local governments or by a special taxing
dis tric t.
Revenue Bonds: Revenue bonds are sometimes used to obtain money to
finance projects that can be expected to produce enough money to pay
for the amortization of the bonds. Such bonds are paid for exclusively
from the proceeds of the facility to be constructed from the bond
proceeds. Revenue bonds have been used to finance such things as
marlnas, golf courses, stadiums, and other large self-supporting faci- e
lities.
110
~ local governments relating to applications for federal surplus
property for public park and recreation purposes in cooperation with
GSA's Disposal of Federal Surplus Real Property program (39.002).
Technical information and aids are available to federal, state, local
and private programs relating to outdoor recreation and environmental
quality. Activities in support of technical assistance, research and
education include periodic and special publications, participation In
semlnars, conferences and consultations, cooperative programs and
liaison between public and private agencies, governmental and educa-
tional institution~ and public and professional media.
Historic Preservation: Qualified applicants involved In historic
preservation efforts are eligible to receive funds on a matching
basis. Funds can be used for acquisition of historic property and
tit to finance development costs, such as research, projects costs,
preparation of plan~ and specifications~
Florida Recreation Development Assistance Program: Through this
program local governments are able to acquire and develop land, wate~
and related resources for recreational purposes. Priority in considera-
tion shall be granted to those projects of an urgent nature, offering
recreational opportunities which may well be under a program of the
State of Florida or other public program~ if such projects are de-
clared as recreation areas in perpetuity by contract or other legal
documento The State of Florida Department of Natural Resources may
provide 100 percent (100%) of the project cost up to $50,000. Any
cost in excess of $50,000 must be matched by the project sponsor on
a 50-50 matching basis up to a maximum participation by the state of
e $100,000.
III
Land and Water Conservation Fund: This program enables local govern- e
ments to acqulre and develop quality outdoor recreation resources on
a 50-50 matching basis. The grantee expends all necessary funds to
complete the project and then requests 50 percent (50%) reimbursement
from the state. The grantee must agree to permanently dedicate the
project to public outdoor recreation use and assume responsibility for
continuing operation and maintenance. To qualify for monetary assis-
tance, acquisition or development proposals must be in accord with
the State Comprehensive Outdoor Recreation Plan, and must meet the pre-
scribed criteria. Eligible projects may vary in type from relatively
small recreation sites of a localized nature to large multi purpose
recreation complexes with regional significance.
TAXING METHODS
Ad Valorem Taxes: Ad valorem taxes are levied against real property. 4It
Ad valorem taxes are the private source of money gOlng into a govern-
ment's general fund. A considerable part of the operating and capital
costs of a government are ultimately met with ad valorem taxes. Ad
valorem taxes are, and will continue to be, the most important source
of income for local government.
User Fees and Charges: User fees have become an increasingly important
source of lncome. These funds are for the most part used to support
the staff of instructors and counselors. User fees are made up of an-
nual memberships, charges for course offerings and use of special
facili ties tha t require special supervision and main tenance, such as
swimming pools. User fees are an excellent method of defraying the
costs of costly facilities that may be used by only a small percentage
e
112
4It Revolving Land Acquisition Fund: In order to secure land needed for
parks and other public uses prior to the time it is needed, the
revolving fund may be established. Based on sound planning, this
process would insure the preservation of adequate and suitable open
space, and would save the taxpayers untold thousands of dollars by
buying land before the price increases appreciablyo The advanced pur-
chase of land would also act as a guide to development of desirable
locations by providing a clear picture of future land use and local
government intentions.
Such a fund could be established with money obtained from
parkland dedication, property taxes, general obligation bonds, or other
tax sources. Money withdrawn from the fund to buy park land could be
replaced with money received from user fees, ad valorem taxes or other
4It tax source. This practice is used In many areas to provide for the
future property needs of education systems.
CONCLUSION
A plan is only successful if carefully monitored and up-
dated. The job does not end here. The priorities and recommendations
are flexible, and each step should be reviewed prior to its actual
implementation. A complete evaluation of assumptions and recommenda-
tions should be carried out at the end of each five year period.
This should reflect changes In population and growth patterns as
well as new concepts in leisure activity.
e
113
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FOOTNOTES
.
lHammer, Siler, George Associates, Development Oppor-
tunltles and Economic Strategy, Report prepared for The Research
Group, InC:-and City of Clearwater, Florida, August, 1975 (Clear-
water, Florida, 1975) p.42
2Interview with Clearwater Chamber of Commerce, Clearwater,
Florida, June 16, 1977
3Hammer, Siler, George Associates, p. 54
4Ibid., p. 45
5Ibid., pp. 23, 51, 52
6The lvlunicipal ~Ianagement Series, Managing Municipal
Leisure Services (Washington, D.C.: Internation City Management
Association, 1973) p. 191.
7Ibid., p. 154
8Ibid., p. 191
9Ibid., pp. 191-192
10State of Florida, Department of Natural Resources,
Outdoor Recreation in Florida 1976, A Comprehensive Program For
Meeting Florida I s Outdoor Recreation Needs, May, 1976 (Tallahassee,
Florida, 1976) pp. 25-34.
e
llManaging Municipal Leisure Services, p. 191
l20utdoor Recreation In Florida, pp 82-83
l3Ibido, p. 93
l4Ibid., pp. 90-91
e
132
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O.?=I~i)..:\-C "" ~:c :?:? ~ -;-
A:-.i ORDI)[ANCE 0': YES Cr7Y OF CL JO"",-RWA iSR, ?I..ORIDA,
COMPLYI:-.iG WITH THE "LOC-\..!... GOVERNlvL::;:\'-T CO~L?.?.E-
HENSIVE .?!......:,~r:;:)iG ACT O? 1975", AS A)tLENDED;
ADOPTING THE THOROuGH?A?,E ELE~[ENT AS PAR "I'
OF TEE COMPREHSNSIVS ?!....l...N ?OR THE :2:NiIRE CITY
OF CLE...l...?,WATER, ?LORIDA; ADO?T:~;G 'I':1"E ..l...T7..l...C:--iED
EX:-iI3IT; ?ROVIDI)iG E'OR PROPER ;:';O'"['ICE OF PROPOSED
ENACT);[ENT; AND ?ROViDI):G ?OR TEE E??:::CTIV:::
DATE 0:: THIS ORDL"iA:'K:::.
BE IT ORDAL'1ED BY THE CITY COM);lISSION OF T:1"E
CITY OF CL..:::.....RvrA TE.?, FLOR:DA:
Section 1. ~a"le Tborougp..ia=e Ele::le~'; -of ,=-t.:e Scr::.p:-en.;:l;Slve ?lan as
required ~y t....~e !:!..ocal GO".;er:::...~e~t Co:r::.?:-ehe:,:si?e ?l~::.::.i-~g _4..C: cz l~i;.t
as a~..encied., a::.d. 3.5 see .:o=~ 1--: --0::0 ac:ac::.ed eX.:ll:l:':, ceSC=l~ec. a.s:
COr:l?osi:e ~bit ..::.. - :OoC"'..lo.~ent entitled il;:''''ec"...:::.v'e
Surn.r=.a=y, -:"=.orougr-..ia:e ?la:llf, consist'::1g or a ~a~le
Ot cor:cents shee~ a::c. 24 ?agesJ
13 adOpted :::. a.CC~=da.;lce with t...i-:e :1 Local Gover:l..~en:: Co~?::-e!:e::.si.ve ?la:'.-~i::.g
...~ct of 1975rr, as ar:-.enciec., :0:' :..~e e!l~i=e City:;! Clea.:",va:e:-, ~ ~or~::a.
Sec~:on i..
r:~e
a:tached e.x...::":bi~
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::::.e3c;~:::ec. as:
Cor::?os~te E:.'6i~it...~ - Dac"'...:-~ect ~:l:i:led 'l E..,'<:ec:::ive
::::u...~.-"""!:a.='l, :-:-.;,orough..:a=e .?l~:::i, ~onsis;:~::g of a :a.'=le
oi c~n:e:::s sheec ~c. 2-: pages,
is 3.dopce-i 3..5 ?a=: 0: :.~is
o=~i;:a::.ce .=.s .....
:: ".vas se':
Sec::or:.. 3. Fo!' :..~e :n.:.r?oses of :...~is o=cii:la.:lce, ::~e a::ea. e::c::J::-..?a..sses.
~y :.=:is ,:;r::.:.::.a.::ce 3::3.11 '~e =-esc:::":Jec. a.s:
T::.e e::.:i:e a:-e:a. ',v::..-:i.--: :..-:e ?=:se::: =0'...:.::'=-3.':-:':5 ~: :.--=
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:'~ ::"'~e CCt.:..r:~ey Ca:::;:6ell Ca."':'.:ie\va.y; :::.e:;,::e ~,liest:e:-~~I',
Sout.'-:weste=:y, a::.d Sou:':'~e:-iy al':J::g :.a.'-le s::oreli::.e 'J{ Ole..
Ta:::?a 3a.y :0 :=:e :::r..ce:li.-:.e 0: Alle:l1 s Creek; t..1.e!lce =:ast
to U. S. 19; thence >lort..'l :0 3ellair Road ex:encied.; :he.:lc~
d.ue West on cellair Roac. to :he Sea:,oarc. Coast :'i..-:e ;:\ailroad
t:acks; t:..'1ence c.ue >lorth :0 and along Ft. Harrison A',enue
to D Street; c...'-1ence d1..:e ~,Vest a??roxi..~ately 130 fee~; ~hence
due >lorth to B Street; thence d,-"e West to ..t:..'1 Aven,-"e; thence
due >lor::' to A St:eet; thence c.,-"e ~ast :0 ?t. ~ar:-:son Avenue;
t...~ence due North to \Vac2,iz:s St:eet; the~ce ci1..le ~IVest :0 ~~Va!:ers
St:eet; thence cue No:-tll ap';Jroxin:ate1y 700 feet; l:..1.ence West
to the Lnt:;;.coastal Waterway; :.::.ence South- -Sout.1.wes:
approxi.T.ately 6.000 feet; ~e::ce cue West to the Guli of ),[exico.
Section 4. All required and optional elements anc ?arts of the
Comprehensive Plan as required or allowed by tlle "Local Gove:~":1ent
Comprehe:J.sive Plan.::.ing _~c: of 197511, a.s a..'"':nenciec, ';v~ic~ a=e se: ior:...1.: L.~ .._~
at~ac...~eci e_,,-~ibit adopted herei::l, are hereby aco?tec. :..s ?a::-t oi ~s ,:Jrc....:::.a..~,=e.
Sec~ic~ 5. .lli develo?oe.::.t. l.l..~de=";ake=:. a.::ci a..!.l ac:io:ls :2.~<e~ i.-'"1 rega:-d
to develop.r:-:.e!lt orders, allla.:::ci develop!":'le!lt regulations e~ac:ec. or a:::enc.ed
-
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shall be consiste!lt 1;v-i.th ~s ?lan ac.d s<,:,c:1. eler::er:.t a..::.c, ?a:-,: :::e::'eo.: __ =ega:-~
to ~e land ~overed by this eler::e=.t ar:ci por-:ions oi :...~e Co:::?:-e~e::sive ?la~
as ::.e:eoy ac.r.J?i:ed s:-:'all be cocsis :e::: ",,,ith ':.::is ?l.al'l,~ -r"" -ea.c~ ele::-:e!:: =.::::::.
?art :...'lereci.
Sec:icn o.
Notice oi ~e ?=oposea e.:iac==:e~t 0:
" . , . .
:";:15 0 ::::..:::.a.;:c e ::a$
bee: ?=':lge=ly acve:";:sec. i.=. a. ::e~.vs?a?e= 0: ge:::.e:-al c:.:::-..:la::.o::. :..:: ac=o:-=-a::ce
wit..:'" Sec:io:: :~o. 041, F10=::::.2. Sca~:es.
Sect:''):"!. -
A.II ?U.~:.:c :1ea::-:..::g5 a::c. ;n.:.blic ?a:-,::c:?at:o:: :'e~'..ll:-e-:'
pu:st:a.:= co 5~c::o:: 163. 3131, ?:c~=:::.a 5ca':::.:e:s, a::c. ~cc:::::. :63.3:3..;,
~ r"","" --.,
- .- - .--
Sca::lces. ::as ?:-~ceded :""1~ co::s:,:.e:'::..~:c~ oi :.."1;'5 ~=-:.i:;,a.::.ce.
::-~C::8~ 3"
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" . . " .
::e:-e:::y- a.'.:.c:::~-.:. a::~
5::-"a.~':' je::-=::s!.::::.e:-~-:.
::e::c~.:'::::-:':-.:. a.::o?:ec. fa= --.,. :)t.::-~03e5 ':Ji ~ec::O:l 163.3:3..; -, .: ~~:-:.::a. 5::;.:"..:.:-==.
a;:,::i sia~l jec-::::e e.:.:ec::.~..e :....-:-.::"_=c:3.:e~/ '':'~O::' ;.:5 ?a.33a.se.
?ASS~D O~ ?:"'l,S7 R~.A':JIXC
Octoee:- 2, 1'130
?_~5~=' ex S~::8:\;:) )...:'~=
7"-...... . 1"
'''---
-.. -. ...........-- ,,-. ,......,.-.. ----.
_-~ ..:--..._'_.',-....; .-...',.1-1 ....._,'.......;-'.;..;.-.,;
October 16, 1980
sl Charles F. LeCher
s I Lllcille Williar:'.s
;.: a"::: :- - .: ';::-.::: ~.= 5 ~:::-~ e :-
~:.:\- "-.=:-::
I.
e
THOROUGHFARE PLAN
CONTENTS
List of Tables and Maps....... ............... .a.
PAGE
II
F 0 rw a yd. . . . . . . . . . . . . . . . . . . . . . . .
1
In ve 11 tory. . . . . . 0 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Methods of Analysis.................... eO.... .. . 11
Goals and Policies...............
19
e
Ci ti zen Input...................................
26
Intergovernmental Coordination.................. 39
Thoroughfare Improvement Analysis............... 47
Imp 1 e me n tat ion. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79
e
l
l _
e
THOROUGHFARE PLAN
LIST OF TABLES AND HAPS
PAGE
Map 1, Developed Urban Area in Clearwater..... ..... 3
Table 1, Paving Condition, 1976... ............ ..... 4
Table 2, Thoroughfare Network Elements............. 5
Map 2, Idealized Arterial and Collector Network.... 6
Map 3, Existing Thoroughfare Network............... 9
Map 4, Traffic Signals in Clearwater............... 10
Table 3, Capacity Under Ideal Conditions........ ... 13
Map 5, Average Daily Traffic on Selected Links..... 14
Map 6, Arterials and Collectors Over LOS 'c'
Capacity............................ 15
e
Map 7, 1978 Accidents at Intersections............. 17
Map 8, Planned Major Traffic Generators............ 22
Map 9, DOT Recommendations.... ........ .... ......... 40
Map 10, NETWORK 5..........-........................41
Map 11, Scheduled Traffic Capacity Improvements.... 42
Map 12, Scheduled Maintenance Improvements.. ....... 43
Table 4, Summary of Thoroughfare Improvement
Arlalysis..................... 0...... 67
Map 13, Major Thoroughfare Plan.......... .......... 78
Map 14, Thoroughfare Improvement Priority Listing.. 85
Table 5, Thoroughfare Improvement Priority List.... 86
e
II
~------------------------------- -
e THOROUGHFARE PLAN
FOREWORD
The Thoroughfare Element is one of the key components of the
Comprehensive Plan. Of all of the problems which receive media atten-
tion and citizen input, traffic movement is among the most critical.
No area of planning is approached with quite the same thoroughness as
road planning. As documented in this plan, there is a well-coordinated,
ongolng thoroughfare planning process operating in the urban area. Why
then is the County beset by such severe traffic congestion, and is
there relief in sight? These and other questions will be addressed
In the Clearwater Traffic Circulation Element.
The pattern of urban development In the County has largely
emerged since the second World War. The ready availability of the
e automobile, relatively cheap fuel costs, and FHA-VA housing subsidies
encouraged dispersed development pattern~. This increased mobility
was coupled with low land costs in outlying areas and the desire of
many people to own their own homes to produce sprawl. However, the
same factors which enhanced the attractiveness of the suburbs ultimately
placed severe pressures on the road system which was forced to provide
linkages between increasingly dispersed sites of human activity.
Further, those who, for reasons of economlCS, disability or age, were
prevented access to the automobile often found themselves considered
"second-class citizens".
The automobile is one of the most pervasive factors in today's
society. In the average City, more land is devoted to roads and parking
lots than to any use other than housing. Paved parking area generally
e
1
exceeds building lot coverage in new commercial developments. Unde- tit
sirab1e side effects of automobile usage have come in the form of air
and water pollution, micro-climate ~odification and strip commercial
development. These factors, as well as the increasing cost of fuel,
may yet contribute to a decline in usage of cars during the remalnlng
years of the century.
But, at least for the time being, automobiles are here to stay.
Through the efforts of planning, of which this document lS a part,
a thoroughfare network will be built which allows safe, convenient
travel through and within Clearwater.
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INVENTORY
Roads are generally classified by their function. Throughout
the Plan, the discussion focuses on arterial, collector, and local
streets. Local streets, as their primary function, provide
access to adjacent properties. Arterial streets function to move
traffic from one area to another as swiftly and with as little conges-
tion as possible. This means that arterial traffic is, ideally, seldom
interrupted by other vehicles making turns or crossing the road. Col-
lector streets enable the arterial to function; they absorb traffic
from the local streets and funnel it onto the arterial at selected
access points. Table 2 outlines generally accepted standards for the
different classifications of streets and roads.
In 1977) Clearwater had 320 miles of streets and roads. A survey
of paving conditions done by the City in 1976 indicated that the fol-
lowing conditions existed:
TABLE 1
Paving Condition, 1976
Condition Miles Pe rcen t
Excellent 35 11%
Good 208 65%
Fair 43 lVo
Poor 15 506
Unp ave d 19 6%
320 10095
Source: City of Clearwater Planning and Engineering Departments
There are approximately 80 miles of arterial and major collector
streets in the City service area. Major bridges connect Sand Key with
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e Clearwater Beach, and Clearwater Beach wi th the mainland. Courtney
Campbell Causeway connects Clearwater with Tampa. ivIinor bridges are
found over Stevenson's Creek, between Island Estates and Memorial
Causeway (connecting the various landfills which constitute Island
Estates), and across some of the smaller creek branches within the City.
The Sand Key bridge, a toll facility, is the only major bridge under
the jurisdiction of the City. The Memorial Causeway and Courtney
Campbell Causeway are maintained by the State Department of Transpor-
tationo
Unlike many other densely populated areas, northern Pinel1as County
has no expressways linking the various sections of the region. This
is especially unfortunate when one considers the north-south transpor-
tation system. The land mass of Pinel1as County lS shaped rather like
tit a large figure 8. The width of the County in Saint Petersburg is more
than twice the width of the County in southern Clearwater; at Belleair
Road, the distance from Clearwater Harbor to Tampa Bay is a little over
five miles. All travel between the northern and southern parts of the
County must funnel through this geographic "neck"g Coupled with a high
population density (2672 persons per square mile), this geographic
peculiarity contributes greatly to t.raffic congestion in the Clearwater
a re a .
As seen In the accompanying maps, Clearwater's arterial and col-
lector system is quite well developed, and is an integral part of the
dense urban pattern which exists in mid-Pine1las County. Continuous
north-south arterials exist in eastern and western Clearwater, but
there are no continuous north-south arterials in mid-Clearwater at the
~ present time.
7
Clearwater currently has five east-west arterials within or
adjacent to its boundaries which traverse the width of the Pinellas
land mass. Gulf-to-Bay Boulevard is the only one of these which lS
currently developed to a greater than two lane capacity. As can be
seen on map 3, there are many other arterial road segments, but these
segments have not been completed.
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METHOD OF ANALYSIS
Clearwater's road system provides access to all areas of the
developed City. A measure of system effectiveness has been derived
to determine how adequately a given road system meets the demands
placed on it. This concept is known as level of service (LOS) and it
serves as a qualitative measure of number of factors which include
speed and travel time, traffic interruptions, freedom to maneuver,
driver convenience, safety, and vehicle operating cost. The LOS
concept establishes six levels of service designated by the letters
A through F. These levels of service are defined as:l
Level of Service A: This is a condition of free flow, accompanied by
low volumes and high speeds. Traffic densi ty will be low, wi th unin-
terrupted flow speeds controlled by driver desires, speed limits, and
e physical road\lfay conditions. There is little or no restriction in
maneuverability due to the presence of other vehicles, and drivers
can maintain their desired speeds with little or no delay.
Level of Service B: This occurs in the zone of stable flow, with
operating speeds beginning to be restricted somewhat by traffic condi-
tions. Drivers still have reasonable freedom to select their speed
and lane of operation. Reductions in speed are not unreasonable, with
a low probability of traffic flow being restricted. The lower limit
(lowest speed, highest volume) of this level of service has been used
in the design of rural highways.
Level of Service C: This is still ln the zone of stable flow, but speeds
and maneuverability are more closely controlled by the higher volumes.
e
1Traffic Engineering: Theory and Practice Louis J. PignataTo, Prentice-
Hall Inc. Engle\lfood Cliffs, N.J. 1973.
11
Most of the drivel's are restricted in their fl'eedom to select their tit
own speed, change lanes, or pass. A relatively satisfactory operating
speed is still obtained, with service volumes suitable for urban
practice.
Level of Service D: This level of serVlce approaches unstable flow,
with tolerable operating speeds being maintained, though considerably
affected by changes in operating conditions. Fluctuations in volume
and temporary restrictions to flow may cause substantial drops in
operating speeds. Drivers have little freedom to maneuver, and comfort
and convenience are low. These conditions can be tolerated, however,
for short periods of time.
Level of Service E: This cannot be described by speed alone, but
represents operations at lower operating speeds, typically, but not
always, in the neighborhood of 30 miles per hour, with volumes at or tit
near the capaci ty of the highway. Flow .is unstable, and there may
be stoppages of momentary duration. This level of service is associ-
ated with operation of a facility at capacity flows.
Level of Service F: This describes a forced-flow operation at low
speeds, where volumes are above capacity. In the extreme, both speed
and volume can drop to zero. These conditions usually result from
queues of vehicles backing up from a restriction downstream. The
section under study will be serving as a storage area during parts of
all of the peak hour. Speeds are reduced substantially and stoppages
may occur for short or long periods of time because of the downstream
congestion.
The level of serVlce depends on volume and capacity (v/c) and
speed on the roadway. The average capacity of a roadHay is 6000 tit
12
e vehicles per lane per day. This may also be broken down to a per-
hour standard.
TABLE 3. Capacity Under Ideal Conditions
Type of Facility Capacity (pcph)
Two-lane, two-way roadways
Three-lane, two-way roadways
Multi-lane roadways
2,000, total both directions
4,000, total both directions
2,000, each lane, average
Source: Urban Planning and Design Criteria, De Chiara and
Koppelman, 1975, p. 265.
As can be seen in Table 3, the ability to allow turning move-
ments without hindering through traffic flow is a key factor in ser-
vlce level determination. Every time one driver must slow down or
stop to permit a turn, speed and, therefore, level of service, lS
reduced. Other factors which affect roadway speeds or capacity are
e
grades, sight lines, the angles of curves, width of the roadway, and
the number of trucks or busses in the traffic stream.
Another factor which is taken into account are the flows at
peak hours. Traffic volume variations within the peak hour can
seriously affect flow conditions.
Ideally, the system will provide
capacity to allow for adequate dispersal of peak hour traffic. This
is necessary becaus~ when demand exceeds capacity, congestion will
extend over a much longer time than just for the duration of the peak
intervaL This is the situation which occurs when traffic "backs up".
An alternative to providing excess peak hour capacity is to reduce
peak hour flows through the introduction of staggered work hours, car
pooling or increased transit ridership.
Map 6 contains the results of a preliminary LOS analysis for
e
the Clearwater area. As can be seen, serious capacity deficiencies
13
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exist on Highland Avenue, U.S. 19, Drew Street, S.R. 580, Bel1eair
Road, and portions of Missouri Avenue and S.R. 60. These roads,
where volume greatly exceeds capacity, are operating at level of
service E or F. Other less serious capacity deficiencies are found
on Myrtle Avenue, Cleveland Street and Drew Street. Based on the
available information, Sunset Point Road falls In this category of
less serious deficiencies. With the lncreases In developed area
along this road, it is probable that the level of serVlce provided
on Sunset Point Road is actually lower than indicated.
The safety of the traffic system is a key concern In thorough-
fare planning. Through traffic engineering analysis, new roads are
built with optimum curve radii, sight lines, roadway surface, pitch
and grade to allow the traffic to be carried safely at a glven design
speed. By examining the locations where accidents occur most fre-
quently intersection deficiencies become apparent. Map 7 shows the
high accident locations in the City for 1978. The intersection of
Sunset Point Road and U.S. 19 led the City in accidents with 90
accidents occurring there in 1978; the intersection of Belcher Road
and Gulf-to-Bay was second with 75 accidents. State Road 60 has
both more total accidents aQd more accident locations than U.S. 19.
Together these roads had 900 accidents in 1978; this was 66% of all
accidents reported at high accident locations.
In summary, the existing thoroughfare system can be characterized
as being fairly complete, but with significant discontinuities which
hamper system effectiveness. Rapid population growth has increased
volumes on all major thoroughfares in the system; this has rendered a
16
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significant portion of the system inadequate to carry existing 4It
volumes of traffic. Intersection deficiencies can be noted on all
major thoroughfares. Peak hour and peak day flows exacerbate con-
gestion at selected locations, notably the downtown and beach areas.
e
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18
I.
Goal:
Policy:
Policy:
Policy:
Policy:
II.
Goal:
Policy:
Policy:
Policy:
To el imina te or reduce traffic conges tion wi thin the .
Clearwater area.
Widen existing arterials to provide paved thoroughfares
as indicated necessary by the use of long-range traffic
projections.
Complete "missing links" in existing arterials to
facilitate through traffic movements.
Provide intersection and channelization improvements,
where needed, to facilitate traffic flow.
In areas of severe congestion, such as Clearwater Beach,
options to private automobile transportation shall be
active ly sought.
To provide for maximum protection of health and safety
In Clearwater's transportation system. 4It
Where possible, all new thoroughfares and major Improve-
~ents shall be built in conformance with design standards
in the Florida D.G.T. Manual of Minimum Standards for
Design of Construction and Maintenance of Streets and
Highways.
When new subdivisions or road improvements are pro-
posed, use of offset intersections, "Y" intersections,
or traffic circles shall be avoided.
Sidewalks shall be installed In all new subdivisions.
Sidewalks shall be installed In developed areas as
rapidly as possible. Priority areas for sidewalk instal-
lation are school routes, major thoroughfares, and
high accident locations. e
.20.
.
e
e
GOALS AND POLICIES
Goals are expressions of desirable end states toward which
all offices of the City are working. Goals should be set suffi-
ciently low to be reasonably achievable, however at the same time,
goals must reflect the levels of service desired by the citizens.
Policies are guidelines for action. They are written in such
terms as to allow them to be applied in a wide range of situations.
Policies are adopted to set direction for City staff to follow in
preparing programs or making decisions. The policies chosen should
direct activity to~ard the meeting of goals.
Transportation may be considered an enabling function. Rarely
lS travel undertaken for its Olffi sake; generally travel is necessitated
by the need to cover physical distances between chosen activities.
Therefore, transportation goals and policies are often highly interre-
lated with land use, recreation or housing goals. For example, if a
goal of government is to encourage a higher education level of the
populace, policy decisions may focus on locating a college within the
city or increasing public transportation between the city and the
school. Similar issues arise when location of other facilities is a
question.
Clearwater lS an environment which lS almost uniquely urban.
With over 3000 persons per square mile, Pine11as County is one of the
most densely populated urban areas in the United States, and has over
three times the density of any other Florida county. As revealed by
citizen surveys and other research, traffic congestion is one of the
main problems facing government officials.
19
tit
Policy: Crosswalks and pedestrian traffic control signals
shall be installed near schools, at high accident
locations or at intersections where pedestrian
volumes are high.
III. Goal: To provide City residents with the easiest possible
access to business, commercial, recreational, medical
and cultural facilities.
Policy: Major traffic generators (See Map 8) such as community
shopping centers, community recreation facilities, or
secondary schools shall be located only on arterial
streets. Mass transit service shall be provided to
maJor community facilities.
Policy: Every effort shall be made to locate neighborhood
__ shopping a-reas and neighborhood parks wi thin new,
large scale residential developments. Pedestrian
and bicycle access shall be provided to these
neighborhood centers.
Policy: Mass transit shall be extended to all areas of the
City. Special service considerations shall be glven
to areas where high proportions of transit-dependent
residents live.
Policy: The City shall actively seek to obtain ferry serVlce
from the Clearwater mainland to Caladesi Island State
Park.
e
Policy: Non-residential development along scenic/non-commercial
corridors shall be limited to those nodal points
identified in the Comprehensive Land Use Plan.
21
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V.
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Goal:
Policy:
Policy:
Policy:
Policy:
Policy:
Goal:
Proposed thoroughfare improvements shall be consistent
with environmental planning objectives as expressed In
the Environmental Management Program and Conservation
PI an .
When considering the location of new facilities, every
effort shall be made to avoid corridors which contain
areas of environmental sensitivity, such as wetlands.
Should no other reasonable alternatives exist, the
proposed improvement shall be designed so as to mlnlmlze
environmental impact.
When considering improvements which cross maJor water
bodies, bridges shall be preferred over causeways,
which limit natural water flows.
During thoroughfare construction, care shall be taken
to stabilize road cuts, banks, and other unfinished
surfaces so as to avoid erosion and siltation of
surface waters.
Thoroughfares shall, where possible, be designed with
vegetated swales or other provlslons for detention and
percolation of storm runoff prior to allowing runoff
to enter common drainageways.
These policies shall be applicable when any new con-
struction or thoroughfare improvements are considered,
whether they are to be buil t by state, county, or local
governments or by private developers.
To provide maXlmum coordination In transportation
planning and thoroughfare construction.
23
Policy:
Policy:
Policy:
VI.
Goal:
Policy:
Policy:
Policy:
Road improvements shall be coordinated through the
Pine1las Area Transportation study. Clearwater shall
continue to have representation on policy, technical
and citizens advisory bodies.
Where local road improvements are proposed, the City
shall, where applicable, coordinate these improvements
with the County and neighboring jurisdictions.
Through the PATS and other mechanisms, every effort
shall be made to establish and maintain a strong
transportation planning policy body within the County
and its municipalities.
The thoroughfare system shall be operated in a manner
consistent with the long-run fiscal stability of the
City.
It shall be the responsibility of developers to install
road and sidewalk improvements In new subdivisions.
Such improvements shall be built to standards specified
by the City.
The Engineering Department shall establish and period-
ically update an inventory of all streets and roads in
the City, along with their condition. Inventory data
shall be used to formulate requests for road maintenance
funds In the capital budgeting process.
Efforts shall be made to maintain the road system In
such a fashion that at no time shall more than 20% of
the total street mileage in the City be rated in poor
e
e
e
24
1--
e
Policy:
e
e
or fair condition, based on road condition criteria
established by the Engineering Department.
Funding for surface improvements shall be obtained
from general revenue sources or impact fees. Funding
for Ci ty-financed improvements which requlre new bridges,
causeways, tunnels, or non-vehicular capital projects
shall be funded by revenue bonds.
~5
CITIZEN INPUT
Citizen input was received for Clearwater's Thoroughfare Plan
both directly and indirectly. Many portions of this plan which
relate to arterial highways and throughways were drawn from the
PATS study effort. Results of this study have received input
from members of the Citizen's Advisory Committee. PATS plans must
receive a public hearing prior to adoption, at these times, input
from the general public is received.
In addition, during the first phase of plan preparation citizens
of Clearwater were afforded an opportlillity to respond to a question-
naire on transportation needs. Survey forms were distributed door-
to-door in selected inner city neighborhoods. In other sections,
neighborhood associations were asked to cooperate in distribution.
Forms were also available at City offices, and were printed in the
Clearwater Suno This survey was run in 'November, 1977. Responses
to the transportation section totaled 344. Questions focused on
automobile, bus, bicycle and foot travel.
Beach access was by far the most critical need felt. Nearly
three fourths of the respondents (72%) felt that beach access should
be improved. Only half of the respondents felt that U.S. 19 needed
improvement. The proposals for a downtown pedestrian mall and re-
routing S.R. 60 were supported by less than 40% of the respondents.
In alternative transportation modes, the preferences were busses,
bicycles, and walking, in that order. Over half (54%) of the respond-
ents said that they would use bus service for special purpose trips
such as Christmas shopping or sporting events. Fewer people (45%)
26
e
e
e
e said they would use bus serVlce to the beach. This perhaps reflects
the perception that beach trips require too much paraphernalia
(towels, chairs, etc.) to be comfortably aecommodated on a bus.
Bicycle routes for recreational purposes were favored by 40%
of those responding. Slightly fewer respondents (35%) indicated
their willingness to use bicycles for basic transportation needs.
Future bicycle routes are covered in a separate element.
In the phase of planning which required selection of a preferred
alternative, the input of the Clearwater Planning and Zoning Board
was requested. A public presentation was made of the various alter-
natives, and from the ensulng discussion, preferred alternatives
emerged. The results of this input have been included in the recom-
mendations made in the Thoroughfare Improvement Analysis.
4It Another form of indirect citizen input is the ballot box. In
1976 a referendum was held in Pine1las County regarding, among other
things, the southerly extension of McMullen-Booth Road across a portion
of Tampa Bay to 49th Street. An analysis of the voting behavior in
that election indicates that Clearwater voters rejected this proposal
by a margin of 4 to 1.
Alternatives
Given the constraints of limited funding, Clearwater's alter-
natives in thoroughfare improvements are few. Almost all of the City's
arterial roads are operating over their design capacities and will
need improvements; the timing of these improvements will be discussed
in a later section.
In the western section of Clearwater, there are options for
4It north-south thoroughfare improvements. It is highly probable that
27
at some point it may be necessary to turn Fort Harrison and'Myrtle e
Avenues into one-way pairs. Problems will still exist for through
traffic unless Edgewater Drive is widened. In light of Edgewater
Drive's scenic corridor designation and the environmental sensitivity
of its location, other alternatives should be investigated.
I Greenwood/Missouri/Betty Lane Corridor
Additional north-south capacity can be gained by extending
either Greenwood Avenue, Missouri Avenue or Betty Lane. These three
roads lie within one mile of each other, which is generally considered
to be the maXlmum corridor width for consideration of alternative
road alignments.
Greenwood Avenue lS a two-lane facility which joins Fairmont
Avenue on the north, and terminates about one mile south of Belleair
Road. Greenwood currently primarily serves as a collector street. e
Adjacent land uses are primarily commercial and residential, with
some industrial use In the central and south portions. In the
northern section of the City, Greenwood Avenue serves as the primary
commercial area for Clearwater's black community. The City does not
at this time have sufficient right-of-way to widen Greenwood Avenue
to four lanes. Widening would require condemnation of some busi-
nesses and would eliminate some of the community service functions
served by Greenwood Avenue.
Missouri Avenue currently ends at Drew Street. North Missouri
Avenue, which is offset from the Missouri Avenue right-of-way,
extends northward from Drew Street to Palm Bluff. Douglas Avenue
continues northward on approximately the same alignment until it
reaches Russell Street. North of Russell Street, the northern e
28
e extension of the Missouri Avenue alignment would run along the
Harbor Drive right-of-way. Harbor Drive runs into Fairmont Street,
which becomes Douglas Avenue once it crosses Stevenson's Creek. To
the south, Missouri Avenue is a 6-lane facility which terminates ln
St. Petersburg near Bay Pines Hospital.
Extending Missouri Avenue northward would involve acquisition
of some residential and commercial properties. This extension would
certainly help residents of northwestern Clearwater and Dunedin ful-
fill north-south travel demands. Greenwood Avenue would be permitted
to remain a local street. However, this improvement would have to
be carefully engineered, both to keep acquisition costs to a minimum
and to help prevent social disruption. The Missouri Avenue extension
would separate the neighborhood recreation center from many users;
e however, with the installation of crosswalks and pedestrian over-
passes, people could still get to these ~acilities. This extension
would isolate the Marshall Street Sewage Treatment Plant and the old
incinerator from the community, which would probably have a positive
impact on residential values. Further, since much of the northern
section of the right-of-way is bordered by public lands, acquisition
costs could be kept to a minimum and the public could be assured that
much of the new roadway would not be bordered by commercial development.
Betty Lane follows a continuous alignment from Drew Street to
Douglas Avenue, curvlng westward on Overbrook Drive north of Stevenson's
Creek. South of Drew to Court Street, Betty Lane is discontinuous.
It starts again at Court Street and goes south to Lakeview Road. The
northern section of Betty Lane runs through an unincorporated enclave
e which has mixe d comme rcial and indus t ri al use s . Wi thin the Ci ty, Be t ty
29
Lane runs through residential areas. The housing bordering Betty Lane ~
across from the Clearwater Country Club is some of the best-preserved
older housing in the City. Extending Betty Lane southward would re-
quire solution of both right-of-way and drainage problems. Stevenson's
Creek lS adjacent to the southern alignment, which is subject to
periodic flooding.
Of these three alternatives the Missouri Avenue alignment seems
the most feasible. It has the longest southern extension, would
cause the least social disruption, and can probably be accomplished
at the lowest cost. Traffic assignments from P.A.T.S. warrant addi-
tional north-south arterial capacity and, although further study is
needed, the Missouri corridor would appear to be the preferred option.
II Belcher/U.S. 19/McMullen Booth
The problems of north-south access are more critical In the tit
eastern portion of the City. Traffic on,U.S. 19 is currently well
over acceptable limits. At one time, it was hoped that U.S. 19 could
be upgraded to a freeway configuration, with limited access to adja-
cent properties. Funding constraints have forced the M.P.O. to modify
that plan. Currently, long-range plans for U.S. 19 include providing
overpas~es at the most critical intersections, developing frontage
roads for local traffic, and restricting new commercial uses to
nodal intersections.
Improvements to U.S. 19 are under the jurisdiction of the Florida
Department of Transportation, with planning at the local level coordi-
nated through the Pine11as Area Transportation Study. Additional
funding for improvements to U.S. 19 was made available by Congress In
1979, which will result in more rapid completion of scheduled tit
30
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I
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improvements.
The problems created by the exceSSlve traffic on U.S. 19 are
common to all jurisdictions along its route. Interjurisdictional
solutions are being sought. The common problem is funding. Since
U.S. 19 carries the bulk of interstate as well as intrastate traffic
through Pine11as County, local jurisdictions are looking to State and
Federal sources to fund improvements to this road. U.S. 19 will
probably never be improved to full freeway status, and local govern-
ments are looking to other arterials to carry north-south traffic
movements. Belcher Road is being built or improved in northern and
southern sections of the County. Belcher Road is a five-lane divided
facility through Clearwater to Sunset Point Road. County funds are
scheduled to complete the northern section (to Nebraska Avenue) ln
e 1982, with the southern leg (to Park Boulevard) being completed In
the prlor year.
The other major parallel arterial being considered for improve-
ment is McMullen-Booth Road. It has been suggested that this road be
improved to six lanes and that a connection to the south be made via
a bridge over a portion of Tampa Bay. This toll bridge would connect
with 49th Street and would be funded by revenue bonds. The County
has programmed funds for a feasibility study of this project in its
preliminary road improvement program. A similar proposal was advanced
as the Pinellas Parkway several years ago and was defeated in a refer-
endum vote.
Options beyond those relying on the private automobile exist.
In order to facilitate more efficient use of the highway system, the
e City could conside-r facilitating the use of mass transit, Although
the operation of the transit system remalns under the jurisdiction
31
of the Central Pinellas Transportation Authority, the City can improve 4It
transit accessibility by providing parking areas for transit patrons,
expanding bus terminal facilities, and planning for intermodal trans-
fer points. C.P.T.A. has a successful commuter bus route which con-
nects the Tarpon Springs area with employment centers in mid-Pine11as
County. With continued uncertainty concerning the supply of gasoline,
the need for mass transit service is expected to increase.
The converse of the premise of moving people to employment 1S
moving employment to people. It can be inferred that much of the
traffic on U.S. 19 is occupational commutation. If employment oppor-
tunities were more evenly dispersed throughout the County, the need
for commutation would decrease, thus reducing total useage of the
road network. A necessary condition for this shift in emphasis is an
appropriate land use and zoning plan and a sufficient supply of suitable
land. At the present time, there is very little land in the City
which is both suitable for industrial use and appropriately zoned
for that use. By altering the land use plan, however, the supply of
industrial land could be increased. Further testing of alternatives
would be necessary to determine whether enough industrial space could
be shifted to Clearwater to significantly decrease pressures on the
thoroughfare system.
It is recommended that efforts be directed to expanding the
capacity and of efficiency existing arterials through widening U.So 19
and McMullen-Booth Road, extending Belcher Road, and instituting
"park and ride" facilities along these corridors. Further, efforts
should be directed toward determining the feasibility and impact of
expanding industri~l opportunities in the east Clearwater area. The
e
32
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4It
bridge cross1ng connecting McMullen Booth Road and 49th Street should
be considered only as a "last resort"; that is, if an acceptable level
of service cannot be achieved without this bridge. However, the wid-
ening of McMullen-Booth Road should be accomplished using the FDOT
cross-section for a six lane rural road.
III Lakeview/Nursery/Bel1eair Corridor
There are no east-west through streets between Gulf-to-Bay Boule-
vard and Be1leair Road. Druid Road 1S expected to be completed between
Belcher Road and Edenvi11e Road within the next few years, but the
problem of east-west access will still remain. There are several al-
ternative links which could expand east-west capacity.
The City owns nearly all of the land necessary to extend Lakeview
Road eastward to Belcher Roado The soil conditions for such an exten-
Slon are extremely unfavorable. Approximately 2000 linear feet of this
right-of-way is muck and wetlands. Any proposed road would have to be
built on deep pilings, making this one of the most expensive links in
the City's road network. The remainder of Lakeview Road is a two-lane
facility which traverses both City and County jurisdictionso Travelers
wishing access to U.S. 19 from Lakeview Road would probably choose to
travel eastward on Harn Boulevard. Harn Boulevard is a four-lane facil-
ity with several short radius curves. The design of Harn Boulevard is
less than ideal for a high volume collector. Extension of Lakeview
would be expected to increase traffic on Harn.
Nursery Road serves as a major collector street between Highland
Avenue and U.S. 19. This two-lane facility could be upgraded to four
lanes; however, extending Nursery Road to allow access to western
e residential areas would be very expensive. Woodlawn Avenue lies on
approximately the same alignment, to the west, as Nursery Road, but
33
traversing the approximately 1500 feet between Betty Lane and Hi11-
cres t Avenue (where Nursery Road curren tly ends) would requi re condem- tit
nation of several homes and would seriously alter an established
residential area.
Be11eair Road is currently paved for two-lane traffic and
carries vehicles between Clearwater-Largo Road (Alternate 19) and
U.S. 19. Normally, this would be the immediate first choice for
expanding east-west capacity, were it not for the series of oak trees
which line the corridor near the intersection with U.S. 19. These
trees are approximately a hundred years old and provide a tree
canopy which covers the entire road. It would be practically impos-
sible to widen this road and leave the trees intact on its current
alignment. Deviation from this alignment would require extensive
condemnation and acquisition.
East-west access in Pinellas County is a problem all the af-
4It
fected jurisdictions are facing. The only four-lane divided arterials
in mid-Pine lIas County are Gulf-to-Bay Boulevard and Ulmerton Road;
however, plans are underway to widen East Bay Drive between Highland
Avenue and Missouri Avenue. Further study will be needed to determine
which of the three choices in Clearwater presents the least cost
alternat'iveo The long-range road improvement program for Pinellas
County indicates improvements to Belleair Road.2 Widening of the
central section (Missouri-Keene) would begin in 1981/82, followed by
the Keene-Belcher segment in 1982/83. The Belcher-U.S. 19 segment
would be followed by the Missouri-Clearwater/Largo Road segment some-
time after 1983. The choice of this alignment appears to have been
made without consideration of alternative corridorso
2Pinellas Area Transportation Study, Short Range Transportation tit
Program for fiscal years 1979-1980 through 1983-1984, (Draft).
October 1979.
34
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Before any improvements are made, the full costs of right-of-way
and construction necessary for completion should be examined. In
particular, if completion of the Belcher-U.S. 19 link required much
acquisition 1n the Sharon Oaks Subdivision, the extension of Nursery,
rather than Bel1eair Road, may be the least-cost option.
Cle arwa te r Be ach
Clearwater Beach, Island Estates and Sand Key (hereafter referred
to as the Beaches) are accessible to the mainland via Memorial Cause-
way. Island Estates has developed as a primarily residential area,
with neighborhood shopping and other water-oriented commercial devel-
opments. Sand Key is a medium and high density residential island
with a major county park, as well as a significant amount of undevel-
oped land. Clearwater Beach is the oldest of the beach communities
and has mixture of homes, motels, restaurants, and marinas, as well
as one of the area's most popular beaches. Memorial Causeway serves
an average of 27,000 - 38,000 cars per day. This average traffic load
1S within the volume capacity for the four-lane divided facility.
Volume projections indicate that this facility will carry 41,500 VPD
1n 2000, an unacceptable level for this facility.
,.
Travel demands of the residents of the 4,500 homes and apartments,
the guests and employees associated with the 5,000 motel rooms, do not
overload Memorial Causeway. Even with projected population increases
the Causeway would probably be adequate for many years if only guests,
residents and employees traveled it. However, the beaches serve as
a powerful attractor of people. Pinellas County has estimated that
at ten d an c eat the S an d Key Park will in c rea set 0 2 0 , 0 0 0 per son s per
35
,----
day when that park is fully developed. Clearwater's public beach is e
always crowded on summer and holiday weekends. The City Traffic
Engineering Department counted 54,000 cars per day using the Cause-
way last Easter weekend. That's nearly twice the average daily
demand.
Previous studies concluded that the City would need at least
one more bridge as well as improvement of Memorial Causeway to six
lanes? The cost of that bridge was estimated at $23,000,000 1n
1972. The alternatives examined in the Clearwater Beach/Sand Key
Vehicular Access Study were a southern route connecting Sand Key
with the Mainland, and a northern route with extended Sunset Point
Road to Mandalay Avenue. It was proposed that the cost of this
bridge be paid by tolls; however, putting a toll bridge within two
miles of a free facility does not seem feasible unless there is
e
enough year-round daily traffic to fill 'both facili ties. A toll
cannot be instituted on the present Memo~ial Causeway, a State
facility. Adding an additional bridge would not, in itself, solve
the community's problem. Even if it were possible to double the
bridge capacity, beach goers would find themselves faced with an
inadequate road network on the beach and a severe shortage of parking
spaces. Expansion of the road network could be done, but at a very
high cost. Parking could be expanded and paid for by revenue bonds,
but the result would severely degrade the attractiveness of Clear-
water Beach.
Recreational demand is the key component to the beaches' traffic
problems in future planning. Several alternatives need to be examined.
3Clearwater Beach/Sand Key Vehicular Access Study, Kunde and
Associates, Miami, Florida, 1973
e
36
e The least-cost method of approach would try to get beach goers out
of their automobiles. This alternative could take the form of
expanding the bridge on Memorial Causeway to adding a lane for "busses
only" travel in peak hours. The rest of the time, travel in that
lane would be unrestricted. Long range causeway expansion projects
would probably include raising the span so that a drawbridge wouldn't
be needed, and realignment of the intersection at the eastern end of
the bridge. Grants for mass transit assistance are available
by the Federal government, provided extensive preplanning and coordi-
nation are done.
Recreation demand for access to Clearwater Beach can be reduced
if people have broader choices of places to go. Efforts should focus
on initiating ferry service from the Clearwater mainland to Caladesi
e Island. An advantage to ferry service is that the boats could be used
for tourist excurS10ns in evening hours, and they could be sold if the
project failed to ga1n support.
Expansion of recreational opportunities should not be limited to
gulf-front sites. Clearwater's inland lakes, particularly Lake
Chautauqua, can provide additional water-based recreational opportu-
nities. Public lands fronting on Clearwater and Tampa Bays can be
developed for waterfront park and picnic sites. With additional launch
sites for small boats, more families would have access to spoil islands
in Clearwater Bay. None of these improvements will provide a complete
substitute for beachfront recreation, but if the individuals' trips to
the beach become less frequent as a result of taking advantage of other
leisure activities, the net effect on the transportation system will
e be a decrease in congestion.
37
Several years ago the City applied for a grant to build a people e
mover to connect the beach with downtown. Although this application
was denied, the people mover concept remains viable. A safe, effi-
cient, high-speed mode of travel, the people mover would be useful
in times of peak period use and hurricane evacuation. The capital
cost of a people mover is high, and outside funding would be required.
Most of these outlined improvements are long-term solutions. If
State or Federal participation in road projects is expected, the pro-
ject must be included in the adopted area transportation plan. As
wi th all of the other transportation problems in the Coun ty, the wai t-
ing list 1S very long. Mass transit funding is treated slightly
differently, and it might be easier to obtain funding for a sound
mass transit proposal than a road improvement project.
The feasibility of a toll bridge would have to be carefully e
examined. A toll bridge connecting Cleirwater Beach to the mainland
would probably not generate sufficient revenues to pay for itself.
If a toll bridge connected Sand Key and the mainland, travelers might
choose this more direct route and avoid the Sand Key toll bridge and
Clearwater Beach. Problems with this would be ensuring the revenues
from the Sand Key bridge didn't suffer, and finding an appropriate
eastern terminus.
Ferry service can be operated by private enterprise or by the
government. Access permits to Caladesi Island are granted by the State,
and the City would have to work with State officials to obtain permits
to allow the Clearwater-Caladesi route to operate. This alternative
could probably be instituted more quickly than the other serV1ces
outlined. e
38
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INTERGOVERNMENTAL COORDINATION
An important source of funding for major road improvements is
the Federal Government. To insure that these funds are spent on
projects which are both justified by need and desired by local resi-
dents, a lengthy process has been established to coordinate the
dispersal of road and transit funds. Federal dollars go first to the
State, and the State Department of Transportation administers these
funds in each of the 6 D.O.T. districts.
Federal aid funding is apportioned to roadways which are under
the jurisdiction of the State government. RDads are placed on the
State system on the basis of their function in the network of state
roads. Map 9 shows roads recommended by State D.O.T. for inclusion
on the state, county and local systems. There 1S some conflict as to
the ultimate jurisdictional responsibility for some of these roads,
but efforts are focused on reaching an agreement among state, county
and local authorities.
According to state requirements, all primary arterial roads
are to fall under State D.O.T. jurisdiction. When the division is
attempted between those roads which are to fall to County and local
jurisdictions, the problem is complicated by the prevailing procedures
governing municipal annexation. Under current state law, the question
of annexation is effectively left up to the individual property owner,
resulting in irregularly-shaped City boundaries which may sawtooth in
and out along the length of the street. When the street in question
is of a minor arterial or collector, logic would indicate that juris-
diction belong to the highest level of government in whose jurisdiction
39
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the roadway lies. When jurisdiction over a roadway is not clear-cut, ~
problems of improvement and maintenance are compounded. The more
serious these problems are likely to be when the street in question
is a local subdivision street the effect of the jurisdictional conflict
generally results in neglect. One objective of the planning process
1S the reduction of future areas of conflict.
Local input in the process of thoroughfare planning 1S supplied
by the Metropolitan Planning Organization (M.P.O.). The body is made
up of local elected officials appointed by the Governor with the num-
ber of appointments per jurisdiction based on population. The Florida
D.O.T. District Engineer serves as an ex-officio member of this policy
body. A major function of the M.P.O. lS the adoption of the Short
Range Transportation Improvement Program (T.I.PJ as a program document
which outlines State funded road projects with the County for the next e
five years. A new T.IoP. is adopted annually.
Another major project of the M.P.O. is preparation and adoption
of the long range transportation plan. The process use in developing
plans is highly organized along Federal guidelines. The end result
of this planning process is a local plan which is certified as having
been developed in accordance with the Federal standards. The M.P.O.
is in the process of developing a certified plan. In the meantime,
the interim road plan for the County is Network 5, shown on ~!ap 10.
Sketch planning is done by use of the approved Community Aggregate
Planning Model (CAPM). This model uses existing and proposed land use
by traffic zones aggregated to traffic analysis districts as its build-
ing blocks. Socio-economic patterns and traffic characteristics of
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44
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4It
the community are also programmed into the model. Significant
variablffi are amounts and location of projected employment, residential
and commercial land uses, locations and percentage of retirees in the
total population, as well as the existing and committed highway net-
work. The model then shuffles the various combinations of information
and alternatives and yields projections of future conditions. The
projections include estimates of the effect of car pooling and bus
operations on the road network, the impacts of different land use
patterns on roadway congestion and the effects of increased development
on air quality and fuel consumption. The traffic projections used in
this plan were derived from the plan reevaluation study effort, and
represent the best available data. It must be recognized that these
numbers are not absolute. Minor variances are to be expecte~but
these minor variations should not affect overall system design.
The sketch planning effort covers b,road-brush freeway and arterial
development. Once the basic parameters of the system are outlined,
detailed link-node analysis provides further system refinement. Local
collector street design is outside the scope of the PATS planning ef-
for~ however Step VI of the PATS study design focuses on collector
system development.
The M.P.O. meets once a month as policy body. All during the
month, its staff (which is part of the County Planning Department)
conducts on-going planning activities. Technical staff members of
the member government bodies meet monthly as the Technical Coordi.
nation Committee (T.e.C.). The T.C.C. reviews and provides input to
the technical staff and as well as provides a method for local govern-
ment staff members to be aware of the activities underway in transpor-
tation planning. Citizen input is received at M.P.O. hearings, as
45
well as through the Citizen's Advisory Committee (C.A.C.). Members e
of the C.A.C. are drawn from all geographic sectors of the County,
and represent a wide variety of public interests.
The City of Clearwater actively participates 1n the formal
intergovernmental coordination effort. A member of the City Commis-
sion sits on the policy body, and the Planning Director, Traffic
Engineer and City Engineer are members of the T.C.C. Several local
citizens are members of the Citizen's Advisory Committee. In
addition to these formal methods of intergovernment coordination,
s t a f f an del e c t e d 0 f f i cia 1 s me e t wit h the i r co un t e r - par t sin
neighboring jurisdictions on an "as needed" basis to insure consis-
tency in local street improvement plans.
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THOROUGHFARE HIPROVEMENT ANALYSIS - Network Description
Following a careful review of PATS Network 5 modified Trend High-
way Assignments for year 2000 as well as significant field investigations
and link/volume capacity analyses, a thoroughfare plan was developed
for the city. Particular attention was directed toward coordinating
the classification with streets in neighboring jurisdictions. Recom-
mendations discussed by facility and type are sho\ffi in Table 4.
The road network is summarized by classification and within each,
road links are discussed as System Components. This section of the
analysis considers only volume and capacity projections. Social and
environmental constraints enter the analysis in later analyses.
EXPRESSWAYS
tit U.S. 19 currently serves 34-54,000 VPD as a four-lane divided
facility. ROW in excess of 100' is available. Almost the entire
section of U.S. 19 in the study area is located within Clearwater city
limits, although major portions of adjacent land are located in the
county. Major intersections with east/west highways stronglY oriented
to the city include: Belcher-Countryside Blvd., Sunset Point Road,
N.E. Coachman, Drew, Gulf-to-Bay and Belleair Road.
PATS Network 5 Modified Trend Highway Assignments for 2000 indi-
cate future traffic will increase to 100,000 - 110,000 VPD with: 1)0
U.S. 19 as a six-lane limited access divided facility with parallel
serV1ce roads, 2). Belcher Road completed north/south as a four-
lane highway, and 3.) a new north/south bay crossing to connect with
McMullen-Booth Road. The PATS Network includes the effect of an
e additional north/south bay crossing which may not be constructed for
47
a number of years. Without this new facility, Belcher Road, the only e
major north/south alternative route would be expected to serve more
than the estimated 18,000 - 29,000 VPD. The 110,000 VPD on the con-
trolled access arterial is beyond the LOS C capacity of 60,000 -
90,000 VPD for a six-lane freeway facility. In addition, if the new
bay crossing were not constructed, there would be a need to accommodate
another 26,000 VPD on the remainder of the road network. Belcher Road
woul d be the only al te rna ti ve north/ south route, and there fo re, woul d
experience the bulk of this diverted traffic, raising its volume to
31,000 to 50,000 VPD.
It should also be pointed out that any additional capacity
achieved by adding parallel serV1ce roads to the expressway must be
carefully assessed. It may be that these local types of trips are
not included in the year 2000 estimates due to the manner in which the e
links are connected with node pointso Therefore, parallel service
roads may add to the volumes, while also increasing capacity. However,
it is probable that a six-lane, limited access U.S. 19 facility will
not be able to provide a satisfactory (C) level of service at 100,000
VPD.
Until such time as the new bay crossing facility is constructed
and improvements to U.S. 19 have significantly increased its capacity,
Belcher Road serves as the best alternative north/south route, and
provisions to accon~odate this potential diversion should be considered
along Belcher Road. This would help retain its operating efficiency
and to alleviate unnecessary expressway diversions to other less
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desirable parallel streets such as Hercules, McMullen-Booth and
Keene.
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THOROUGHFARE ARTERIALS
Considering first the thoroughfare arterials as east/west
corridors:
SR 60 Gulf-to-Bay Blvd.
This principal east/west corridor was subdivided into five sections:
1. Memorial Causeway - This facility currently serves 38,100 -
38,700 VPD as a four-lane divided facility with more than
100' of ROW. PATS projections of 42,000 vehicles per day
indicate that additional capacity is warranted to achieve
LOS C conditions. Recognizing the fact that projected
traffic across the causeway 1S a function of development
projected south of the toll bridge as well as the holding
capacity of Clearwater Beach, the most practical short-range
solution 1S not to drastically widen the causeway or'to
create a second causeway but to improve the operating effi-
ciency of the existing situation, particularly at the ma1n-
land intersection. Through intersection redesign and
reorientation of CBD traffic, it may be possible to increase
the LOS C capacity to the 30-38,000 VPD range which more
closely meets projected needs. This channelization should
be done to favor the reorientation of causeway traffic east/
west over the one-way pair, bypassing the CBD. One possi-
bility is to make Cleveland Street one-way eastbound and
Drew Street from Fort Harrison Avenue to Pierce Street one-
way westbotmd. These improvements plus other traffic
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operations techniques such as advisory signs to indicate 4It
when the beach becomes congested and CBD parking with
shuttle bus service would improve peak-traffic conditions.
Other options include diverting recreational traffic onto
waterborne transportation to Clearwater Beach and/or Caladesi
Island or to a "people mover" system.'
In the area of Clearwater Beach, highway capacity could
be increased for future development north of the toll bridge
by considering either a one-way pair or removal of parking
to improve two-way operations on S. Gulf View Blvdo For the
short-term, improvement of two-way traffic flow is recommended
with the one-way pair concept being introduced to serve
higher traffic volumes when they occur.
Further PATS network testing will confirm 1n detail tit
causeway capaci ty deficiencies, and 'indicate the need for
traffic management plans involving a second causeway, a reduc-
tion 1n beach density, etc.
20 S.R. 60 (Downto~TI to ~ighland Avenue)
State Road 60 is four lanes divided from Osceola Avenue
to Myrtle Avenue, and four lanes undivided from Myrtle Avenue
to Highland Avenue. ROW is 80' with a 1978 ADT of 22,300 in
the downtown area. PATS projections for 2000 indicate volumes
to 19,500 in the CBD. The four-lane undivided facility is
adequate for these projected volumes, but 80' ROW is deficient
according to the latest State design standards. While PATS
has recommended upgrading Cleveland to four lanes divided
from the bayfront to Highland Avenue, the need for this tit
50
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widening should be reassessed, particularly if a maIlls
created in the CBD.
It should be noted that projected volumes are less
than existing volumes on Cleveland Street where volumes
increased from 13,000 in 1973 to 29,000 in the CBD area
for the year 2000.
3. Highland Avenue to U.S. 19
This section is predominately six-lanes divided with
left turn lanes channelized at major intersections. ROW
is 100' and existing volumes are 20-45,000 VPD. PATS
projections indicate 49,500 to 52,600 VPD for which the
current highway facility will not be sufficient to provide
LOS C. To achieve LOS C conditions, widening Gulf-to-Bay
or improvement of a parallel facility will be necessary.
4. U.S. 19 to Bay Shore Blvd.
Current volumes of 20-28,000 VPD are served by two
road sections. State Road 60 is six-lanes undivided from U.S,
19 to Sky Harbor Drive and four-lanes undivided from Sky Harbor
Drive to Courtney Campbell Causeway. ROW is 100' in both
sections. For projected volumes of 36,700 VPD in 2000 the
100' ROW is inadequate for six-lane divided facilities under
current State standards. The section between Seville Blvd.
extended and the Causeway should be upgraded to a six-lane
di vi de d roadway.
5. Courtney Campbell Causeway
This four-lane undivided roadway 1S \'iithin a 100' ROW
51
and currently serves 18,600 VPD. PATS projections for 2000
indicate 32,500 VPD. ,For this volume, the four-lane divided
facility is sufficient, particularly with the lack of adjacent
deve 1 opmen t.
Court/Chestnut Streets between Pierce/Drew and Highland
This one-way section with 60' - 100' of ROW is generally
a four-lane undivided facility with a section between Missouri
and Hillcrest divided the section from Ewing west to the bay is
one-way pair, with three-lanes of traffic in either direction.
Year 2000 PATS projection is 10,700 to 16,800 VPD for which
100' ROW is sufficient. It should be noted, however, that
these volumes do not fully account for the diversion from
Cleveland to the one-way pair brought about by improved
signing and route redesignationo Projected volumes may there-
fore be considered low. The section between Hil1crest/
Highland and Greenwood Avenues (beginning of the one-way
pair) is recommended for improvement to four-lanes divided.
Should changes be made in CBD circulation, other limited improve-
ments will be necessary.
Cleveland Street East of Gu1f-to-Bay
East of Gulf-to-Bay, Cleveland Street is a four-lane
undivided facility. Traffic projections are for volumes 1n
the 13,000 VPD range at Belcher Avenue. Current volumes are
6400 VPD at Duncan Avenueo This road has sufficient capacity
to meet current and future demand, and may, in fact, have
excess capacity.
It is recommended that Cleveland Street terminate as an
arterial at Belcher Road.
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Drew Street
Due to a variation 1n projected volumes, Drew Street was divided
into three sections.
1. Ft. Harrison to NE Coachman Road -- Existing volumes on this four-
lane undivided section with 80' ROW range from 13,200 in the CBD
to 24,500 VPD near Highland Ave. Projected volumes are in the
23 - 24,000 range. PATS network volumes showed an attraction to
Drew Street rather than to S.R. 60. It should also be noted that
when and if CBD circulation is changed, some turn restrictions on
Drew may be necessary, thereby influencing projected volumes.
Due to the importance of Drew Street in this area, a four-lane
divided highway should be provided. The 80' ROW is insufficient
under upgraded urban design standards.
e 2. N.E. Coachman Road to U.S. 19 -- This section 1S two lanes wide
with 80' of ROW. PATS projections show 19,900 VPD in 2000. The
80' ROW is insufficient for necessary widening to four lanes un-
divided, with left-turn channelization at Belcher and Old Coachman
Road; however, traffic projections indicate that a four-lane di-
vided roadway may be needed.
3. U.S. 19 to Bayshore Boulevard This section 1S not completed.
A two-lane highway with 100' ROW exists between U.S. 19 and
Hampton Avenue and between McMullen Booth and Bayshore Boulevard,
but the connection link is missing. Current volumes are not
available. PATS network projections assume the missing link will
be completed. Year 2000 volumes indicate 31,000 VPD west of
McMullen-Booth Road. These high projected volumes will be
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expected only if the McMullen-Booth Road - 49th Street bridge 4It
and expressway project are completed. If a scaled-down version
of this project is built, expected volumes will be lower. A
four-lane undivided highway is recommended between U.S. 19 and
McMullen-Booth Road and a two-lane highway from McMullen-Booth
Road to Bayshore Boulevard.
Sunset Point Road
This major east/west corridor 1S divided into three sections:
1. Alternate 19 to Highland Avenue -- For the existing two lane
roadway (wi th 100' of ROW from Douglas to Highland) PATS pro-
jected 20,900. For these volumes, a four lane divided facility
1S necessary. One hundred feet of ROW is sufficient.
2. Highland Avenue to McMullen Booth -- This two-lane facility with
100' ROW currently serves 14,600 to 18,000 VPD. Projected ADT's 4It
are 1n the neighborhood of 18,500 arrd up. The 1001 ROW is sufficient
but at least a four-lane divided facility should be provided,
therefore upgrading is required. The projected volumes appear
unreasonably low for this facility, and will be retested by PATS.
3. McMullen Booth to Bayshore Boulevard -- This existing two-lane
facility is located within a 100' ROW with projected year 2000
volumes of 21,700 VPD. A four-lane facility 1S necessary for
volumes and system continuity. The 100' ROW 1S sufficient. This
link is outside the Clearwater service area but is included for
system continuity.
The following section considers maJor thoroughfares which run 1n
a north/south direction.
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Myrtle Avenue
1. Fairmont Street to Lakeview Road -- This four-lane undivided
facility with 80' ROW is projected to serve 19,100 to 20,400 VPD
in 2000. In order to sufficiently serve these volumes, a four-
lane divided highway is required; 80' ROW is sufficient for an
urban type cross section. Prior to upgrading, traffic operation
modifications to develop one-way pair system with Fort Harrison
Avenue should be investigated.
2. Lakeview Road to Belleair Road -- This section of road does not
currently exist but the link was included for testing in PATS
network. Projected volume of traffic is 20,400 VPD. The 70-80'
ROW planned in this area would be insufficient. This 1S an
important link and, by its completion, it makes possible a future
one-way pair with Myrtle northbound and Ft. Harrison southbound,
should the capacity or improved circulation advantages be required.
Fort Harrison Avenue
1. Myrtle Avenue to Drew Street -- This section 1S four-lane un-
divided to Seminole Street and two-lane from north of Seminole
with a 60' ROW area currently serving volumes in the 15,000 VPD
range. Projected volumes of 16,200 VPD indicate that a fou~
lane divided roadway is necessary to obtain LOS C traffic condi-
tions. Capacity on the existing roadway could be increased by
eliminating on-street parking.
2. Drew Street to Lakeview Road -- This four-lane undivided roadway
currently serves 13,200 - 20,700 VPD with a ROW of 60'. Projected
PATS volumes are in the range of 10,600 VPD, indicating a drastic
S5
decline in projected volumes rendering the existing facility ~
sufficien t.
3. Lakeview Road to Belleair Avenue -- This corridor with 60' ROW
currently serves 18,000 - 22,300 VPD with a four-lane undivided
facility. Projected 2000 volumes of 10,800 indicate the four-
lane facility is sufficient. The concept of using Ft. Harrison
and Myrtle as a one-way pa1r should be tested in the PATS net-
work.
Missouri Avenue
1. Belleair Road to Court Street -- This si~lane facility with 100'
ROW currently serves 14,600 VPD with projected volumes of 28,900 -
36,400 VPD. This six-lane facility will be sufficient, although
widening of all sections to a divided facility would be desirable.
2. Court Street to Drew Street This two-lane section 1S projected ~
to serve only 8,000 VPD in the year ~OOO which does not account
for new traffic generators in this area or for northbound links.
The link between Cleveland and Drew Streets has been carefully
investigated for future widening and alternative alignments have
been evaluated.
3. Drew Street to Sunset Point Road -- This currently unbuilt link
was included by PATS for testing purposes. Traffic assigned to
this northern extension of Missouri Avenue is 20,900 - 32,800 VPD
in 2000. This would require a four-lane divided highway between
Drew Street and Sunset Point Road, however a six-lane facility is
recommended for system continuity.
4. Sunset Point Road - Union -= This section is known as Douglas
Avenue, and is currently a two-lane road. PATS long-range tit
56
projections indicate a need to expand Douglas to a six-lane arterial,
to carry a projected 41,100 vehicles per day. Right of way 15
insufficient to allow widening without some acquisition.
Highland Avenue
1. Bel1eair Road to Main Street -- While the existing two-lane facil-
ity serves 16,800 VPD 1n a 100' ROW corridor, projected volumes of
18,600 - 28,200 indicate a four-lane divided facility is justified.
The 100' ROW is sufficient.
Keene Road
1. Virginia Street to Sunset Point Road -- The two-lane facility with
100' ROW will be subjected to year 2000 volumes of 17,700 VPD. A
four-lane divided facility 1S justified. Some sections of ROW must
be increased to 100'. PATS indicates that the ultimate extension
of Keene Road north to Nebraska Avenue along the C.R. 1 alignment
1S an integral part of the total network upgrading. This is an
important north/south arterial, therefore a divided roadway is
required. For the missing link north and south of ~fain Street,
new construction is needed.
2. Sunset Point Road to Drew -- The Keene Road corridor 1S known as
Weber Avenue in this section. Right-of-way needs to be acquired
to complete this link. With projected volumes of 21,300 VPD, a
four-lane divided facility is justified.
3. Drew Street to Gulf-to-Bay Boulevard -- This two-lane section with
60' ROW is presently discontinuous due to the presence of a lake
which bisects the right-of-way in a residential area. With pro-
jected corridor volumes of 21,300 VPD, a four-lane divided facility
e is suggested. Design considerations will probably result in
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division of the north and south directional flows diverting e
them around the lakeo
4. Gulf-to-Bay to Belleair Road -- This is a fou~lane facility
between Gu1f-to-Bay and Druid; with five lanes between Druid and
Belleair in 60-80' ROW. With projected volumes of 26-28,000 VPD,
this ROWand roadway width is sufficient but marginal.
Bel cher Road
1. Curlew Creek to Main Street -- This two-lane facility is in-
dicated by the PATS network volume to serve 6,200 VPD, indicating
that the current facility will be sufficient. However, the model
is retesting this roadway for diversion from U.S. 19, which may
result in an increase in projected volumes.
2. Main Street to Sunset Point Road -- This two-lane section with
60-80' ROW is projected to serve 18,000 VPD. For these volumes, e
a four-lane divided facility is required; therefore, the ROW is
insufficient.
3. Sunset Point Road to Belleair -- This existing four-lane roadway
serves 17,200 - 20,400 VPD, with ROW between 80' and lOOt. Pro-
jected volumes of 20,200 - 28,800 VPD indicate that this four-
lane facility will be marginally sufficient.
N.E. Coachman Road
1. Drew Street to McMullen Booth -- Current traffic counts indicate
that this facility served an average of 20,400 VPD in 1978. This
two-lane facility with 66' - 100' ROW is projected to serve 26,500
VPD, west of U.S. 19 and 23,500 VPD east of U.S. 19 in 2000. To
accommodate this travel demand, a four-lane divided facility lS
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58
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required between Drew Street and McMullen Booth Road. ROW 1S
insufficient in the 66' sections.
Countryside Boulevard
1. Belcher Road to S.R. 580 -- This four-lane divided facility with
100' + ROW served only 1,800 VPD in 1974 but is projected to carry
19,700 - 37,800 VPD in 2000. This is due to diversion from the
Belcher Road Corridor and this roadways function as an access road for
Countryside Mall. The present roadway will not be sufficient to
accommodate these volumes; projections indicate that a six-lane
facility will be needed in the section between U.S. 19 and SoRe
580.
McMullen Booth Road
1. Curlew Creek to S.R. 580 -- This existing four-lane facility with
100' ROW is projected to serve 20,700 VPD. The facility is, there-
fore, sufficient.
2. Main Street to Gulf-to-Bay Boulevard -- 1iliile the existing two-
lane facility with 100' ROW serves 7,800 - 9,200 VPD, projected
volumes are in the range of 26,600 - 53,000 VPD. A four-lane
divided facility is required north of N.E. Coachman Road, with
a six-lane facility needed south of N.E. Coachman. Commercial
development should be controlled along both sides of the roadwayo
These recommendations are subject to further investigation by PATS
regarding the impact of U.S. 19 diversionary traffic and a new
Bay crossing.
Main Street (S.R. 580)
1. Douglas Avenue to U.S. 19 -~ This two-Jane section 1S predomi-
nately in the county and is expected to serve 36,300 VPD near
U.S. 19. Improvement to a six-lane facility is warranted.
59
2. U.S. 19 to McMullen Booth -- This existing two-lane section
currently serves 9,300 - 15,700 VPD near Countryside Boulevard
and McMullen Booth. This is an important link to future city
development in the Countryside area. To accommodate the pro-
jected volumes of 29,300 - 36,100 VPD, 120' ROW is necessary.
A six-lane divided facility within 120' ROW is recommended.
Belleair Road (CR 116)
e
U.S. 19A to U.S. 19 -- This two-lane facility with 80' ROWand
projected year 2000 volumes of 24,500 - 34,700 VPD will not provide
sufficient service. A six-lane divided facility with a LOS C
of 36,000 would be adequate to carry projected volumes. Due to
the scenic beauty of the link between Belcher Road and U.S. 19,
alternatives to the current corridor alignment should be sought.
COLLECTORS
I.
e
The north/south corridors are discussed first.
Greenwood Avenue
1. Belleair Road to Fairmont Street -- This existing two-lane road
with 60' ROW is projected to serve 6,700 - 11,800 VPD, with
volumes in excess of 10,000 between Drew Street and Fairmont
Street. The section between Belleair and Cleveland would just
slightly exceed LOS C capacity as a two-lane facility with
volumes ranging from 6,700 to 7,800, so the existing two-lane
facility and LOS are considered sufficient. From Cleveland Street
north, volumes approach LOS C indications for a four-lane divided
e
60
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roadway. This link is being retested to determine the effect of
extending Missouri Avenue 0
Hercules
1. Nursery Road to Druid Road -- This two-lane section 1S classified
as a collector street and two lanes are sufficient for projected
volumes of 7,000 VPD.
2. Druid Road to Drew Street -- This four-lane section 1S estimated
to serve 11,000 VPD in the year 2000 for which the existing facility
1S sufficient; 80' ROW is sufficient.
3. Drew Street to Sunset Point Road -- This section consists of four
lanes north to Sunset Point Road. Estimated volumes range from 7,000
to 11,000 VPD and existing and constructed facilities are con-
sidered sufficient. This road segment carries a significant amount
of truck traffic, which reduces its effective capacity.
4. Sunset Point Road to Belcher Road -- This two-lane facility with
estimated volumes of 7,000 VPD should be sufficient; 80' ROW is
s uffi cien t.
Bayshore Boulevard
1. Gulf-to-Bay to Sunset Point Road -- This existing two-lane road-
way with 60' ROW is projected to serve 6,300 - 7,000 VPD in the
year 2000. This facility is sufficient. Due to the scen1C
nature of this roadway and alignment, roadside development should
be controlled.
Landmark Drive
1. Curlew Creek Road to Gulf-to-Bay -- This roadway is planned as a
collector street for new residential subdivisions to be developed
in this high-growth area of the City. Future PATS analysis will
61
provide traffic projections, but a preliminary determination of tit
four-lane divided roadway would provide continuity with the northern
portion. Eighty feet of ROW are reserved for this purpose and
are sufficient for the proposed thoroughfare.
East/west corridors are discussed in the following section:
Lakeview Road
1. Ft. Harrison to U.S. 19 -- This section is an existing two-lane
facility with 80' ROW deficient 1n some sections. Currently, it
serves 9,500 VPD near Greenwood Avenue. Traffic projections call
for volumes ranging from 4,400 east of Keene Road to 13,300 east
of Ft. Harrison. Projected volumes west of Highland Avenue are
significantly higher (at 8,800 - 13,300 VPD) than those east of
Highland Avenue. This is due, however, to the fact that PATS left
out the missing section between Hercules and Belcher, al though tit
8,300 VPD were assigned to Harn Boul~vard (Lakeview extended)
between U.S. 19 and Belcher. This may account for the high vol-
umes projected for Be1leair Road in the year 2000. Assignments
should be made with this missing link in to verify the diversionary
effect.
The projected volumes as currently available indicate that
a two-lane facility east of Highland Avenue is sufficient; however,
between Ft. Harrison and Highland, a four-lane facility is war-
ranted. Major inter-connection with U.S. 19 is not recommended
but it would be preferable to have Lakeview a continuous street;
soils tests should be performed to confirm the feasibility and
construction costs associated with cOI:lpleting missing link between
Hercules Avenue and Belcher Road.
e
62
4It
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Druid Road
1. Ft. Harrison to U.S. 19 -- Like Lakeview, the PATS network was
run without the uncompleted section of Druid east of Belcher.
This accounted for projected volumes ranging from 12,900 to
13,700 VPD in the year 2000. These volumes warrant construction
of a four-lane facility in this corridor. The effect of adding
the Belcher Rd.-U.S. 19 link to Druid should be tested by PATS,
although its merit as a more important east/west arterial is
subject to intersection problems at UoS. 19. Its classification
to a major collector street may be warranted, not with major
interconnection with U.S. 19, but as a continuous roadway.
PATS is currently testing Druid Road as a four-lane divided
arterial with a service road connector to U.S. 19 at its east
end and a four-lane undivided section from Missouri Avenue to
Fort Harrison, with a final recommendation to be based on such
tests. This would provide an alternative to SR 60 for east-west
travel. Projected traffic will indicate the need for at least
a four-lane undivided facility.
Palmetto
1. Ft. Harrison to Highland Avenue -- This corridor, as with Lakeview
and Druid,was considered complete, but its PATS year 2000 assign-
ment of 4,400 - 8,100 VPD reflects termination at Highland. Palmetto
could be connected with Airport Drive via Keene Road so Palmetto
would extend all the way to NE Coachman V1a Marilyn Street. The
impact of adding these missing links to the PATS network should be
evaluated, particularly with respect to volumes diverted from Drew
63
Street. Another alternative will be presented to the City ~
should the Clearwater Executive Airport be closed during the
time horizon of the plan. Then Palmetto could be connected
through the airport property. The future of the airport is
discussed in the Airport and Marina Element of the Comprehensive
Plan.
As the projected volumes are now estimated, however, this
section of Palmetto is sufficient as a two-lane facility, al-
though the portion between Betty Lane and Highland would
operate more efficiently as a four-lane undivided facility.
Beltrees (Option for Testing)
The effect of extending Beltrees Street west to intersect with
Belcher could be tested by PATS by adding it to the network and
providiag for the missing link between Patricia Avenue and Keene ~
Road. This section, however, is entirely outside city jurisdiction.
Betty Lane
1. Douglas Avenue to Cleveland Street -- This section 1S currently
two lanes with the section between Drew and Cleveland Streets
offset and less utilized than the northern section. PATS projec-
tions indicate volumes ranging from 5,500 to 7,900, slightly 1n
excess of the two-lane LOS C capacity. While an alternative
exists to the north to extend Betty Lane straight to intersect
with existing Betty Lane and Milwaukee Avenue in Dunedin, the
easier course of action is to leave Betty Lane connected with
Douglas Avenue which is partially under City controL The
Douglas/Highland Avenue year 2000 projections are not high enough
to require a parallel relief road like Betty Lane. Completion of ~
64
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4It
It
the connecting link between Sandy Lane and Sunset Point Road
should be considered.
Gulf Boulevard (Sand Key)
The section between the toll bridge and the south city limits of
Clearwater is subject to condominium and limited commercial develop-
ment. With projected traffic of 11,000 VPD, a four-lane undivided
facility is warranted due to the lack of roadside entrance possibil-
ities and through traffic volumes. It should be noted that upon
development of the county-owned property (designated for a major
park) on the north tip of the island, peak hour congestion will be
expected to develop. Congestion on peak days is already a problem
when traffic movements conflict with operation of the toll bridge.
SCENIC CORRIDORS
In October 1977, the Clearwater City Commission designated the
following roads as scen1C corridors: Belcher Road, McMullen-Booth
Road, Bayshore Boulevar~ the portion of Northeast Coachman Road
between Belcher Road and U.S. 19, Courtney Campbell Causeway, Gulf
Boulevard (Sand Key), Edgewater Drive, Curlew Road, and Memorial
Causeway. The purpose of the designation was to encourage beauti-
fication projects, and to discourage improvements to the roads or
1 and adj acen t to the ro ads whi ch woul d be incompa ti b Ie Hi th the
scenic corridor designationo
The scenic corridor designation generally allows for increases
1n thoroughfare capacity to eliminate or alleviate congestion. The
key to scenic corridor implementation 1S restriction of incompatible
65
land uses. Commercial or other non-residential uses will be permitted e
only in conformance with the comprehensive land use plan. Generally,
these uses are confined to nodal points along the roadway. Other use
controls being considered are increased landscaping and setback re-
quirements along scenic corridors.
The recommended improvements are summarized 1n Table 4.
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IMPLEMENTATION
It has been shown that an extensive program of road improve-
ments will need to be undertaken in the Clearwater area. Nearly
every arterial road in the city will have to be upgraded to achieve
a satisfactory level of service. These improvements will be con-
structed by state and local governments, through coordination of
the efforts of concerned jurisdictions.
During the adoption phase of the planning effort, the thorough-
fare element will be reviewed by the Pinellas County Planning Council,
the Metropolitan Planning Organization, the Tampa Bay Regional Plan-
ning Council, and the State Department of Community Affairs. The
e comments of these bodies will reflect interjurisdictional concerns.
After review by these bodies, their comments will be transmitted to
the Clearwater City Commission and will be considered prior to
adoption of the plan.
Construction of recommended improvements will be effected through
state, county and local cooperative efforts. These efforts are coordi-
nated through the Metropolitan -Planning Organization, which includes a
representative from the City of Clearwater among its members. This
body considers available State and Federal funding, and prepares a
plan for use of these funds throughout the county on eligible road
corridors. Other arterials which traverse political boundaries fall
under the jurisdiction of the Pinellas County Board of Commissioners.
The design, timing and funding of improvements to the above mentioned
e classes of roads are not con trolled by the Ci ty, al though the Ci ty 1S
79
called upon to enforce setbacks along these roads and may be asked 4It
to assist in the acqusition of rights-of-way needed for road 1mprove-
ments.
City efforts, therefore, are primarily directed at that level of
roads which is not covered by other agencies. These are largely local
streets or collector roads and include such important road links as
Druid Road and Landmark Drive. For these roads, the City must prepare
engineering plans, secure right-of-way, and allocate the necessary
funding to complete road improvements. Given the relatively weak
voice any local government has in allocation of funds for arterial
roads, the implementation of a local thoroughfare plan is dependent
less on the desires of the local agency than on the needs of that
local government relative to surrounding communities. It 1S appro-
priate, however, for the local government to priortize the improvements 4It
needed. This priority listing will in tUrn become input to other
agencies. The Clearwater Thoroughfare Improvement Priority List also
includes indications of improvements which may be appropriately
funded by the City.
The Clearwater Thoroughfare Improvement Priority List establishes
four priority categorieso These categories are designed to coincide
with the five year funding cycles established in the Pinellas Area
Transportation Study's Short Range Transportation Improvement Program.
Those projects in Clearwater which are included in the current (May
1979) draft T.T.P. are included as priority 1. This category designation
does not necessarily include all of those projects which the City
would desire to have completed in the next 5 years) but represents
those for which it may reasonably be expected that funding will be e
80
e
e
e
provided. Projects included in the priority 1 category have
the budgeted amounts and sources of funding designated. Priority
one also includes one road link and two studies which are unfunded
at this time.
Projects in priority categories 2 - 4 constitute an inventory
of necessary projects. The sources of the raw list of needed improve-
ments include those projects for which preliminary engineering and
right-of-way acquisition were completed in previous budget cycles,
extensions of improvements made to segments of roadways, and needed
improvements as outlined in earlier sections of this report. Numbers
of projects listed in priority categories 2 - 4 are balanced relatively
equally among the three time horizons. Priorities 2 - 4 should be
construed as coinciding with capital budgeting cycles.
Cost estimates included on the improvement priority list were
derived from information provided by the Pinellas County Planning
Department. These are costs for construction only, and do not include
other project costs such as preliminary engineering, construction
supervision or right-of-way costs. Preliminary engineering and
construction supervision may be expected to add 17% - 20% to the
project cost. Right-of-way costs vary with the amount of land which
must be purchased and with the appraised value of that land. Also,
these project costs are expressed in current dollars, and exclude
any estimates of the effects of inflation. Typically, road construc-
tion costs increase at a rate slightly higher than that of the
economy's overall inflation rate. However, since forecasts of infla-
tion rates vary significantly, it was felt that the most appropriate
81
treatment of projected costs is the current dollar method.
This priority improvement list focuses on roadway link 1mprove-
ments. It is recognized that intersection capacities are equally
important to the network's overall capacity and, as indicated by
the map which shows high accident locations, intersections are
highly critical to the network's safety. However, detailed engi=
neering studies which are beyond the scope of this study are required
to analyze intersection capacities and develop plans for intersection
improvements. Some of the arterial improvements noted, such as Drew
Street and Myrtle Avenue, will increase intersection capacities by
adding left turn storage lanes on the new four-lane divided highway
se gmen ts .
Over the time horizon covered by priorities 2 - 4, several trends
can be noted. The absolute dollar expenditures by the State for new
road construction will be expected to decline significantly in period
4, however, it is expected that expenses for maintenance .and repair of
existin~ State thoroughfares will be expected to increase as the system
ages. Expenditures by Pinellas County for new road construction will
also be expected to decrease during the time horizon of the plan, as
the "missing links" 1n the county's arterial system are completed.
However, an estimation of expenditures needed to support Clearwater's
portion of the improvement program indicate that expenditures by the
local government for new construction will have to increase substantially,
It is estimated that the priority 4 improvements to be completed by
the City will require expenditures at a level four times greater than
the City's current new construction budget.
82
e
e
e
e Traditionally, local funding for capital improvements has come
from the issuance of general obligation bonds. The issuance of general
obligation bonds allows needed improvements to be made in a timely
fashion, with repayment spread out over an extended period of time.
Bond financing also enables future residents of the City to help pay
off this indebtedness, thereby insuring that all users of new facili-
ties will share in the cost burden. Clearwater's current level of
bonded indebtedness is well below the level permitted by State law.
Disadvantages of the use of bonds center primarily on cost and
uncertainty. By borrowing the money to pay construction costs, the
project cost increases due to the interest burden. The issue of
uncertainty is less relevant for Clearwater than for other, older,
municipalities. Avoidance of debt is a prudent fiscal position to
4It take when projections indicate stable or declining population and
revenues. However, in Clearwater, the irrdications are that the
City's population and tax base will continue to increase during the
plan horizon.
An alternative to borrowing funds for capital improvements is the
pay-as-you-go (accumulated revenues) financing. General revenues can
be set aside until sufficient funding is available to complete improve-
ments. Whichever of the above-mentioned choices of financing is chosen,
in order to complete the necessary improvements the overall level of
City revenues will have to 1ncrease.
Increases in revenues will come primarily from increases 1n the
City's tax base. In "Fiscal Feasibility of the Comprehensive Plan"
prepared for the City by Barton-Aschman and Associates, projections
e 0 f revenue sand expendi ture s a re made cons is ten t wi th the as sump tions
83
included 1n the Land Use Element of the Comprehensive PIano The
e
analysis of capital expenditures included projections of current
rates of capital expenditures and indicated that capital revenues
would exceed expenditures by a minimum of 10%.3 Therefore a limited
amount of "slack" can be expected, however, it must be noted that
there will be competing demands for capital investment funds,
particularly in regard to facility renovation and parks and recrea-
tion needso
In order to maintain a sound fiscal position, all avenues of
funding should be explored. One source of funds for improvements
in newly-developed areas is impact fees. Clearwater's impact fee
assessment has reBained constant for the past five years, In light
of the refined cost projections which are being .developed through
the comprehensive planning program, justification may exist for
e
increasing the level of impact fees.
3
"Fiscal Feasibility of the Comprehensive Plan" prepared by Barton-
Aschman and Associates May 1979, Page VI.
e
84
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CO!v1.?LYING 'yVITR TE~ I':'C'CA':'" GO"'.-:::.R).l;v~Z);T CC'~.l??~.
E2:{S~"/":::: ?I-.;.N?;I':-iG AC7 C? ~'::7:~', AS ..;':t~~:-':DE:':);
ADOPTING THE UTI::"IT:ES E:L2viEN'I' .';'S PART OF ____
COMP?,E..~ENSIVE PL...;,N FOR TEE ENTIRE: CITY OF
CLE,A3 WA TE.."t , FLORIDA; A.:JOPTING TEE A'I'TACEE::J
E..'CHI:BIT; PROVIDING FOR PROPE3 NOTICE OF ?RO-
20SED ~ACTIvi":::?';'!"; ...~~D ?RC"'l2I..:.'iG 7CB. ....::..:..
EFFECTIVE DATE OF TI-iIS ORDINANCE.
3E: IT ORDAINED :BY THE CITY CO~L~iI.SSION OF THE
CITY OF CLEARWATER, FLORIDA:
Section 1. The Utilities Element of the Comprehensive Plan
as required by the "Local Goverr..ment Comp,..~hensiV'e Pla=ing Act of
1975", as amended, and as set forth in the at<:ac:::'ed exhibit, desc:-ibed as:
Composite Exhibit A - Docu...~ent entitIed "Potable Wate::,
Solid Waste, Sanitary Sewer, Drainage and E:.ectr:cal
Elements of the Compre.he=.sive Planl!, consisti...;.g oi
sections on "water containmg 23 pages; Solid vraste
containing 2.7 pages; Sewerage containi:lg 34 ?a.ges;
Drainage cOIltaini=Lg 70 pages; and .=::lec-:~ici:y co:c.t3.i~:.ng
1';' pages AND Doc=ent entitIed "E::cec'"'tive Su."T_T.a:-y,
Potable Water, Solid Waste, Sani:ary Sewer, Drai.."lage
a=.ci ~ec=:cal ~e::1en:s of :::e C,cI::?=e1:.er:.,Sive 2e.:-::er:.tslT,
consisti::g oi sections on ',Vater con-::a.i...-:.i::g 3 ?ages; SeliC. ~Nas:e.
coz:.:ai.=.i.:!.g " ?ages; Se1Rerage contai.c.i..~g 12 ?ag~s; :J::-a:..::.age
co::tai=i:ng 15 pages; and ::::ect::-:c:.~ co::tai=.i::g 6 ?ag es ,
:5 ado'?tec i.:1 3.cc:l::"c.ance '.;7i6 :'~e Tl:"'ucal Gave::-::..-=:e=.: C':;w?=~~e!'lsi,,~pe :=~Z:.r...=;:....';,g
_-\c: 0: 197511, as amerlced, for ':.."le e=.=-=e CI:y of Clea::-;vate~, ?lc:-:da..
Section 2. The attached ex.."i::it des c:=:bed as:
Composite '=:"'Ch.ibit.~ - Document entitled.. "?otable i,Vate::-,
Solid Waste, Sanitary Sewer, Drainage and ':::;'ec:::-ical
Elements of the Comprehensive Plan", consisting of
sections on Water containing 2.3 pages; Solid ',vaste
containing 27 pages; Sewerage con~a.i=li.::lg 3~ pages;
Drai::age containing 70 pages; a:ld Electricity containi=.g
14 pages AND Documen~ entitled" Executive SU!::".I!lary,
Potable Water, Solid Waste, Sanitary Sewe:::, Drainage,
ana Zlec::-ical 2le~en:s of ~e COI':':?rene=.sive uer:1er..tslT
consisti::lg of sec:ions :J= lNate= cor:.ca~g 3 ?ages; SoLie '.Vaste
contai..~g 11 pages; Sewe=age con:ai::.ing 12 ?age 5; D=a~a ge
ccntai.=.i.:::1g 15 ?ages; a.nd Elec:=ic=.::-:,,,. c::;n2i::i:::.g 6 ?ages.
is ac.optec. as ?ar: 0: tl:is o:-Ci:::.ar:.ce a.s i..: i:: \va's set :o=~ :':1 :ci1 :-:e:-~~:::..
Sec':icn 3. 70:" t...~e ?u::-?oses of ':-~:s o:"c.:.-:.a:lce. tie a:-ea. er::::::::-:?assec:.
'=y ~s o=::::=~ce snal..:. ";:e d.es.-:=:::J:ec 3.S:
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io:. ..;......._~ .:i=ea ogi:.=..L'": ~-:c ::;:::ese::: jo~ca.=ics ....,... :--:e
Ci~". oi Clea=."vate:- as sue:: bc-...:..::c:.a.:-:es .ii:'e e~X?a.::cied a:l::'
:-edefir.ed by fu::ure a:mexations, a.nc ~"le Ci:y 0: C~:2.='N3.:e=
service area o.vnicb se=vice a=ea. is fur:"~e= c.escribed as :ollo".vs:
30w::ded on the West by the Gulf of Y.exico, on the ~ert..'1 by
t..~e centerline of Dunedi.:l Pass; thence Souceasterly to a ?oi=.:
in St. Joseph's Sow::d approxi."nately 700 ieet Southeast ef
Moonshine Island. excludi...,g Moor:.scine Island; t2:le~ce c'.1e '=:;'st
through St. josepb1 s Sound and along Union St:-ee~ ~o Keene ~oac;
t..'-1e:1ce due Nor':.-'-l to Cc"..:....-:.:y Rea::: 3..;; ~e::ce c1..:e '=:a..sc ~c ~e
Southerly extension of County Road 70; t.!lence due North along
Cow::ty Read 70 to State Road 580: thence due East to G. S. r;igr..way
19, excluding the D=edin Industrial Park; t.'lence due North, to
Curlew Creek; thence Easterly to McMullen-Booth Road;
thence due South approxi:::lately 5,400 feet to City-owned property;
thence due East approxi.-nately 2,000 feet; thence North 330
feet; thence East 670 feet; thence due South approxi."!lately 3.000
feet to State Road 580; thence West and Southwest to Mc)'1ullen-
Booth Road; thence due South to th.e centerline of Alligator Creeic;
thence-East along Alligator Creek alC.d :he southern snore oi
Alligator Lake and Arlie Drive to Cooper's Bayou and Upper Ole.
Tampa Bay all the way to the Clearwater-Ta=pa City Li.~i~s
and Pinellas-Hillsborough COU:lty li::nits; :='e!:ce due Sout.."
~o the Cou=tney C~?bell Causeway; ~e!lce ',Veste=ly.
Southwestedy and Southerly alo:lg the shoreli:le oi Old
Tampa Bay to the ce!lterl~e oi ...4...l1en1s Creek; t..::lence East
';0 U. S. 19; thence Nor:h co 3elleai: Road er.:elC.ded; ==-e::.ce
due West on Belleai: Road to the Seaboard Coast Li::.e 2a~1:oaci
t":-ac.ks; thence due North to al:d along ?~. H'a:.--:-:.son Ave::::ue
:0 D S t:.-eec; :l::.e!lce due ~fYest a?pro:-C-""':'lacely' 150 .:eet; :'':e!!ce
due )ror'th. ~o 3 St:."'eet; ::="e~ce cue '.V~st ~o 4th A.y"'e~".Je; :..~e::ce
due ~artb. :0 .4.. St=eet; ':l:.e:=lce d~e ':::ast ':0 .?t. ::a==:so;::. .';"w.e.=t;e;
:'::'e=.ce due Nortb.. to "/Var.!..d..:J.s Sc:.-eec; ~e=ce d"..le ?lest ,:0 ',\"'3.:=::5
St:-eet; tb.ence due );o=-:.~ a.;"prox:..~ately" 700 fee!:; :.he.::ce '..../.eSt
~o 'ile '::::'t::-acoa stal .,Va :e:-way; c-~e!:c e Sou='::'- -Sot::..=.we s ':
approxi...-==.ately S. 000 feet; t.:::.e=.ce c.ue ~fVest ~o :."':.e CuE 0: ~',I[ex:.c::.
Comprehensi",re Plan as :-equi:ed or allowed by t...'1.e "Local Gove==-'""::e:;.t
Section 4. All :-equ:.:eci. and optional eleY.:':.e.::ts ace ?a.=':s :Ji ":-~e
COI:lpreb.e~sive ?la=..ni.ng .A..c: of 19i5fl, as amended., '.vc.icb. a=e set :o:"~ ;- t..~t:
ar-...ac.b.ed e:6ibit adopted herein, are =.e:eby ado~teci as ?a=: 0': :...~is o:-::.:..::.ance.
Sec~icn 5. ..ill developments u-,cie1:ta~en a::.c: a.U act:.ons :a..:.ce!;. :.:;. :-eg3::"
to d.evelopment orde:-s,- all land l'ievelop::le.::t ::-egulatior:s e!lacte6 0::" ~:::e::Gec.
shall be consiste=.t '.vitb.. t!:.is ?lan a:::ld S'UCl::. ~le~er.: a.nd. ~al": :=.e.:-e'J! i.=. :eg3.:-'::
to ~e La.::.:::: cove=ec. by tl:.is elemerrt a:::J.a ?o=~ons oi -=.."e Co~?:"ehe~si~'O~~ ?~a:l
as ~e!"e~y adopted s:::all be c:)=.sis~er:t ?li:ll ~.s .?1.::L.:l a.z:.d eac'::" ele~e::: a=.c
par'; t.~ereo:.
bee:: ?rope=ly ac.-,te=~:seci i.::l a :1ewspape= 0: s-e!:e:ral c:=c:.;ia.t:.~r:. __ acc:J:-r:::a.:-:ce
~ec::.or. 6. :-';ot:ce o::'::'e ::=-~::csec. e::aC'=7:e::: ...._ ::::,s:J:-::.:..:.a.::::e :-.as
w::-'"'l Sec::c:1 166.041. ?lo=:c.a Sta.:--..:.:es.
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~t:=suar..:::o Sec~:or.. 162. 3~31, '::o:-ica ~t3.~~.::es. 3..:':;:; See::8:: :8;. 3:3-= ~ ,--'I""':
Sta~tes, has ?=ececied :l:e consi::.e=a::.on of ~is :J=c.~a:lce.
Sec!icn 8. :;;'i5 or::L:.:..ance :'5 he=eby ac.opt:ed and snall be consic:e=eu
henceior~ adopted f-:;=:he ;:n:.=?os~S 0: Sec::.cn 163. 3:3~ 7;', ?l==:ca Sta~..::,=.::,
and shall become efiective :.z:..~ec.iately l.:.~on iC5 passage.
PASS:2D ON FIRST READING
March 5, 1981
PASS:2D ON S:2COND AND FINAL
READL.'IG AND ADOPT2D
:'vlarch 19, 1981
5 I Charles F. LECher
Mayor- COI='~,,=,issiooe;;
Attes t:
sl Lucille Williams
City Clerk
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TABLE OF CONTENTS
Page
I In troduction 1
II Goals, Objectives and Policies 3
III Existing Facilities and Conditions 4
e IV Future Electrical Needs and Facilities 10
V Energy Conse rva tion 10
VI Footnotes 13
VII Bibliography 14
e
e
List of Tables and Plates
Page
Plate 1 Electrical Power Facilities
6
e
Table 1 City of Clearwater-Customer by Class of
Service 10 Years
7
Table 2 Rates for Customers-Residential Service 8
Table 3 Average Annual Usage for Residential Customers 9
Table 4 Florida Power Corporation System Customers
Growth Rates 11
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ELECTRICAL POWER
Introd~ction
Demand for electric power by the industrial nations
has grown rapidly as their development has advanced and has
brought with it many aesthetic problems. Ill-planned and ill-
conceived electrical facilities are not only sometimes visually
offensive but also contribute to the inefficient use of land.
Well designed and well planned, these electrical facilities can
be made to harmonize with their natural surroundings.
The typical power system consists of six vital elements:
a power station which changes prime energy into electrical energy;
transformers to raise the generated energy to the highest potential
requi~ed for economical passage through primary transmission lines;
the transmission lines; the substations where the power is reduced
to the potential used in secondary transmission lines; the secondary
transmission lines; and the transformers which again reduce the
secondary potential to the voltage used by the consumer. This
latter action 1S often performed by transformers affixed to trans-
mission poles or underground cables.
This section of Clearwater's Comprehensive Plan is not,
of course, primarily concerned with the engineering aspects of power
production and transmission. Rather, its concern is to see that
appropriate service is available to all parts of the community with-
out conflicting with other existing or planned land uses. In regard
to primary transmission lines the City will want to know the exact
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location of proposed steel lattice towers in relation to existing
airfields and other development which might be injuriously affected
by their presence. The City will want to see that appropriate ease-
ment reservations are made in new developments so that secondary
transmission lines are made so unobtrusive as possible with full
access for servicing and repair. The City will also need to
negotiate with Florida Power Corporation to insure that new cables
are laid underground or that old overhead lines are converted to
underground cables in accordance with an agreed program.
Because electrical power plays such an important role 1n
the City's operation and development, close coordination with
Florida Power Corporation is imperative. In facilitating the
cooperation between investor-owned untilities and local governments,
the Florida Legislature passed the Florida Electrical Power Plant
Siting Act. The act requires all investor-owned utilities to file
a ten year site plan describing the development plans that are
proposed. The City desires to assist, where feasible, in the encour-
agement of the efficient production, use and conservation of elec-
trical energy.
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Goals, Objectives and Policies
Overall Goal
Monitor Florida Power Corporation's major electrical
proposals in the Clearwater Service Area to insure that projects
are compatible with the City's overall plans and encourage the
most cost effective and efficient provisions of electrical power
while providing maximum practical protection to the environment.
Objective
Continuously monitor major electrical proposals and
promote projects that will efficiently produce and distrioute
electricity in the most cost effective and effficient manner.
Policies
The City shall participate with Florida Power Corpora-
4It tion in planning and implementing electrical improvements to insure
their compatibility with the City's overall plans.
Encourage the multiple use of right-of-way areas.
Objective
Encourage electrical power facility improvements that,
to the maximum extent feasible, are compatible with the enV1ron-
ment and seek to conserve and protect sensitive natural resources.
Policies
Encourage the use of technology and techniques that would
m1n1mlze significant adverse impacts on the aesthetic environment and
protect the long term public interest.
Encourage the use of underground transmission facilities
when feasible.
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Encourage rate structures which enhance conservation
of electricity.
Provide buffer zones between power faci1i ty si tes and
structures and the surrounding area.
Encourage public awareness programs that promote energy
conservation.
Existing Facilities and Conditions
EXlsting Facilities
All of Clearwater's electric power is supplied by the
Florida Power Corporation, an investor owned, publicly regulated
company which supplies electricity to 32 Florida counties. On
July 5, 1966, Florida Power Corporation was given an exclusive
franchise by the City of Clearwater for the purpose of supplying
electric power to the City and its citizens for a period of 30
years. Florida Power Corporation divides its service area into
40 districts, of which the Clearwater District includes the City
of Clearwater, the City of Clearwater Planning Area, most of the
town of Be1leair, most of the City of Dunedin, Bel1eair Beach and
a large area of unincorporated land west of the Clearwater-St. Peters-
burg Airport and east of U.S. Highway 19.1
Florida Power provides electricity through a grid system
to the Clearwater District via generating plants, substations
and power transmission lines. Therefore, no one particular gene-
rating plant supplies all of Clearwater's electricity.
In using
the grid system Florida Power insures continuous electrical service
to its customers regardless of generation plant shutdowns.
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There are no generating plants located in or planned
fo r the Clearwater Dist ric t. Howeve r, the City is serve d by three
substations and several major transmission lines. Florida Power's
major facilities located within the Clearwater Service Area are
illustrated on Map 1.
Existing Conditions
At an average annual increase of electric power consump-
tion of slightly more than 6 percent, the electric consumption for
1980 will be approximately 2,429 million kilowatt hours. Since
Clearwater's Planning Area population of 114,053 is approximately
75 percent of the total population of the Clearwater District,
Clearwater will consume approximately 1,821 million kilowatt hours
of electric power in 1980. The rate of electrical consumption
has doubled every decade since 1960.2 As illustrated in Table 1,
the number of electrical customers has,increased 79 percent in the
City of Clearwater since 1970. In 1968, residential rates for
Florida Power customers equaled 2.41 cents per kilowatt hour.
The residential rate increased to 4.78 cents per kilowatt hour 1n
1978 as indicated in Table 2.3 Using the 1979 rate and the approxi-
mate 1979 annual customer consumption of 10,902 (Table 3), the
average annual electric bill for 1979 was approximately $546 or $45
per month. With annual kilowatt-hours per customer (Table 3) and
rates per cus,tomer (Table 2) continuing to increase, the average
monthly electrical pill will also continue to increase unless
conservation measures are instituted. It is assumed that commercial
and industrial usage will generally continue to increase at a com-
parable rate to that of residential.
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Table 2
RATES FOR CUSTOMERS - RESIDENTIAL SERVI CE *
Year Revenue/KWH
1968 2.4l~
1969 2.22~
1970 2.13~
1971 2.11~
1972 2.09~
e 1973 2.17~
1974 3.42~
1975 4.09~
1976 4.19~
1977 4.51t
1978 4.78~
*Source: Florida Power Corporation Ten Year Statistical Report
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Table 3
Average Annual Usage for Residential Customers
1979 - 1987
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Annual Usage
Year Ki1owatt-Hour~/Customer
1979 10,902
1980 10,800
1981 11,045
1982 11,390
1983 11,693
1984 12,056
1985 12,276
1986 12,500
1987 12,650
Source: Florida Power Corporation
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Future Electrical Needs and Facilities
As previously stated, consumer usage rates will continue
to increase throughout the planning period. However, during the
1973-1974 oil crisis the rate of consumption did not increase at
all. Since then, the rate of consumption has begun to rise again,
and is expected to continue through 1980, at which time demand is
expected to increase at lower rates averaging between 2 and 3
percent annually through 1995 as illustrated in Table 4. By 1995,
total electrical power consumption for the City of Clearwater will
be 2,813 million which is a 55 percent 1ncrease since 1980.4
As customer demand continues to increase in the Clearwater
area, the existing transmission, substation, and distribution
facilities will have to be modified and expanded. The exact loca-
tion of any new facilities or modifications to existing facilities
will be determined by the growth rate in t~e area. There are
plans to install two 230,000 volt transmission lines through the
City.5 The routes for the new lines are detailed on Map 1.
Energy Conservation
There are presently several state and federal programs
which encourage or assist in electrical energy conservation. Even
at the local level, the City of Clearwater has taken great strides
in the endeavor to conserve energy. In June, 1977, the City of
Clearwater established an Energy Office under the director of the
Central Services Department. The Energy Office has developed a
Comprehensive Energy Management Program aimed at reducing the City's
energy consumption by 25 percent.6
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Timeframe
1979-1980
1980-1985
1985-1990
1990-1995
Table 4
Florida Power Corporation
System Customer Growth Rates
(%)
Residential Commercial
4.540
11.758
13.612
10.254
1.941
16.436
9.922
5.11
Source: Florida Power Corporation
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Industrial
2.649
16.129
12.037
10.33
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As outlined in Clearwater's Energy Policy Plan, the
Energy Management Program consists of three phases. The first phase
will consist of analyzing all phases of City governmental operations
from the standpoint of their energy conservation potential and under-
taking large scale energy conservation measures. Phase two carries
the energy conservation efforts to Clearwater citizens. A home
energy auditing program, a commercial energy auditing program and
a public education and awareness program are included in the second
phase. Phase three includes developing new building codes and land
use regulations which will encourage energy efficiency and contin-
gency plans to help the City survive the hardships created by an
energy crisis.7 Details of the methodology of each phase is
described in Clearwater's Energy Policy Plan.
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F 0 0 T NOT E S
1 City of Clearwater, Clearwater's Energy Polic Plan. (Clearwater,
Florida: City of Clearwater, 1979 , p. 26.
2 Ibid.
3 Florida Power Corporation, "Correspondence and interview with
J.P. Skala, Senior Planning Engineer." St.Petersburg: Florida
Power Corporation, November 29, 1979.
4 Ibid.
5 Ibid.
6 Op cit., Clearwater's Energy Policy Plan, p. 39.
7 Ibid.
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BIB L lOG RAP H Y
Ci ty o"f Clearwater Planning Departmen t, Clearwater's Energy Policy
Plan C 1 e a rw ate r: C it Y 0 f C 1 e a rw ate r, J un e, 19 7 8 .
City of Clearwater Planning Department, Clearwater Land Use Plan
Clearwater: City of Clearwater, November, 1979.
Florida Power Corporation. Correspondence and Interview with
J.P. Skala, Senior Planning Engineer. St.Petersburg: Florida
Power Corporation, November 29, 1979.
Whittick, Arnold. Encyclopedia of Urban Planning. New York:
McGraw-Hill Book Company, 1974.
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DRAINAGE
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I
II
III
IV
V
VI
VII
VIII
IX
X
XI
TABLE OF CONTENTS
Page
Introduction
Goals, Objectives and Policies
Drainage Characteristics and Existing Conditions
Existing Conditions and Regulations
Problem Identification
Conclusions
Recommendations
Footnotes
Appendix I
Appendix II
Bibliography
1
3
7
30
37
39
41
48
49
66
70
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List of Plates
Page
Plate 1 Curlew Creek Basin 13
Plate 2 Possum Branch Basin 14
Plate 3 Bishop Creek Basin 15
Plate 4 Mullet Creek Basin 16
e Plate 5 Alligator Creek Basin 17
Plate 6 Stevenson Creek Basin 18
Plate 7 Coastal Zones One and Four 19
Plate 8 Allen Creek Basin 20
Plate 9 Coastal Zone Two 21
Plate 10 Coastal Zone Three 22
. Plate 11 Clearwater Beach 23
Plate 12 Flood Prone Areas 25
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DRAINAGE
Introduction
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Intensive rainfall on May 8, 1979, dropped more than
seventeen inches of rain on the Clearwater area within a l2-hour
period. This storm was calculated to be a 100 year frequency
rainfall occurrence. Flooding from this storm illustrated the
inadequacy of drainage facilities in many areas of the City as
streets became impassable and, in some areas, were washed into the
ditches. Extensive erosion occurred and flood waters covered
yards and, in some cases, apartment dwellings. Damage also
occurred as a result of development in low areas having poorly
drained soils and high water tables. Therefore, drainage must
balance potentials of natural systems and needs of man. Flooding
occurs when the laws of nature are ignored or under-emphasized.
Clearwater's storm water drainage system consists of a
network of enclosed storm sewers and open drainage ditches which
ultimately drain into Tampa Bay in the east and Clearwater Harbor
in the west. Clearwater is proceeding with improvements to the
system under guidelines established in the Master Drainage Plan
of the City prepared by McFarland and Johnson in 1974. These
improvements are designed to alleviate the periodic flooding
such as that experienced in May, 1979.
Two major issues involving storm drainage are expected
to arise in the future. First, because rain water flows over
the lawns and streets of the City before entering the storm
sewer system much oil, grease and heavy metals from the roads,
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fertilizers, insecticides and herbicides from the lawns and
ditches pollute storm waters as they are collected. These
pollutants enter the creeks and shallow bays?degrading the
quality of both freshwater lakes and saltwater bays. As
Clearwater continues to grow and greater land areas become
paved, some form of treatment to purify the water will become
necessary. Secondly~ because greater areas of the entire
county, are being paved with streets, roads, parking lots
and roof-tops, the rain water which falls on these cannot
be absorbed into the ground to enter the water table, but
must be carried into the bays through an extensive storm
drainage system. At present, City policies require that
runoff from new developments be channeled into retention
ponds, but more must be done to utilize the water currently
being channelled to the sea if Clearwater is to avoid water
shortages past the planning period.
The Drainage Element is not intended to be a
detailed engineering plan which recommends specific solutions
for individual problems. Rather, it is a general plan which
illustrates the knowledge of problems and the City's plans
to alleviate them. The Drainage Element examines quality
and quantity control strategies, flooding problems and
improvement funding alternatives. Detailed engineering plans
for each drainage basin are and will be formulated by private
consultants under the supervision of Pinellas County's Technical
Advisory Committee (TAC) on drainage. The City of Clearwater
takes an active role in policy decisions of the TAC.
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Goals, Objectives and Policies
Overall Goal
The general goal of Clearwater's Environmental
Management Program and Conservation Plan is
the overall goal of the Drainage Element: "to provide
for the maintenance, enhancement and conservation of the
natural environment for present and future generations."
Objective
Remove excess surface water as necessary to prevent
flooding and consequent adverse effects on public health, the
environment, and public and private property and inconvenience
to the citizenry.
Policies
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Development should be constrained where it is deter-
mined that such development will have an adverse impact on
storage capacities, increase flood prone areas, significantly
increase rates of runoff or cause other unfavorable drainage
conditions.
To the maximum extent, natural systems shall be used
to provide storm drainage. Drainage system design shall include
consideration of water quality as well as quantity.
Regularly scheduled maintenance of the drainage system
shall be continued to ensure maximum efficiency, effectiveness
and appearance.
Physical characteristics of each drainage basin,
sub-basin and site should be major factors in design of
drainage improvements.
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Require appropriate setbacks and finished floor
elevations in areas adjacent to the gulf, bays, lakes or
other water bodies which have flooding potential.
Identify areas where adequate drainage rights-o~
way are not available and develop a program to obtain proper
access to drainage channels, structures, etc.
Objective
Retention and/or detention of storm runoff should
be encouraged to prevent increased flows in existing drainage
channels and to provide recharge of the ground water aquifer.
Policies
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Develop a drainage system and construct improvements
which will provide maximum feasible conservation of energy,
water and other valuable resources.
To the maximum extent feasible, water recharge capa-
bilities should be maximized in design of drainage improvements.
New developments will be required to detain storm
water onsite and control the quantity, quality and rate of
flow before release into the drainage system.
Obfective
Provide maintenance and improvement of the quality
of receiving waters through control of pollution of storm
water runoff.
Policies
Pollution control structures and techniques shall
be required during and after construction activities to prevent
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water pollution resulting from eros10n, siltation, etc.
Vegetated swales, sodding and landscaping will be
required as components of the drainage system for natural
filtration and runoff control when feasible.
Major drainage outfal1s and receiving water bodies
should be monitored to identify the quality of stormwater
runoff and the impact on receiving bodies where applicable.
Objective
Coordinate improvements with other governments to
solve problems of an extraterritorial nature.
Policies
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The City shall participate in regional and county-
wide studies which are or may be formed to seek solutions
of problems of an extraterritorial nature such as the 208
Areawide Water Quality Management Plan and the Pinellas
Coun ty Master Drainage Plan.
The City shall continue to actively participate
on the Technical Advisory Committee. The Committee was formed
by the Pinellas Planning Council and is instrumental in making
county-wide drainage decisions.
The City shall actively pursue a coordinated approach
to interjurisdictional problems, providing support from both
staff and officials.
The City shall actively participate in the formulation,
review and implementation of detailed drainage basin plans spearheadec
by the Pine1las County Technical Advisory Committee on drainage.
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All improvements conducted by the City to major drain-
age systems will be in accordance with detailed drainage basin
plans adopted by the Pinellas Planning Council.
Objective
Provide sound fiscal management of the stormwater
drainage systems to include management, maintenance, operation
and construction.
Policies
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Operation and maintenance of the drainage system
should be financed through revenues supporting the City's
general fund.
All methods of financing system improvements and
new construction should be evaluated to determine the most
feasible ~nd equitable arrangements both citywide and 1n
local problem areas.
Continue to seek financial support for system
improvements through grant programs administered by appro-
priate state and federal agenc1es.
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Drainage Characteris ti cs and Exis ting Condi tions
Drainage Characteristics
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Because of its geographic location, Pine1las County
and Clearwater are subject to severe storms. This problem is
further complicated by the flat topography which does not
allow for rapid runoff of stormwaters. In certain areas. of
internal drainage, or in low-lying coastal and other waterfront
areas, no engineering alternative will provide total protection
against flood damage. However, many areas are subject to
relatively inexpensive solutions to major flooding problems.
All stormwater runoff originates as rainfall. The
amount of runoff varies with the rainfall intensity, duration
and level of development as well as with antecedent conditions.
While some rainfall normally occurs every month of the year 1n
the Clearwater service area, there is a distinct rainy season
extending from May to September. About 60-65 percent of the
annual rainfall occurs during the rainy season. Summer rainfall
is derived principally from convectional storms which usually
occur in the afternoon and early evening. Rainfall tends to be
intense, but of short duration (1-2 hours) and highly localized.
Average annual rainfall for the Clearwater area is S5 inches.l
The type of storm which causes the most problems in
the Clearwater area is the short duration, high intensity storm.
About 80 percent of the storms resulting in excessive runoff
are storms of this type. They are the primary source of complaints
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involving local flooding. The other less frequent type of
storm that occurs is one caused by some tropical disturbance
resulting in high winds, high tides and substantial rainfall.
Although the hourly intensities are rarely greater than those
in a summer thunderstorm, the combination of wind, tide and
rainfall results in more extensive damage over a wider area.
During light rainfall periods runoff may be slight or non-
existent and during intense periods of rainfall a large portion
of the rainfall may become runoff.
In an urbanized area runoff characteristics are
significantly different from those of a similar undeveloped
drainage basin. As development increases, the amount of
impermeable area also increases which causes an increase in
runoff rates. In an urbanized area, runoff coefficients
may be as high as 90-95* percent as ,opposed to rates of 30
percent or less for undeveloped areas.
There is a direct relationship between land use
and drainage. The two most important land use considerations
are flood plain development and land use intensity. Flood
plain development has proven costly to both the private and
public sectors. The private sector has historically sustained
loss of life and personal injury while suffering substantial
property damage. The private sector has received large amounts
of public relief in an effort to aid the victims of flood
damage. Land use intensity is significant since the amount of
stormwater runoff increases with the percentage of impermeable
*Percent of total rainfall
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surface. As development continues, the need for drainage
improvements 1ncrease. Furthermore, the demand for
drainage facilities is created at the time of development,
and it is less costly to construct these facilities at the
time of development rather than after development has
occurred.
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With the advent of federal, state, and local
restrictions on the pollution of surface waters, numerous
point sources of pollution have been eliminated or have
had their pollutant load significantly reduced. Nonpoint
sources of pollution, such as stormwater discharges, are
now being carefully evaluated to determine what effects these
have had on the quality of receiving water bodies. The water
quality assessment of the Tampa Bay Regional Planning Council's
208 Plan (Areawide Water Quality Management Plan) for the Tampa
Bay Region has identified urban stormwater runo.ff as being the
largest contributor to nonpoint-source water pollution in the
Tampa Bay Region. Typical pollutant components of urban
stormwater runoff include suspended solids, nutrients, pesti-
cides, oil, grease, lead and bacteria. The impacts of these
pollutants are often accentuated when large quantities are
released in a short period of time during heavy rainfall. These
pollutants have been identified as coming from construction sedi-
mentation, lawn and landscape clippings, domestic animals, soil
erosion, trash and atmospheric pollution. Stormwater drainage
syste~collect, transport and dispose of pollutants contained in
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urban stormwater in such a manner that little dispersion of
the pollutant load occurs during the actual transmission of
stormwater. Most of the pollutants are concentrated or
assimilated in the receiving body of water.2
Treatment alternatives for the abatement of storm-
water pollution are classified as either structural or non-
structural. Structural alternatives involve the actual
placement of a physical facility for the treatment of polluted
stormwater. Non-structural alternatives involve the elimination
and/or reduction of pollutants before they actually enter the
stormwater drainage system. Treatment of water quality problems
can take many forms, and any treatment alternative must be care-
fully evaluated to determine its applicability to a particular
problem. Treatment alternatives may take the form of physical,
chemical, natural processes, or a combination of these processes.
The City of Clearwater does not chemically or physi-
cally treat stormwater to reduce pollutants. Most of Clearwater's
stormwater is discharged into C1eanvater Bay or Tampa Bay where
its pollutant loads are diluted and assimilated by natural pro-
cesses. Frequently, the pollutant load is far in excess of the
receiving body of water's assimilation capacity, thus contributing
to the lowering of water quality.
Stormwater pollutants are reduced prior to discharge
by use of retention ponds at various locations throughout the
City. These basins are used as a means of reducing the quality
and quantity problems associated with stormwater runoff
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without the cost of chemical or other structural alternatives.
Because of the high price of land within the developed areas,
retention ponds are seldom extensively utilized in highly devel-
oped areas. The Clearwater Resource Development Committee
requires that in new developments, post-construction stormwater
runoff volume be equal to or less than pre-development runoff volume.
Retention ponds have become an important element in the City's
drainage system since they provide an area for the storage of
stormwater runoff. Because of engineering, environmental, and
other factors, retention ponds may playa larger role in the
solution to urban runoff problems. Guidelines for future
drainage and improvements are presented in Appendix I which was
adopted in Pinellas County's Master Drainage Plan by the Pinel1as
County Commission.
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Existing Conditions
In evaluating storm water drainage systems, it 1S
important to identify the physical areas through which the
water flows. These areas are termed drainage basins and are
defined by higher topographic or man-made elevations on the
perimeter which drain to lower elevations within the basin
area. Creeks, streams, rivers, lakes and wetlands are examples
of lower elevations. lfuen a storm occurs, the runoff drains
into the channels which feed the receiving water body or area.
If the rain storm is an unusually heavy one, the receiving
water bodies ultimately fill up, overflow and flood their
banks.
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There are eleven separate drainage basins in the
Clearwater service area. The Stevenson Creek basin, the
Allen Creek basin and the Alligator Creek basin are basins
which are nearly fully developed. There are four coastal
zone basins of which two basins border Clearwater Harbor and
two border Tampa Bay. In addition to the basins previously
mentioned, there are four relatively undeveloped basins that
lie in the northern part of the Clearwater Service Area.
Those basins are Curlew Creek, Mullet Creek, Bishop Creek
and Possum Branch. It is noted that the boundaries of the
drainage basins slightly differ between Clearwater's Master
Drainage Plan and Pine1las County's Master Drainage Plan.
The following is a brief description and a location map of
the individual drainage basins utilizing information from
Clearwater's Master Drainage Plan. 3,
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Curlew Creek Basin
This basin of 6,600 acres is the largest within the
study area, with 3,100 acres being contained ln the Clearwater
service area. The stream has its headwaters ln the central
portion of the service area and is made up of two main branches
that join at the edge of the service area, and drain westerly
to St. Joseph Sound. Most of the soils in the basin have a
medium permeability rating, and there are many small natural
water storage areas located throughout the basin. The combined
length of these streams is abouL42,000 feet. Most of the land
in the service area portion of the basin is about the 50 foot
contour and is generally sparsely wooded. However, the area
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is rapidly developing, wi th several mobile home parks and
subdivisions now under construction, or in the planning stage.
At full development, land uses in the area will be primarily
residential.
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CURLEW (REEK BASIN
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Possum Branch Basin
This basin has a total drainage area of 2,330 acres
with approximately 730 acres being contained in the service
area. The area is drained by two individual streams with a
combined length of about 600 feet, each discharging into
the Lake Tarpon Outfall Canal. This basin contains very
little development. Only 5 to 10 percent of the land within
the basin is developed. Most_of the soils in the basin have
a medium permeability rating and there are several natural
water storage areas from 1 to 2 acres. The entire basin has
a steeply sloping terrain.
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POSSUM BRANCH BASIN
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Bishop CreeK Basin
This basin is similar in its physical characteristics
and land use to Possum Branch Basin. The total basin area is
about 1 , 750 .acresof which 800 acres are in the Clearwater
service area. 'The area is drained by two branches of Bishop
Creek with a combined channel length of approximately 3.3 miles.
Both branches flow eastward to a point where they combine just
before discharging into Old Tampa Bay. A medium permeability
rating is given to most of the soil ln the basin and a few
natural water storage areas\ranging from 1-2 acres can be
found in the upper basin. The basin is approximately 25 percent
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developed and has a terrain varying from steeply sloping at the
upper and lower ends to gently sloping in the central area.
BISHOP C~HK BASIN
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Mullet Creek Basin
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The total area of this basin is 2,180 acres of which
640 are in the Clearwater service area. Presently the land
is primarily used for citrus groves, pasture and truck farming.
Future plans for the area call for residential development with
some of the land to be retained as open space. Two branches of
Mullet Creek, with a combined length of nearly 12,000 feet,
drain the area. The Creek flows through the northern part of
the Town of Safety Harbor before discharging into Old Tampa
Bay. Most of the soil has a medium permeability rating, and
there are many natural water storage areas in the basin with
the larger ones ranging in size of up to 20 acres.
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MUllET CREEK BASIN
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Alligator Creek Basin
This basin lies almost entirely in the Clearwater
service area, draining approximately 5,900 acres and discharging
into Old Tampa Bay. The main branch of the stream is about
27,000 feet long with its headwaters ln the central part of the
City, and flows generally ln an easterly directly, roughly par-
alle1ing the Seaboard Coastline Railroad. Alligator Creek flows
into man-made Alligator Lake just pTior to its outlet into Old
Tampa Bay. Alligator Creek has several branches which tie into
the main stream, including one nearly 10,000 feet long. Deve1-
opment in this basin is presently residential, commercial and
some industrial with approximately 25 percent of the area still
to be developed. There are many natural water storage areas
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ranging in size from 1 to 4 acres located throughout the entire
basin. The basin terrain in the north, west and central areas
is practically flat, with the remainder of the terrain being
fairly steep.
ALLIGATOR CREEK BASIN
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Stevenson Creek Basin
This basin lies almost entirely in the Clearwater
service area and drains an area of 6,600 acres, of which 4,400
acres lie within the Clearwater service area. The main branch
of Stevenson Creek is approximately 25,000 feet long, with its
headwaters in the Town of Largo. Stevenson Creek empties into
Clearwater Harbor. The area includes the most highly developed
residential, commercial and industrial property in the City.
The area is over 80 percent developed, with most of the undevel-
oped land lying in the northern basin region. The north branch
of Stevenson Creek is approximately 12,000 feet long, with its
headwaters in the Town of Dunedin. This area is approximately
fifty percent residential and is nearly equally divided between
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Clearwater and Dunedin. The basin terrain is very steep in the
easternmost area and gradually reduces to very flat in the
westernmost area. Soil permeability is not measurable in much
of the basin because of the amount of development.
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STEVENSON CREEK BASIN
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Coastal Zones One and Four
These basins lie along the western shoreline of
the Cleanvater mainland and drain a 1,000 acre strip of land
which varies from 1,000 to 5,000 feet in width. The eastern
edge of these zones is common with the Stevenson Creek Basin
divide. The area drained- is the oldest and most highly
developed part of the City and the land use is roughly divided
between commercial and residential. Surface drainage is a
combination of overland flow and a network of storm sewers
that outlet into Clearwater Harbor. The terrain is generally
steep sloping to the west. A few natural water storage areas
are located in Coastal Zone One and range from 1 to 2 acres.
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COASTAL ZONES ONE
AND FOUR
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Allen Creek Basin
Approximately 2,440 acres of the Allen Creek Basin
lie in the Clearwater service area and this basin drains the
south central part of the City. The entire basin drains
5,200 acres before discharging into Old Tampa Bay, immediately
below the Clea~ater-Largo boundary. The main branch of Allen
Creek is approximately 27-,000 feet long with its headwaters
in the center of the City just south of the Clearwater Executive
Airpark. The main channel is fed by numerous branches with a
majority of these branches joining the main stream in the Town
of Largo. The basin is 85 percent developed and is mainly
residential. The fully developed land makes measuring soil
permeability difficult. Several medium size natural water
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storage areas of 3 to 10 acres' are .located in the upper reaches
of the basin. The terrain is gently sloping except for the
steeply sloping central and north central portions.
AlUN CREEK BASIN
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Coastal Zone Two
This 920 acre zone borders on Old Tampa Bay and lies
in the southeast corner of the Clearwater service area.
It is
bordered on the west by the Allen Creek Basin and on the north
by the Alligator Creek Basin. Development of this area has
occurred fairly recently, nearly all in the past 10 to 15 years.
Roughly 80 percent of the area is developed or is under develop-
ment, which consists mainly of mobile home parks and single
family dwellings. Drainage facilities consist mostly of man-
made canals and drainage ditches. Most of the soils in the
basin have a medium permeability rating.
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COASTAL ZONE TWO
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Coastal Zone Three
This zone of approximately 1,120 acres lies entirely
within the Clearwater service area and drains land on both
sides of State Road 60. Development in .this zone is similar
to that in zone two with the exception of Clearwater Christian
College Campus and Cooper's Point. These areas are in a
natural setting and are below the ten foot contour. The
area is drained by a combination of storm sewers and ditches
which empty into Old Tampa Bay. Development in the basin is
approximately 60 percent complete and most of the soil has a
medium permeability rating.
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COASTAL ZONE THREE
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Clearwater Beach
In addition to the previously mentioned drainage
basins, the Clearwater Beach area, a combination of man-made
land and barrier beaches, is still another area where drainage
considerations are important. Most of the beach area is in
the range of 4 to 6 feet above mean sea level, with a few
.
acres above the 10 foot contour. The beach is a highly
developed commercial and residential area and is drained
primarily by individual storm sewers which empty into
Clearwater Harbor and the Gulf of Mexico. Some of the low
areas are subject to flooding when high tides cause water
to back up through the storm sewers.
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CLEARWATER BEACH
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Water Quantity_
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The City of Clearwater lS located on a bluff
approximately 60 feet above mean sea level which is centered
approximately at the Clearwater Air Park. A ridge of approx-
imately the same elevation runs south from the vicinity of
the intersection of LaKeview Road and South.Missouri Avenue
to Largo. These high points are separated by a valley which
drains the tributary area partly into Stevenson Creek and
partly into the Allen Creek and Alligator Creek Bas ins. An
oval plateau rises to an elevation of 40 to SO feet at the
center. As might be expected of a Florida coastal area, many
of the low lying plains at the City's perimeter are below
the 100 year flood elevation. Plate 12 provides contour lines
and location of areas in the City of Clearwater below the 100
year flood elevation.
As previously mentioned, all runoff is generated
from precipitation in the form of rainfall. Even in an unde-
veloped area, runoff varies considerably with the duration
and intensity of the rainfall event. Generally, a storm
of short duration and high rainfall rates will produce higher
runoff rates than a longer but less intense storm with the
same actual rainfall total. In undeveloped areas of large
size the average runoff may range from 10 to 20 percent
while in urban areas runoff rates commonly range from 30 to
90 percent depending upon land use and other factors. Guide-
lines for future drainage and improvements are discussed in
Appendix 1. Appendix I I de als with drain age des ign procedure.
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Plate 12
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J .1--~\' . ~ ~[Ig~!f l}.0-.'~.~-B8. ~V~~jJ~~'~\'~le
1:;:;:;=--, .. ~~" rf, ~ 'I~: ~~ ~
/ I ~7 ~ Il)'-. ,: '~-"~ ~",..-;.'w>: ~j
// ~ ! h . " '~ / I '.~.x """
'41- 0 \ ~~-,. X' l"'"'~""'- 'JO".
r--> ,----- '-- ,---/Q. ~::::~ ,0. Ili'i<U", X
.J ~ I do . - "" ~ -:-1 ~ -8 I, ~ i I Ill. -., Xv
~~ v ~ ~/c ----.; V .; L.J ~\\, \' it i ! I ~ :>"
~ ! 1',----- ~lb c;,oQ f I \, ~Iv i ~
-- ~ 'I 1 I "---r~~~1 J <-;;? ~OQO-~ \~ ~ I. I ~ ~
~rf.<...:.L_~ ~' c};n~~ o~ ~~ I ~-5~ ~'~~, D'I I ~
~ ~ f-U ~ Ie:), -.J 'I -c::SCT c=-
1 = r- K'-f 0 _ _ CD+- ~r::Ilc' ;:::E3 ,~
r-~ 'Vo:S,- , I ~ .f-.~~"~-
j ~~0~~,\o ~~~:~~ :_E~ ~1~!'!14~~E~ - =::/;;;
-,--,,4 _ ...OJ ~ '<V " ~\=1 ~ ~ TJ:.~~Q'" ~ U::::it:::: .......( ,~~ : '''; ,
~ ~:/rl~lliIT ~ ....~= r-~ .,," ~~ ~~.~~;I~! ., -= ~;"'~/YI"':';;
I ;..-Jf)..~ 5 _ ,'"""" ~Y' i 1....,11,----11 I "= ~ ~
~ \ I' "'=:I' _ e ~ I . r .~. r I ...... ---""-1 ~;; \\
\~ii ~~' ~_-~ -, ~ iUJ' ", (~:= ~ : ~ ~. ~ dl= ~~L.~~ .4
, 0 u \ __:~~ /' rd c-~llD rr:rrm ~ ill-.-J ~ frY " .f::=1~1 i -; ~ I~ :::b:l. ~~ ' , --"-'1:-
tm ' .illJ!li UII~C"8 ~ ~ ',---,.....---1 ~ : ''t ' '" >----"', I, I ~[I]n i! -,-
~ 1 \ \ ~ I ~ :J~ rJ rcsr1taB .. ...~ I ~ EJ'@~' ,> '~HTI '~ Jill ~ WlJ! q' ,~~' -r "~
m &iEB~~dlJ )_~~g~~'i::~-: !~~ Ll:--~~r==\.(~ ~'?;;~Ff~; !IS--\.I .
- L ~ ----,-,--,--" ~ \ '=,y "n~: . L-J ~~\\. ~~ U1t==g"" ~ ~<
T ,<~~~~i!((?~ . l~;!;~ ~!,; i . ~'~~, ww..~ ~~
:1' rLYI;- '-c 1lliJ'----"(B:s~Y-.:;~~ril~. I",SC !r::: .-1 I,;:, 7 .~,..c. .1" =1:::...:-. ~i ~ '.' \ ~.^==.L"
- . .l......;i \i "..,r-3D-l-4- ~~il'~1~~' ~!, i f\":i <~. . ~~
'I r,( I-r-:---I' [ [!!!!tl!!iilUli 'u' r'-i~ i! I'-""S.:'-lllm\~ ~.' / c'r' ~ - n~ ~ lrr.:#f, --; l;' ,~
~r7 ~_!:~~, ~Jljl L' ! . 18~~--i "'.~~~o '
: rr1 0 ~rl~ !~I o>~,r :----<rl I' ,-~"IC'j:;i-r1 ,"",
"............) iIS" I' '-LJ rErEJ\jO-r::' ~~' I I~:'I I'I ''"'=': '--'- ,.. '1"1':" "J,'II i.,
I ~Jj -L. 1 III \.-.----.j Q!rrlll !I W r-' ~\ I IIIII I r""'-l ~~ k.... ::"l - ,., ',..., ;;:r "
I, ' I-: ;3::111 II ...L;~sra' ilU !II'H _ c;illy:-,' rsl~I""'-'lillllli'\!TfFIII~1 ,.. JI.lllllltl,;'j It)-
~\IIL./ I, '-"-', I, ~ 0,1 I ~ ,Z I ~
, 'I L.L.---' ~~ ~- ~ ~ ~ ~~b ~ ,--- I ~ rrl LIT ~- !~~ ~~ i I V I r--t ~ I i ~ I'"~~ -=:J I I 1-
" 1.'''''''-. ~ , 9[b1D==;~r, TTTi"",l ~ J Uw. ~~W! I \ ~-il/! ' II' c...; ~~,"i'\:'_='I~
____~ ' \---/ ,,---,---,',; j III '::Ii 0 II f?1DF ~~ ~ I' i I~r" . I ,=;~, ,t,' " ~.
1;- EfShl~~~ ":::=JlD H".. 111-!..llllriD II Ili~.~. ii' .. ...'. L;J1 '_'A~ --'><, - ""'" '=.~..>,e;===i~
;";;:J..- "-'I ~~ 1" =- U'I' ii, "'~\ " ,_...... ~ i "
i<?,....~~...,. J.,~~~ ,:...l.J....L.J11 ~~~ \III~ ~- II-~, --ri ~r ' I
f..~1 .....,.~ :/(f..~ --'C-'III !ill f--,-\, i,iiiIIIUi'1 , . I',,------:J-;.. K~~ ~ I' 'I '! . I ..
;6=r:::J -= '\)0L:!~ ." . .... .' . I ~ .' --i ',^, "~,,. -f:::=' --,----------j
"'\ 0 . ~,) !/illi(w)(=I'~-; ~ i0~--;-h:::::::j~~;:=::::rr luF\ ~r----~~ o.=-
/.I:;;;t-/ ~ . ~~-==-- ~I , .= H---7 .
",' .,h"_____... 0 - ~ ><<X"";,~:: I;' I ':- I '-:----I0.''\.'\.',! ---=~
'.. .." . \;>..'\.'\.'\.\ ~;.,.
.. ,cc,':,'....,ooo 'O-h'C~O=C."cc-._"o":.~"""o,,~,~'~o~oo,"~,~,=--,,:=,~,,...,""-'~"-J:.'_h~......,,- ~~---::.~ I ,.,,~ -'-i I~'::&-=~ ~ J
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-25-
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Water Quality4
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The quality of the water that leaves our environment
in streams, creeks, rivers and ditches, or that is contained
In our lakes and ponds, is a direct result of our land use
practices. Due to the fact that sufficient water quality
analyses have previously been taken in the coastal waters
surrounding Clearwater, the Clearwater Environmental Manage-
ment Program and Conservation Plan's analysis of water quality
was limited to selected interior lakes and streams in the
Clearwater service area. The results of the analyses revealed
that the interior lakes and streams contained relatively marginal
water quali ty.
The service area of Clearwater contains a large
number of ponds, many lakes and several stream segments. A
spot sampling method was utilized to evaluate the quality of
these freshwater bodies. A total of eighteen sample stations
were selected on a variety of lakes, ponds, and on one major
stream. The large lakes and ponds had two or more sample
stations, while smaller ponds and lakes had only one sample
station. All of the sampling stations were located in the
Alligator Creek Drainage Basin except for two stations at
Spring Lake which is in the Curlew Creek Drainage Basin.
One stream (Alligator Creek) was sampled at various points to
determine the origin of any pollution along its course, and
to measure the dilution capability of the natural stream. The
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- 26-
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seasonal climate In this area necessitates a sampling of each
point in the dry season as well as one in the wet season. This
dual sampling provides a means of checking the relative amounts
and types of pollutants washed into bodies of water from sur-
rounding areas during the rainy season. Unfortunately the
timing of the Clearwater Conservation Plan precluded obtaining
wet season samples for all the stations.
A series of tests were_conducted In the field, and
on water collected at the sample stations. A single test rarely
provides useful information; the best indication of pollution
and the source of the pollution is the combination of results
from a battery of tests. Twenty-three individual tests were
conducted on each water sample.
Eighteen dry season samples and six wet season samples
were taken during late spring, 1976" at selected lakes and ponds
and along Alligator Creek. Dry season values were quantified
and compared with the wet season values. From analysis of this
data, conclusions and recommendations were drawn for the manage-
ment of each water body and Alligator Creek. Problem areas were
identified, general conclusions were drawn, and general recom-
mendations were then made for purposes of the Conservation Plan.
The conclusions and recommendations which were offered
relate directly to land use activities which are glven considerable
attention in the main report of the Cohs~rvation Plan. Private
land use regulatiolliand public land management considerations
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.
reflect the concern for water quality and watershed management
throughout the Conservation Plan.
The results of this analysis show the need for a
continued water quality monitoring program and the need for
paying greater attention to the valuable fresh water bodies
within the Clearwater service area.
Water quality throughout the service area is relatively
good, although a few areas, such as Alligator Creek, require
specific attention. Continued monitoring in all seasons is
needed, however, to confirm this general assessment, as is
indicated by the percentage change date in the wet season
comparative analysis. All of the lakes and streams sampled
had algae blooms which would likely be absent during the
winter months; none of the lakes sa~pled is considered to be
eutrophic or approaching this state. Wet season runoff can
be expected to dramatically increase the values of those para-
meters associated with this phenomenon. Early seasonal rains
act as a flushing mechanism which may place abnormally high
pollutant loads on lakes and streams. A year round assessment
of pollutant levels would also show the ability of these lakes
and streams to dilute pollutant loads, if indeed this ability
exists with continued urbanization and the subsequent loss of
natural watersheds. Some lakes and streams have minor problems
with exotic aquatic weeds which are primarily a hazard to nav-
igation. Although these weeds may keep dissolved oxygen levels
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high and assimilate nutrients, they encroach on the more
productive native vegetation and also intercept available
sunlight for submerged native vegetation.
Alligator Creek is generally concluded to be in
poor condition because of sediments, "nutrient loads~ and
excessively high bacterial counts. Moccasin Lake, Coachman
Racket Club Lake, Coachman Lake near the Sunset Point/U.S. 19
Shopping Center, and Alligator Lake all suffer from runoff
pollution.
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Existing Condi tionsand Regulations
Existing and pending legislation and regulations
become an issue when rules change once a plan has been
initiated or a course of action has been chosen. The Clean
Water Act (PL-92-500) has specific criteria which must be
followed to improve water quality. The Florida Department
of Environmental Regulation has promulgated guidelines to
improve water quality in the State. Urban areas are one of
the prime contributors to non-point pollution of water bodies,
therefore, runoff must be controlled and managed. The following
is a brief discussion of the major programs at different govern-
mental levels that are directly involved in stormwater management.
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Fe de ral
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The Clean Water Act (P.L. 92-500) is the most compre-
hensive and forceful piece of legislation to date. The Act
has specific water quality programs concernlng non-point sources
of pollution. The Tampa Bay Regional Planning Council has
produced the Areawide Water Quality Management Plan which
identified all pollution sources that adversely affect water
quality and generated abatement strategies and techniques that
would improve and maintain water quality to a point that will
meet national goals. The 11208 S tudyll (AWQIvfP) is a regional
plan which fulfills national goals and legislation. In addition
to the 208 Study, the City has recently completed a first draft
of the 201 Study which is oriented primarily toward point source
pollution.
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The Federal Flood Insurance Program was established
out of the result of heavy personal and property losses. The
program was established in 1968 and was proposed to provide
flood protection to property owners who were not able to
acquire coverage from private industry. Floodplain zoning
and subdivision regulations were also encouraged for local
governments so that the number of persons and structures located
in flood -:prone areas would be reduced. The City of Clearwater
lS participating in the Flood Insurance Program. The City uses
USGS topographical elevations, historical records of local
flooding, input from local citizens and assistance from the
Southwest Florida Water Management District to pinpoint flood
prone areas. Plate 12 shows these flood prone areas.
The Corps of Engineers exercises protective control
over developments in areas below the mean high tide line.
These areas include all wetland areas adjacent to navigable
water. The Soil Conservation Service and the United States
Geological Survey provide monitoring and information regarding
conditions in the Tampa Bay area that are drainage related;
such as surface and groundwater quality, soil conditions and
management techniques.
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State
All drainage projects must be in compliance with all
water quality regulations of the U.S. Environmental Protection
Agency (PL 92-500) and the Florida Department of Environmental
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Regulation (DER). The DER has developed water quality classi-
fications for the waters of the state and provides monitoring
and administration regarding those regulations. The DER is
responsible for developing the State Water Quality and Water
Use Plans.
The Division of State Planning is responsible for
developing the Drainage Element of the State Comprehensive
Plan and reviewing local drainage elements for all local
comprehensive plans.
Regional
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The Tampa Bay Regional Planning Council is responsible
for development of the Regional Water Quality Management Plan
under Section 208 of P.L. 92-500. The regional agency's plan
identified water pollution sources and recommended guidelines,
regulations, model ordinances, and' management techniques for
local water pollution ab atemen t. The" 208" pI an provide d
techniques and procedures to limit the potential contamination
of both surface and groundwaters from drainage source pollution.
The Southwest Florida Water Management District is not
only responsible for enhancing the potable water supply available
in the District but also is responsible for providing proper
management of the water and land resources in alleviating flood
destruction. The District also is responsible for reviewing
and permitting flood control projects. Regulations adopted by
SWFWMD require a permi t to be obtained prior to any construction
within the District that will:
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1. Cause the flow of a stream or other water
course to be lowered below the minimum flow
established by SW8VMD.
2. Cause the level of the potentiometric surface
to be lowered below the regulatory level
established by SWFWMD.
3. Cause the level of the surface of water in a
lake or other impoundment to be lowered below
the minimum level established by SWFWMD.
4. Significantly induce saltwater encroachment.
5. Cause the water table to be lowered so that
the lake stage or vegetation will be adversely
and significantly affected on lands other than
those owned, leased or otherwise controlled by
the applicant.
l,
The specific limits affecting the Clearwater Drainage Element
are:
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1. The flow of a stream or watercourse must not be
reduced by more than five percent at the time
and point of withdrawal except in the case of
a dam which stores water for subsequent release
downstream.
2. The level of the potentiometric surface under
lands not owned, leased or otherwise controlled
by the applicant must not be lowered more than
five feet.
3. The potentiometric surface must not be lowered
below sea level.
4. The level of the water table under lands not
owned, leased or otherwise controlled by.the
applicant must not be lowered more than three
feet.
5. The level of the surface of water in any lake or
other impoundment must not be lowered more than
one foot unless the lake impoundment is wholly
owned, leased or otherwise controlled by the
applicant.
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Local
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Pinellas County has exercised control over the
drainage aspects of development projects within the County
for many years. Pinellas County's special legislation
created the Pinellas County Planning Council which mandated
two efforts that address stormwater management. They are
the Uniform Development Code and the Master Drainage Plan.
Both of these documents are generalized reports which allow
flexibility in the more detailed drainage basin reports.
The result of this reports was the formation of the
Technical Advisory Committee (TAC) on drainage to provide policy
guidance and local government input into the two efforts. The
TAC was invaluable as a sounding board for the consultants while
developing the Master Drainage Plan. The TAC consists of
city and county engineers, public works directors, planners
and other designated representatives'. The committee reviews
drainage basin master plans to coordinate improvements between
political jurisdictions. It is through the efforts of this
comittee_ that specific, detailed engineering plans are being
devised for every drainage basin in Pinel1as County. Each
drainage basin plan will be adopted by the Pinellas County
Planning Council and the Pinellas County Board of County
Commissioners. Adoption of each drainage basin plan by these
two agencies will bind each local government to adhere to the
engineering plans for specific improvements. Thus, this adoption
process illustrates the importance of Clearwater's participation
in the formulation and review of each of the City's drainage basin
plan s .
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The City of Clearwater has undertaken an extensive
and comprehensive effort toward provisioTl_of major drainage
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improvements and stormwater management techniques. Four
major up-to-date reports deal with aspects of drainage as
related to the Clearwater area. There are:
(1) Master Drainage Plan for the City of
Clearwater, Florida, by McFarland-Johnson/Southeastern
Engineers (1974).
(2) Master Drainage Plan, Pinellas County, Florida
for the Pinellas County Planning Council by Post, Buckley, Schuh
& J e rn i g an, In c . ( 1 9 7 5) .
(3) Clearwater Environmental Management Program and
Conservation Plan by the Planning/Design Group (1976).
(4) Water Quality Management in the Tampa Bay Region:
An Analysis of Managerial Alternatives' by Arthur Young & Company
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(1977).
These reports represent four viewpoints in consideration
of the problems of drainage. The first report recognizes problems
and proposed solutions in the Clearwater area. The City is
operating under the engineering study until new drainage basin plans
are. devised. The new plans are being formulated for each drainage
basin and should be completed in the near future. The second
report lists problems and proposes solutions by drainage basins
wherein the limits of the City's jurisdiction are exceeded. The
third report identifies drainage as a component of environmental
management and conservation. The fourth incorporates drainage
into an overall water quality program, requirements for which
are mandated by laws of the federal and state governments. This
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report considers local drainage problems in the context of a
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changing administrative framework.
An examination of Commission action and a review of
recommended policies in the Clearwater Environmental Management
Program and Conservation Plan produces some evidence that the
City Commission is following and indicated policy on drainage.
New development is required to retain or detain rainfall so
that the quantity of runoff after development does not exceed
pre-development volumes. In older sections of the City,
objectives focus on removal of storm water to preserve
property and maintain traffic flow. An erosion control
plan has been put into effect for the City.
The Department of Public Works (which manages all
drainage improvement project) receives much of its funding
for drainage projects from the City's General Revenue Fund.
Significant funds are also made available for specific projects
through Federal Community Development Funds and general obliga-
tion bonds. The City does not charge an impact fee or assess
the individual property owner for drainage problems that he
may create for himself or others since the developer will not
be allowed to increase runoff from his property. Also indi-
vidual property owners are not charged for drainage problems
caused by past improper development on a particular piece of
property. Many cities currently charge the affected property
owner or person causing the problem to bear the cost of drainage
corrections.
As an integral portion of site plan reVlew, the
City's Department of Public Works reviews and must approve all
building permits and drainage plans. In reviewing these plans,
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drainage systems are scrutinized to determine what impacts,
if any, the development will have on surrounding property
owners. If the developmeht will create impacts upon downstream
property owners, the developer will be required to alleviate the
problem and redesign his project. Post development stormwater
runoff shall be equal to or less than predevelopment conditions.
Problem Identification
Based on the findings of this and other studies of
Clearwater's stormwater drainage system, the following
problems can be identified as being of major importance to
the City:
.
1. Brief, high-intensity summer storms often cause
runoff in excess of drainage system capacity and result In
local flooding. This is an especially significant problem
In older, more intensely developed portions of the community
In which much of the land is covered with impervious surfaces.
2. The natural drainage system is also insufficient
to handle peak urban runoff in some areas. Extensive urban
development in some watersheds has increased the amount of
surface to the point that natural stream channels cannot
accommodate this added volume without flooding. This
situation also results in localized flood problems.
3. Increased runoff volumes and velocities have
modified natural erosion-deposition patterns, and many reaches
of the existing stream channels have capacities that are inade-
quate to handle the now high volumes of runoff.
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4. The major streams within the corporate limits are
critical elements of an overall drainage system, but they also
have recreational and ecological values that must be considered
when designing, widening and channelization projects. This pre-
sents a dilemma when increased stream channel capacities are
needed to adequately drain the surface runoff from intensely
developed areas. This issue also raises environmental and
cost efficient alternatives.
5. As in many other urban areas, Clearwater is
confronted with maintenance problems associated with an open
channel drainage system. Excessive siltation, refuse, vegeta-
tion and blocked culverts reduce the capacity of any open drainage
channel and must be periodically removed at significant expense
to the City.
6. There is very little additional land available for
storage in the Stevenson Creek Basin, Allen Creek Basin and the
four coastal zones. To provide additional storage, the City would
have to acquire property that is presently developed. The remain-
ing five basins, Alligator Creek, Curlew Creek, Bishop Creek,
Mullet Creek and Possum Branch, contain a great deal of land that
is presently used or could be used for storm water retention areas.
Many lakes, ponds and swamps presently exist in these basins.
7. The City of Clearwater is interested in protecting
its potable water supply from salt water intrusion, but transport
of all surplus runoff to Harbor and Bay waters does not allow
ground water recharge through percolation. Use of natural reten-
tion areas such as cypress domes and man-made retention areas
designed for dO\illward percolation of excess storm water would help
overcome this problem.
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Conclusions
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As a result of analysis and evaluation of this element
and the previous reports concerning stormwater drainage or water
quality in the Clearwater Service Area, the following conclusions
were reached:
(1) The City of Clearwater has experienced considerable
growth and development in the last 20 years which has increased
stormwater runoff, decreased the quality of surface water and
reduced groundwater recharge.
(2) The City's natural drainage system is inadequate
to handle peak urban runoff in most areas.
(3) Additional maintenance and improvement of the
drainage system is needed.
(4) There is a growing awareness In ~he public and
private sectors concerning the imp?rtance of both the quantity and
quality of water discharged by the City's drainage system.
(5) Maintenance and new construction will result In
the reduction of stormwater pollution.
(6) Brief, high intensity summer storms usually cause
gr~ater runoff than can be carried by the drainage system,
resulting in overflow situations.
(7) There is very little land. expecia11y In the older
areas, for storage of stormwater runoff.
(8) The construction and maintenance on a basin-wide
basis can most efficiently be done through cooperation between
political jurisdictions on an individual drainage basin concept.
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(9) Additional drainage basin studies are required
to develop project priorities and to finalize necessary improve-
ments for each drainage basin.
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Recommendations
Based upon the above conclusions, the following are
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recommendations which have been categorized under the headings
of water quantity, water quality and management.
Water Quantity
1. The current program for drainage improvements
should proceed in line with the City's plan to provide immediate
response to problems in developed areas. Engineering solutions
for these improvements should be based on design criteria devel-
oped by the City's Engineering Office and currently in use, and
should recognize the recommendations and policies establish~d
by adoption of the Conservation Plan.
2. Design of the improvements should be undertaken
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basin by basin, sufficiently in advance of construction so that
the total effect of storage areas tb be provided can be utilized
ln an analysis of existing drainage structure a~d facilities.
~. Urban runoff should be controlled according to
qualitative aspects as well as its quantitative (drainage) asoects.
Utilize natural areas for filtration and retention.
4. Discourage the proliferation of paved parking that
lS used only temporarily or seasonally, e.g., churches, shopping
centers; encourage grassed or shelled surfaces which allow infil-
tration of runoff for parking spaces ln excess or normal use
requirements.
S. Discourage the practice of'piping runoff in areas
where
grassed swales are
, ,
caoao...e
of handling excess water.
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6. Discourage or prohibit gravel lawns.
4It Water Quality5
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1. Establish a year-round water quality monitoring
program In all public water bodies and streams; institute
periodical monitoring of private water bodies.
2. Require a complete and accurate water quality
assessment and impact projections for Community Impact State-
ments, both public and private.
3. Encourage the use of French drains, catch basins,
tiles, and other innovative engineering devices which improve
infiltration and sediment removal. Treat runoff if necessary
to meet minimum quality standards.
4. Prevent the continuing destruction of natural
vegetation on shorelines and streambanks. Channelization of streams
should be a last resort action for .improvi~g s~reamflow for urban
drainage, and then only to protect existing developed property.
New developments should be designed whereby further channelization
of natural streams is not necessary.
5. Eliminate septic tanks and drainfields; require
hook-ups to sanitary sewer systems.
6. Eliminate small package sewage treatment plants;
require connection to county or municipal sanitary sewer systems.
Encourage the regionalization of county and municipal sewage
treatment systems for maximum treatment efficiency.
7. Investigate real and potential point sources
of pollution; requlre treatment of such sources by polluter to
hook-up to a sanitary sewer system.
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8. Investigate real and potential areawide (non-point)
sources of pollution including agricultural and horticultural
sources as well as urban runoff.
9. Discourage the over-fertilization of lawns and other
landscaping as well as the over-use of pesticides; encourage citi-
zens to follow strictly the mixture ratios and application rates
of manufacturers when applying fertilizers and pesticides.
10. Manage aquatic vegetation; mechanically harvest
noxious water weeds rather than spraying herbicides. Mow drainage
ditches and swales rather than spraying herbicides.
11. Flush storm drainage lines frequently and during
dry seasons.
12. Collect street sweepings rather than flushing
through storm sewer systems.
13. Encourage the re-use of surface ',o/aters .ror
irrigation.
14. Strictly enforce litter laws, the City's landscape
ordinance, and the tree protection ordinance.
IS. Establish a sedimentation and erosion control
ordinance and enforce strictly.
16. Secure fish management recommendations from the
Florida Game and Fresh Water Fish Corrunission for all public
bodies water.
17. Maintain continued cooperation with external
agencies involved with water qqua1ity, such as Federal EPA1
Army Corps of Engineers, State DER, State DNR, regional and
local authorities.
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Management
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As applied to the storm drainage system, the following
policies and operations are presently in use and provide the
vehicle for obtaining the objective of an environment where
property and resources are relatively secure from peak floods
with the resulting economic loss, and wherein natural drainage
systems are used to the maximum extent feasible:
1. Review of proposed major developments by the
Resource. Development Commi ttee through the use of ComIl1uni ty
Impact Statements should continue. The City has, under an
ordinance requiring a Community Impact Statement, implemented
monitoring and control procedures for development. The require-
ments ror coordination and compliance with the Clearwater ~laste~
Drainage Plan are pre-eminent.
2. The Public Works Department shall continue to
reVlew proposed storm drain~ge improvements for all new construc-
tion as a part of the building permit activity.
3. The City should continue to pursue the storm
drainage improvement program developed by City personnel based
on-guidelines contained in the 1974 Master Drainage Plan for
the City of Clearwater, Florida as time and available runds
permit. Programed improvements are being monitored and updated
by the Engineering Departments.
4. Require that all drainage improvements be designed
and constructed in accordance with technical criteria established
by the Public Works Department.
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S. Liaising with other governmental entities whose
political boundaries abut the City's boundaries and who share
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common drainage problems with Clearwater should be encouraged.
6. Since the primary thrust of state and federal
activities in stormwater management is directed toward an
areawide approach which addresses quality as well as quantity,
the drainage improvement programs of individual cities will be
clearly affected by this new philosophy. This broad regional
control of stormwater management is being pressed through the.
1I208" program and the State Loan Program. These state and
federal funds will be granted to a municipality only if lIdrainage"
has become lIstormwater managementll with adequate water quality
safeguards. Therefore, the City should be adequately staffed to
keep abreast of new developments in this area and to ensure that
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the City's interests are protected from the standpoint of ensuring
that resources are allocated in th~ most efficient fashion and
that responsiveness to local needs is guaranteed.
7. fu~ inventory should be established and maintained
of existing drainage systems, so that a pay-as-you-go program
ror improvements or replacements of existing inadequate or
antiquated systems be initiated. Priorities ror improvements
could be established by this cataloguing. Initially, priority
ranking would be based on trouble calls. This would be supple-
mented by the opportunity component. For example, if a major
street improvement was planned the storm drainage system could
be upgraded at that time.
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8. The City of Clearwater should continue to actively
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participate in the decision-making process of the County's TAC
.
on drainage. Active participation will promote interjurisdictional
cooperation especially concerning drainage basins which overlap poli-
.
tical boundaries.
The adoption process formulated by the County for its
drainage basin plans illustrates the importance of Clearwater's
participation in each drainage basin study within the City's
service area.
All improvements to maJor drainage systems will be In
accordance with detailed drainage basin plans adopted by the
Pinellas Planning Council.
Financing
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Costs associated with drainage improvements are more
difficult to isolate than costs asSociated with sewer, water and
sanitation expenses because of the many improvement activities
that include drainage. Federal Aid grant assistance and loans
have been a source of funds in recent years in the financing of
urban storm sewers. However, the bulk of the funds have come
from local sources. Local financing has been accomplished pri-
marily through tax exempt municipal bonds, special assessments,
and appropriations from general tax resources. The availability
of funds is not only dependent upon the tax rate but also upon
the level of property assessment.
The selection of Capital Improvement Projects is
based upon the need, cost, sclutions available, and the City's
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financial capab il i tie s . While the nee ds, cas ts, and so 1 u tions
are relatively easy to determine, the cost of financing the
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solutions are often in excess of the City's financial ability.
In addition to revenue sharing funds, general obligation
bonds, general tax resources, and federal/state grants, the City
should consider placing the cost burden of drainage activities on
the individual(s) causing the problem and/or those receiving
storm - drainage benefits. The cost could be an assessment based
on individual runoff contributions of subject properties. The City
should also, where deemed more cost beneficial, consider directly
compensating citizens for drainage inadequacies by purchasing
effected properties. Such a compensation approach should be
carefully examined.
The City may wish to levy a tax within a drainage basin
to meet bond debt service requirements for drainage improvements.
This would require tax assessment rolls for each drainage basin.
Property rolls are indexed on the basis of political subdivisions.
Considerable effort would be required to prepare drainage basin
rolls. These tax revenues would be used solely for drainage im-
provements. This tax would have an advantage over other taxes
in that the voters decide the need of drainage improvements on
a local basis, since a referendum in each district would be
required to institute such a tax.
The City also has the authority to ~mpose an impact
fee for new construction. The developer will compensate the
City for the added burden the development has caused. A dis-
advantage of the fee is that the collection might be delayed
and might not be available at the beginning of the construction
project. Further, the timing of these fees could ~ot be accu-
rately forecast, and such a system of financing is only applicable
to developing areas.
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F 0 0 T NOT E S
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1. Southwest Florida Water Management District, District Water
Management Plan - 1978. (Brooksville, Florida: Southwest
Florida Water Management District, January, 1978), pp. 9-10.
2. Tampa Bay Regional Planning Council. Areawide Water Quality
Management Plan for the Tampa Bay Region. (St.Petersburg,
Florida: Tampa Bay Regional Planning Council, May, 1978),
pp. 10- 2 - 8 .
3. McFarland-Johnson/Southeastern Engineers. Master Drainage
Plan for the City of Clearwater, Florida. (Clearwater,
Florida: McFarland-Johnson/Southeastern Engineers, 1974)
pp. 2 - 6 .
4. City of Clearwater and Planning/Design Group. Clearwater
Environmental Management Program and Conservation Plan.
(Clearwater, Florida: City of Clearwater, August, 1976.),
p. 97.
5. Ibid. p. 98.
6. Post, Buckley, Schuh and Jernigan, Inc., Master Drainage
Plan for Pinellas County, Florida. (ClearwaLer, Florida:
Post, Buckley, Schuh and Jernigan, Inc., 1976), pp. 22-42.
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APPENDIX 1*
GUIDELINES FOR FUTURE DRAINAGE AND IMPROVEMENTS
GENERAL
The Drainage Technical Advisory Committee of Pine lias County pro-
vided review and input to the drafting of this Section, which is to be used
in the form of a model "Requirements for the Design and Construction of
Future Drainage Improvements". This section wi I I be incorporated into the
Uniform Development Code now being prepared by The Pinel las County Planning
Counci I .
Editor's Note:
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I. All references to "Standard Construction Detai Is" should be
interpreted as being the Standards set by the county, city or
town in which the subdivision is located.
2. AI I references to the "Director" should be interpreted, as
the agency, person, or persons designated by the governing
body of the county, city or town to perform such duties.
COMPREHENSIVE DRAINAGE SYSTEM REQUIRED
A comprehensive drainage system shal I be provided in al I subdivisions in
accordance with the requirements of this Section. The developer shal I be re-
qui red to submit al I pertinent information in plan and specification form and
environmental data as necessary to construct the drainage faci lities.
Provisions for Drainage Faci I ities
The design of al I drainage faci I ities shal I accommodate and provide for
the following:
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*Pinellas County r-!aster Drainage Plan.
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I. Disposal of storm waters
2. Prevention of sat inity intrusion
3. Water qual ity protection and control
4. Water table control
5. AI I publ ic and private areas within the subdivision and al I
surface and subsurface runoff from adjacent tributary areas
Plans and specifications for the design of al I required drainage faci 1-
ities shal I be signed and sealed by a professional engineer licensed by the
state of Florida to certify the adequacy of said faci I ities.
REQUIREMENTS OF DESIGN
A comprehensive drainage system and appurtenant faci lities shal I in-
clude improvements constructed in accordance with the criteria establ ished
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herein.
Earthwork Requirements
The subdivision shal I be graded and where necessary fi I led to comply
with the comprehensive drainage system. The developer shal I be required to
clear al I rights-of-way and to make al I grades for publ ic and private
streets, alleys, lots and other areas compatible with proper drainage design.
Any dredging, fi I ling or excavation shal I have evidence of proposed approved
permits from al I federal, state and local agencies exercising jurisdiction
over said operations. Prior to commencing any landfi I I, the developer shal I
secure approval of al I necessary plans and specifications for the clearing,
fi I I ing and grading operation under the Conceptual Plans and Publ ic Improve-
ments Plans section of Article XI, Chapters 2 and 3 of this Code. In the
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interest of preserving existing natural features of aesthetic or environmen-
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tal significance, the Director, based upon a tree survey as required in
Article IX, Chapter 8, may vary the requirements of this subsection to en-
hance existing natural conditions not preventing proper drainage of the sub-
division. Surface drainage from publ ic and private lots and other bui Iding
sites shal I be diverted for disposal via swale, ditch or a storm drainage
system. AI I fi I I, dredge and excavation proposals shal I incorporate pro-
visions for dust and water qual ity control and erosion protection during and
after al I construction operations.
Hydraul ic Requirements
The analysis and design of al I existing and proposed drainage faci I i-
ties shall incorporate sound engineering principles and methods based on
avai lable data and current analysis and design procedures. Analysis and de-
sign features shal I provide the necessary capacity for al I existing and pro-
posed drainage runoff from tributary areas beyond the development boundaries.
In addition, the developer shal I incorporate the necessary provisions for re-
stricting the subdivision's runoff rate and volume as required in order to
provide an equitable al location of avai lable capacity of existing and pro-
posed-publ ic drainage faci I ities within the tributary basin. The developer
shal I not alter, reroute, deepen, widen or change in any way, any existing
ditch, canal, stream, swale, drain or drainage system without first making
application, complete with environmental data, for a written permit from the
Director. AI I drainage faci I ities shal I be designed to operate without re-
course to mechanical. electrical or any other such energy device which oper-
ates against gravitational forces. Provisions for drainage shal I include,
but not be limited to the fol lowing design criteria:
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I. Minimum design criteria for Design Storm shal I be the current State
of Florida Department of Transportation rainfall intensity curves
or U. S. Weather Bureau rainfal I intensity curves developed specif-
ically for Pinel las County, whichever is the higher standard.
a. Drainage structures whose total tributary area from origin to
outfal I equals or exceeds one (I) square mi Ie shal I be de-
signed for a 25-Year Storm recurrence interval. Top of bank
of all major waterways shall be above design high water level.
Where design high water level exceeds any existing and/or pro-
posed waterway, top of bank campi iance with al I requirements
for floodplain restrictions shal I be insured for any develop-
ment in the floodplain adjacent to the channel.
b. Culverts, storm sewers and appurtenances within State highway
rights-of-way shal I be designed in accordance with current DOT
Standards or (County) (City, Town of ) drainage require-
ments, whichever is the higher standard.
c.
Storm water col lector systems including minor waterways and
appurtenant structures, whose total tributary area from origin
to outfal I equals or is less than one (I) square mi Ie shal I be
designed for a IO-Year Storm recurrence interval. Top of bank
and floodplain requirements shal I be the same as for major
waterways under paragraph a. above.
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d. Retention basins shal I be designed for a 25-Year Storm recur-
rence interval with a 2-foot freeboard between the maximum
(25-Year) flood storage level and the low bank elevation sur-
rounding the detention area. Additionally, storage of the
IOO-Year Storm runoff shal I be evaluated for its effects on
storage capacity and flooding of the area surrounding the
basin. If the design indicates that it is apparent the basin
would become inundated, the I imits of flooding in the area
surrounding the basin shal I be designated as the IOO-Year
floodplain and subject to al I restrictions thereof.
Design of retention basins with no outflow or outlet shal I be
based on the IOO-Year Storm recurrence interval and a rainfal I
of 48-hour duration~ Design highwater elevation shal I be es-
tabl ished in consideration of adjacent properties and faci I j-
ties. The design highwater level of any retention basin shal I
be one (I) foot below the gutter of adjacent streets or one
foot below the ground surface adjacent to the retention basin,
whichever- is -lower. . Design low water elevation shall be es-
tabl ished in consideration of ground percolation factors,
water table and other contingencies.
8. AI I other drainage faci I ities not included above shal I be de-
signed for a 5-Year Storm recurrence interval.
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f. Flow limits in gutters or swales of roads and streets shal I be
as shown herein.
Additional IV, al lather drainage appurtenanc8s shal I be de-
signed according to the storm frequency as indicated:
Tvpe Area
Recommended
Flow limits
Design
Storm
Private Streets and
Paved Areas
To 2 inches
below crown
of. street
5-Year
Residential and Commercial
Areas and Local Roads
To 2 inches
below crown
of street
5-Year
Arterials and Col lectors
To 5 inches
below crown
of street
5-Year
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In no case shal I the crown of any publ ic street be at or below
the water surface level of a 5-Year Storm. Streets with in-
verted crown sections shal I not be permitted except in special
circumstances such as alleys where the right-of-way is con-
fined and where it is impractical to provide drainage along
the edge of pavement subject to approval of the Director.
g.
The maximum rate of runoff or estimates of peak discharge for
design of drainage faci I ities shall be based on the rational
formula as fol lows:
Q = CiA
Q = peak runoff in cubic feet per second
C = coeH i c i ent of runoff
i = ra i n fa I I intensity in inches per hour
A = drainage area in acres
2. Coefficients of runoff used in the design of drainage faci I ities
shal I be based on values shown in the Florida Department of Trans-
portation Drainage Manual.
Additional IV, where accurate determination of pervious and imper-
vious surface areas cannot be made, the fol lowing I ist of coef-
ficient ranges for various land uses may be used subject to appro-
val of the Director.
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Coeff i c i ent of Runoff "C"
We II-Ora i ned Poorly-Drained
Land Use Soi Is Soi Is
Agricultural 0.25 0.45
Residential Rura I 0.35 0.50
Residential Rural Estate 0.35 0.50
Residential Single Fami Iy 0.50 0.55
Residential Single Fami Iy
Town House 0.45 0.60
Residential Mu I tip Ie Fam i I Y 0.45 0.60
Mobi Ie Home Park or Sub-
division 0.45 0.60
Commercial Neighborhood 0.80 0.85
Commercial General 0.80 0.85
Commercial Parkway/Hotels/
Motels/lnss 0.85 0.90
Commercial Parkway/Shopping
Centers 0.90 0.90
Commercial Tourist 0.80 0.85
Professional Off i ce 0.90 0.90
I ndustri a I 0.70 0.75
Preservation/Conservation 0.20 0.40
Aquatic Land 1.00 1.00
Publ ic Ownership 0.25 0.45
3. Hydraulic Design of Drainage Faci I ities shal I be based on current
engineering principles and practices.
a. Storm sewers shal I be designed as flowing ful I and pipe
capacities determined by use of Manning}s Equation. Total
avai lable head loss for any storm sewer main network outfal l-
ing to a waterway shal I be taken as the difference between an
elevation three (3) inches below the grate elevation and the
water level of the waterway at design discharge for the same
frequency storm as used for the storm sewers. Design eleva-
tion shal I be a minimum of 2.0 feet MSL. Water level of any
waterway receiving discharges shal I be at the high operating
level of any downstream control structure.
b. Minimum time of concentration for storm sewers in streets
shal I be taken as 15 minutes. Time of concentration for
other drainage faci I ities shal I be based on Department of'
Transportation Velocity of Runoff curves.
c. Pipe Sizes: Minimum pipe sizes shal I be as fol lows:
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~
Underdrains
Sidedrains with inlet and endwal I
Storm sewer
Cross drains with endwal Is
Pipe culvert
Minimum
Size
6 inches
15 inches
15 inches
18 inches
15 inches
Pipe sizes above 18 inches shal I be sizes readi Iy avai lable
locally and approved by the Director. Reinforced concrete
box culverts may be used in I ieu of pipe at the discretion of
the design engineer and subject to approval of the Director.
d. The maximum length of pipe to be used without an access struc-
ture shal I be as fol lows:
Pipe Size
15 inches to 36 inches, inclusive
42 inches and larger and box
culverts
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Maximum
Length
350 feet
500 feet
The minimum velocity shal I be 3.0 feet per second. Erosion
protection at the outlet wi I I be provided on al I culverts.
For pipes between access stru~tures, the maximum allowable
design velocity shal I be ten (10) feet per second for concrete
pipes and eight (8) feet per second for metal pipes.
e.
f. Roughness coefficients for use in Marining's formula for con-
crete pipes and box culverts and smooth and corrugated metal
pipes shal I be as fol lows:
Concrete Pipes and Box Culverts
30 inches, inclusive
48 inches, inclusive
including smooth concrete
boxes of 15 square feet
and up
Smooth metal pipes
Corrugated metal pipes, unpaved
Corrugated metal pipes, partially
paved
Corrugated metal pipes, hel ical and
fu II y paved
15 inches
36 inches
54 inches
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n = 0.013
n = 0.012
n = 0.011
n = 0.011
n = 0.024
n = 0.021'--
n = 0.018
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App I i cat i on of these va I ues to ova I or e I i Rt i ca I pipe sha I I be
based on equivalent round diameter.
g.
Unless otherwise approved, the minimum clearance for al I storm
sewer pipes and culverts shal I be 1.25 feet from outside crown
of pipe to bottom of roadway base course. The minimum clear-
ances between outside surfaces of uti I ities shal I be six (6)
inches. The minimum cover of pipe in swale areas shal I be two
(2) feet.
h.
Drainage structures at stream crossings of less than 20 foot
span shal I be considered as culverts. Culvert capacity shal I
be based on the culvert flowing ful I. The design head shal I
not exceed 1.0 foot at design flow unless approved by the
Director and based upon sdUnd engineering practice. Detai led
analysis and design shal I be based on either inlet or outlet
control, whichever is appl icable, using appl icable entrance
loss coefficients and/or culvert nomographs from current U. S.
Bureau of Publ ic Roads Hydraul ic Engineering Circulars for
Hydraul ic Design of Culverts.
Backwater curve data, flood profi les and other hydraul ic in-
formation, where avai lable, along a waterway reach shal I be
used to establ ish design water elevation and set the elevation
of the crown of ~ulvert. Culverts (onger than 300 feet shal I
be designed as storm sewers according to paragraph 3., a.
above.
i .
Storm sewers shal I be designed to avoid abrupt changes in
hydraul ic slope and velocity. AI I deflections in al ignment of
storm sewers shal I have access structures.
j.
The minimum and maximum allowable hydraul ic slopes shal I be
those that produce the aforementioned minimum and maximum
velocities. Manholes may be used as drop structures where
necessary to lessen slopes in storm sewers.
k.
The capacity of inlets, grates or openings shal I equal or ex-
ceed the tributary runoff from an individual drainage area.
Capacity of curb and gutter in lets shal I be as noted on the
Standard Construction Detai Is of this Code. Where no test
data are avai lable, the fol lowing formulas shal I be used to
determine the capacity of inlets in cubic feet the capacity
of grate inlets shal I be:
Q (grate) = CA Y2gh
Where the coefficient of discharge is 0.6 and h is the head in
feet or the depth of throat in feet.
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The capacity of curb inlets without a gutter grate shal I be
considered as a rectangular weir whose capacity is based on
the fol lawing formula:
Q (curb) = 3.0 Lh 3/2
Where L is the length of curb opening in feet. The capacity
of a combination inlet consisting of a gutter grate and. curb
opening shal I be considered as the sum of the capacities of
an orifice and a weir.
1 .
With prior approval by the Director weirs, gates and other
such control structures may be used as part of a comprehen-
sive drainage system. Where provided, control structure de-
sign shal I be based on current engineering principles and
practices for the particular type structure.
m.
The saltwater intrusion along the coast shal I be control led
to hold the existing line represented by the approximate
position of the saltwater - freshwater interface in which
chloride concentrations of 250 mgl occur at a depth of 100
feet below mean sea level.
The location of a control weir shal I be as close to the coast
as possible to hold the present line of saltwater encroach-
ment. The minimum crest elevation of weirs shal I be 2.5 feet
above mean sea level unless further evidence or studies indi-
cate a higher elevation is required.
n.
Under these regulations it shal I be a requirement to limit
runoff of future development to existing or predevelopment
conditions. In cases where it has been determined that the
existing outfall which receives the runoff ~as more capacity
than needed to handle runoff from ex'isting development, a
higher rate of runoff may be permitted each landowner for
future development in proportion to the amount of land owned
as determined by the Director. In cases where a suitable re-
tention site exists just downstream of a development, upon
approval by the implementing agency, that site may be used to
store the additional runoff from the development. However,
it must be stated that the retention areas delineated on the
drainage plan aerials were not sized to accommodate runoff
from future developments, and should it become necessary to
use one of these storage sites, the required storage volume
should be increased accordingly. This requirement for on-
site retention shal I apply to areas inland from-the-coastal
100-Year floodplain. In accordance with the requirement to
limit runoff to existing conditions subdivision drainage
shal I be designed to achieve maximum percolation and/or fi 1-
tration of runoff from impervious surfaces. Special struc-
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tures shal I be used with engineering features to remove oils,
suspended sol ids, and other objectionable material in storm
water runoff, so as not to degrade the qual tty of water in
the receiving stream such as:
(I) Bottomless inlets or Inlets with sumps
(2) Special grading to retain or detain runoff
(3) Roadside and subdivision swales
(4) Natural 01'" artificial percol.ation basins with grass,
trees and shrubs to aid in nutrient removal
(5) Perimeter swales along waterways to prevent direct run-
off
(6) Where soi I or water table problems are encountered,
underdrains may be used to aid percolation rates
(7) Recharge wel Is and seepage drains subject to approval of
the Director
(8) Ditch or swale checks ~nd baffles
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(9) Special structures at pipe outfal Is with screens, baf-
fles and sumps to fi Iter, runoff prior to discharge into
waterways
(10) Routing storm runoff from pipe out fa I Is through reten-
tion, detention, perimeter swales or other such faci I i-
ties to fi Iter runoff to discharge into waterways
Where publ ic or private lands are reserved for detention, re-
tention, percolation, fi Itration, or simi lar use, the land
shal I be so designated on the Final Plat with appl icable res-
ervations and restrictions as to use, dedication and rever-
sions.
o. Underdrains when used shal I be designed to maintain the
groundwater table at least 24 inches below the surface.
Groundwater data logs taken during September at the end of
the normal rainy season shal I be submitted to substantiate
the omission of underdrains. Accordingly, al I publ ic streets
with curb and gutter or with swale ditches less than 24
Inches below the crown of road shal I be provided with under-
d ra ins.
Underdrains shal I be placed 18 inches from back of curb or on
centerl ine of swale and a minimum of 24 inches below the edge
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of pavement elevation. Underdrains Shal I be sized according
to the drainage area based on a minimum removal rate of 9ne'
inch of water in 24 hours and shal I have positive outfal I to
inlets, manholes or waterways.
p. Design of canals, streams, ditches and any othe waterways
shal I be based on current open channel design procedures
using Chezy, Talbot and/or Manning's Formula. Design veloc-
ities without erosion protection shal I not exceed maximum
set by the Department of Transportation for subdivision soi I
type as shown below. Where design levels exceed top of banks
for the required design storm (i.e., 25-Year for major water-
ways) and berms are not provided, the extent of flooding in
the f I oodp I a i n sha II be shown. Runoff' and roughness coeH i-
cients, safe velocities, nomographs, erosion control and
practical I imitations on use of design formulas shall be
based on current practice in the field of hydraulics notwith-
standing any requirements of this Chapter.
Mulching of exposed ground surfaces shal I be provided as tem-
porary protection against erosion. Conditions such as al ign-
ment and presence of severe irregularities in smoothness wi I I
alter the allowable velocities. Maximum flow velocities for
vari.ous soi I types are as follows:
e Type of Soi I A II owab Ie Velocity
Fine Sand 1.50 feet per second
Sandy Loam 1.75 feet per second.
S i J t Loam 2.00 feet per .second
Firm Loam 2.50 feet per second
Fine Gravel 2.50 feet per second
St i ff Clay 3.75 feet per second
Coarse Gravel 4.00 feet per second
Hardpans 6.00 feet per second
q. Where publ ic or private I~kes, ponds, borrow its, or simi lar
type water retention areas are incorporated in a subdivi-
sion's comprehensive drainage plan, design criteria shal I be
based on storage of the required design storm. Retention
time, storage volumes, design water levels, and discharge
shal I be based on average groundwater level for September at
the end of the rainy season, as minimum pond level. Designs
of drainage faci lities outfal I ing to a lake or pond shal I be
based on the design highwater level of the lake or pond even
though a lesser frequency storm may be used to design the
drainage faci I ity (i.e., 5-Year for storm sewers). Flood
routing analysis and design shal I be based on current hydrau-
I ic procedures, and storage computations shal I include a tab-
ulation or graph of inflow, discharge, storage capacity, min-
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i mum and max I mum des i gn wElter depth and reterlt i on time.
Where design water surfacE:: exceeds top of barlk during the
retention period of the appl icable design storm, the flood
limits and floodplain requirements to handle the storage
capacity shal I be shown.
4. Where a subdivision adjoins or encompasses any portion of a flood-
plain the developer shal I:
a. Include in the subdivision!s Conceptual Plans, Prel iminary
Plat, Final Plat, construction plans and specifications, and
other plans required by this Code, such provisions or re-
strictions necessary to comply with the fol lowing:
I. All ap~1 icable zoning requirements of this Code.
2. AI J appl icable bui Iding code requirements of this Code
and the Southern Standard Bui Iding, Plumbing and Mechan-
ical Codes 1973 edition as amended.
3. AI I requirements of the Federal Flood Insurance Adminis-
tration Regulations. .
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4.
AI I requirements of othe~ federal, state or local agen-
cies exercising jurisdiction over the area.
b. Not alter the channel in such 'ciJ manner that would prohibit
any section of the channel from conveying, in its final
state, the same amount of flow at the same or lower maximum
water elevation, that it conveyed in its existing state.
c. Furnish for the Director1s review and approval the following
information:
I. Plan view of the channel showing the location of exist-
ing constrictions, obstructions and other nontypical
areas.
2. Typical cross-section of the existing and proposed chan-
nel and special cross-section of areas as indicated by
paragraph I. above.
3. Hydrographs and/or Flood Routing Calculation and Back-
water Curve Profi les of the proposed waterway due to a
IOO-year storm recurrence interval, unless the Director
approves the use of a lesser recurrence interval.
4.
Engineering evaluation of al I potential increase in
flood hazards to the immediate upstream or downstream
private or publ ie lands and faci I ities thereon and show
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prcNlslons [or' cllrnillating an'y and all <idverso efte;crs
dut: to this Increase on said lands and laci I ities at no
pub Ii c cost.
5. Minimum finished floor elevation which shal I be set at
or above the maximum water surface elevation determined
from:
(a) Map of Flood Prone Areas prepared by the U. S. Geo-
logical Survey for the Department of HUD, EIA.
(b) Pinel las County Master Drainage Plan prepared for
Pinel las Planning Counci I.
(c) Backwater curve profi les required by paragraph 3.
above.
d. Shal I designate on the Final Plat al I areas reserved for
flood routing, retention or storage together with the re-
quired wording as pertains to restrictions, dedications and
maintenance responsibi I ities of such areas.
REQUIREMENTS OF CONSTRUCTION
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The drainage faci I ities and improvements required under the provisions
of this Chapter shal I be instal led in campi iance with the provisions of this
Article. In those instances where the requirements of another Chapter,
Article, Section or Subsection of this Code confl ict, the higher or more
restrictive requirement shal I prevai I.
Rights-of-Way and Easements
All open canals and waterways shal I be within a dedicated right-of-way
and closed storm drainage conduits shal I be within an easement or dedicated
right-of-way. Minimum rights-at-way and maintenance easements by instrument
or plat dedication shall be provided for al I waterways used to convey runoft
to a publ icly owned and/or maintained taci I ity. The minimum widths of
rights-of-way and easements shal I be as fol lows:
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Top of Bank
Width
Maintenunce
Width
~1i n i mum Con1ro I led
Width
Canals and
Waterways
40 feet or
greater
25 feet
each side
Varies 50 fpet,
plus top of bank
width (right-of-
way)
Canals and
Waterways
20 feet to
40 feet
25 feet
one side
Varies 25 feet,
plus top of bank
width (right-of-
way)
Canals and
Waterways
-:~#'
-..
'Less than
20 feet
20 feet
one side
Varies 20 feet,
plus top of bank
width (right-of-
way)
Swales
20 feet (easement)
Pipes and
Cu I verts
20 feet (easement)
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Swales shal I be grassed and mulched and shal I comply with minimum
and maximum design velocities and erosion protection requirements
of this Code. Swales shal I be sloped to drain dry. Maximum side
slopes of swales shal I be 6:1 and the minimum longitudinal slope
shal I be 0.30%. Roadside swales may be used, but shal I conform
to all underdrain requirements and be at least 2 feet in depth be-
low the roadway crown unless underdrains are also used. Roadside
swales shal I have a maximum depth of 3.5 feet.
2. Ditches shal I be grassed and mulched and shal I comply with minimum
and maximum design velocities and erosion protection requirements
of this Code. Ditches shal I have a minimum 2-foot bottom width, a
minimum 2-1/2 foot depth ~nd a 3:1 side slope. Soi I conditions
shal I be considered in setting side slopes. Ditches shal I be de-
signed to drain dry. . Paved ditches or stabi I ized banks shal I be
provided to protect channels against scour where allowable veloci-
ties are exceeded. Concrete retaining wal Is may be used as an al-
ternate to provide adequate channel capacity through constricted
areas subject to approval of the Director.
3. Cana Is and-- waterways des i gned- to rema i n wet throughout. the year:
shal I be a minimum of 6-foot depth from the average water level.
(a) Minimum bottom width of canals shal I be 10 feet and side
slopes shal I be 3:1, but not steeper than 2:1. Soi 1 condi-
tions shal I be considered in setting side slopes. Concrete
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retaining wal Is may be used as an alternate where right-of-
way is restricted and where access" for maintenance would be
difficult subject to approval of the Director.
(b) Lakes and ponds shal I have gently sloping I ittoral area with
slopes not exceeding 6:1 to5-foot depth from normal water
level. Side slopes for depths below 5 feet may be 2:1 (hor-
izontal to vertical) or flatter as soi I conditions permit.
4. A minimum right-of-way of 20 feet shall be" provided for access to
any runoff storage basin from a dedicated road or street. In ad-
dition, a continuous 25-foot easement, to serve as a maintenanCe
berm, shal I be provided around the perimeter of the retention
basin.
5. Erosion control shal I be provided by grassing and mulching, sod or
bagged concrete riprap for erosion protection of ditches and water-
ways. Concrete shal I be used for the larger structures. Addi-
tional techniques that may be used are listed below:
(a) Paved gutters, ditches, channels, or channel side slopes us-
ing concrete, riprap, or bituminous lining.
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(b) Sod cover in gutters and ditches.
(c) Wide channels with shallow bottom slopes using check dams.
(d) Culverts with a break in grade to hold outlet velocity within
the allowable limits. (When this method is employed, the
position of the hydraulic jump must be .determined to insure
uniform flow occuring within the culvert).
(e) Drop structures, sti I ling basins and baffles to dissipate
energy at the entrance, or outlet of culverts.
f) Sheet pi I ing cutoffs to protect the entrances and outlets of
culverts from undercutting.
(g) Slope protecting of bridge abutments, and embankments at
ends of culverts with concrete paving, or riprap.
Inlets and Manholes
The wal Is of all inlets, manholes and other simi lar structures.shall be
eight (8) inches thick if brick or block is used and six (6) inches thick if
precast reinforced concrete is used. Frames and covers shal I be cast iron.
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The minirnum inside width of inlets, manholes and other simi lar structures
shal I be as shown in.Standard Construction Detai Is. Grate capacity shal I
equal or exceed tributary runoff.
Pipes and Culverts
Pipes and culverts shal I be reinforced concrete pipe, asphalt coated
metal pipe or aluminum pipe. Pipes used shal I meet ASTA, AASHTO and current
State of Florida DOT specifications. Concrete pipe shal I have gasket joints
according to AASHTO specifications. Metal pipes within the right-of-way
lines of publ ic streets shal I be designed to provide a joint free installa-
tion or be jointed with a 12-inch wide band having a mastic or neoprene gas-
ket providing a watertight joint. The minimum cover for pipes and culverts
under pave~ent shal I be 1.25 feet from bottom of roadway base to pipe crown.
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Headwal Is and Endwal Is
All pipes shal I be provided with endwal Is at outfal Is. Culverts shal I
have headwal Is and endwal Is at entrances and outlets. Endwal Is and head-
wal Is may be reinforced concrete or sand/cement riprap and the design shal I
conform to current State of Florida DOT specifications.
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Curbs and Curb and Gutter
Curbs and curb and gutter shal I be concrete of a minimum 3,000 psi
strength. Val ley gutter and val ley curb and gutter shal I be a minimum of
two (2) feet wide. Vertical curbs shal I be six (6) inches wide by twelve
(12) inches deep with six (6) inches of curb extending above the edge of
pavement. Minimum curb grades shal I conform to the minimum street grades
of this Code except in special cases such as plateaued intersections and
the I ike and subject to approval of the Director.
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Control Structures
Control structures shal I not be placed on any publ ic drainage faci I i~y
without furnishing the Director complete hydraul ic analyses of the drainage
basin served by such public faci lities and the effects of the control struc-
ture on both the drainage basin and existing publ ic and private facil ities
and structures.
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APPENDIX II
DRAINAGE DESIGN PROCEDURE
GENERAL
A major portion of the drainage design was developed through the use of
a computer program developed specifically for this project. Runoff rates
were based on the. "Rational Formula" (explained below). Final channel cross
sections were determined through "Manning's Equation", and culvert capaci-
ties were determined from design equations developed by the Bureau of Public
Roads in 1963 and modified in 1966.
DES IGN CRITERIA
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The maximum rate of runoff or estimate of peak discharge was based on
the "Rational Formula" Q = CIA, where:
Q = Peak runoff in cubic feet per second (CFS)
C = Coefficient of runoff
I = Rainfall intensity in inches per hour
A = Ora i nage area in acres
The coefficient for each land use was uti I ized in determining a weighted
coefficient for each drainage subbasin. This coefficient of runoff was de-
termined from an evaluation of the various land uses identified in the Com-
prehensive Land Use Plan for Pinel las County, Florida.
Rainfal I intensity for the 25-year design storm was based on the cur-
rent State of Florida Department of Transportation (DOT) rainfal I intensity
curve, Zone IV, Tampa.
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Roughness coefficients (n) for drairlage structures are as follows:
Concrete Pipe
Corrugated Metal Pipe
Concrete Box Culvert
= 0.013
= 0.024
= 0.013
Where pipes of different materials were used together, a weighted
roughness coeffic!ent was determined for that combination. In cases where
two or more different pipe sizes were encountered, equivalent circular pipes
were substituted to determine culvert capacity.
Roughness coefficIents for channels were taken from the U.S. Department
of Transportation manual, "Design Charts for Open Channel Flow", Appendix A,
Table I.
The velocity in structures and channels was I imited as.fol lows:
o
Maximum velocity in open channels, 3.0 fps - 3.5 fps
o
Maximum velocity in culverts, 6 fps for most of the
structure and up to 8 fps in some cases
The maximum design headwater elevation used for structures was one foot
below the pavement crown.
To determine the capacity of waterways of multiple span bridges, the
openings were assumed to be box culverts whose height equaled the channel
depth,immediately upstream.
Time of concentration or overland flow time was determined through the
use of the chart shown in the Appendix of this report.
STORAGE REQUIREMENTS
Storage requirements were computed based on a simpl ified procedure of
estimating inflow in a reach or subbasin, subtracting outflow and producing
a remainder which represented the amount to be stored. The runoff into a
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storage area was considered to be the runoff from the subbasin immediately
upstream of a structure, plus the upstream inflow draining from the nearest
structure upstream. The inflow was based on a 25-year recurrence interval
derived from the DOT intensity duration curve. The quarter hour intensities
were converted to accumulated inches of rainfal I for successive time periods.
The inches were then converted to acre feet of runoff by applying the
rational method using the weighted runoff coefficient "C" for existing land
use in the subbasin and the drainage area "A" in acres. This drainage area
equaled the area of the subbasin, plus an equivalent drainage area repre-
senting the inflow from the upstream structure. This procedure of estimat-
ing inflow is based on the theoretical assumption that the n~st intense
rainfal I occurs first in any storm period and reduces in ini'ensity as time
progresses. Local and upstream inflow were assumed to occur simultaneously
with no consideration of the times of concentration. The outflow from the
storage area was assumed to be equal to the capacity of the existing down-
stream structure.
RIGHTS-OF-WAY AND EASEMENTS
.AII open canals and waterways are proposed to be within dedicated
rights-of-way. Closed storm drainage conduits are proposed to be within
either an easement or dedicated right-of-way. Except in cases where exist-
ing development restricts the avai lable width, the desirable minimum widths
of rights-of-way and easements are as fol tows:
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Top of Bank
Width
Maintenance
Width
Minimuffi Control led
Width
40 feet or 25 feet Varies 50 feet, plus top
Canals & Waterways greater each side of bank width (right-of-way)
20 feet to 25 feet Varies 25 feet, plus top
Canals & Waterways 40 feet one side of bank width (right-of-way)
Less than 20 feet Varies 20 feet, plus top
Canals & Waterways 20 feet one side of bank width (right-of-way)
. Pipes & Culverts 20 feet (easement)
A wide maintenance width is recommended to al low for a meandering path
for maintenance equipment so that trees ~nd vegetation alqng the banks can
be preserved.
Where the desired right-of-way is not avai lable, channel improvements
e
may be necessary to provide for hydraul ic capacity and maintenance accessi-
bi I ity.
Paved ditches or concrete retaining wal Is may be used as an alternate
method of providing adequate channel capacity through constricted areas.
e
-69-
tit
e
e
BIB L lOG RAP H Y
City of Clearwater and Planning/Design Group.
Management Program and Conservation Plan.
City of Clearwater, August, 1976.
Division of State Planning. The Florida State Comprehensive Plan.
Tallahassee, Florida: State of Florida, February, 1978.
Clearwater Environmental
Clearwater, Florida:
McFarland-Johnson/Southeastern Engineers. Water Drainage Plan for the
Cit of Clearwater, Florida. Clearwater, Florida: McFarland-
Johnson Southeastern Engineers, 1974.
Pinellas County Planning Council. Population Forecasts - Pinellas
County, Florida. Clearwater, Florida: Pinellas County Planning
Council, April, 1979.
Post, Buckley, Schuh and Jernigan, Inc. Master Drainage Plan for
Pinellas County, Florida. Clearwater, Florida: Post, Buckley,
Schuh and Jernigan, Inc., August, 1976.
Southwest Florida Water Management District. District Water Management
Plan - 1978. Brooksville, Florida: Southwest Florida Water
Management District, January, 1978.
Tampa Bay Regional Planning Council. Areawide Water Quality Manage-
ment Plan for the Tampa Bay Region. St.Petersburg, Florida:
Tampa Bay Regional Planning Council" May, 1978.
West Coast Regional Water Supply Authority. Comprehensive Study of the
Regional Water Supply Needs and Sources, Phase I (1980-1995),
Volume I and Volume II. Clearwater, Florida: West Coast Regional
Water Supply Authority, April, 1977.
-70-
.
- _+_ _.. n___.___ _ _._., .
· 0
/
SEWERAGE
.
e
e
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TABLE OF CONTENTS
I Introduction
II Intergovernmental Planning Framework
III Goals, Objectives and Policies
IV Inventory and Analysis
V Existing Conditions and Regulations
VI Population and Wastewater Flow Projections
VII Alternatives
VIII Recommendations
IX Footnotes
X . Bibliography
Page
1
2
3
5
16
18
21
25
33
34
e
Table 1
Plate 1
Plate 2
e Figure 1
Figure 2
Figure 3
Table 2
Table 3
Plate 3
e
List of Tables, Plates, and Figures
Existing Wastewater Treatment Plants
Inventory of Sewage Treatment Facilities
Clearwater Sewage Treatment Facilities
Clearwater East Treatment Plant
Marshall Street Treatment Plant
Northeast Treatment Plant
Population and Wastewater Flow 1980-1995
Least Cost Rankings for Optimum Alternatives
Lead Management Agency Service Area Boundary
Page
6
7
9
II
13
15
20
29
32
SANITARY SEWER
e
Introduction
Since the early 1970's the City of Clearwater has made
a strong commitment to providing a sanitary sewage system adequate
to service the growing needs of the area in quantitative and quali-
tive terms. Beginning in 1970 when the existing plants had a
total treatment capacity of 9.5 million gallons a day (mgd), the
.
City has planned and is constructing facilities with a total
capacity of 23 million gallons a day. In addition to increasing
the amount of waste water which can be treated, the City is in-
creasing the level of treatment to comply with federal and state
regulations. Upon completion of the plant expansion projects,
the City will be in a position to serve its service area,as well
e
as portions of Safety Harbor.
Because Clearwater is so ~ar advanced in planning and
construction of sewage treatment facilities, the future activity
of this utility will focus on responding to new demands for service
In undeveloped areas and compliance with provisions of overall
waste water management. These requirements, combined with expendi-
tu~es for providing a collection system necessary to direct sanitary
waste to the plants and the continued maintenance costs for opera-
tion of the system, would indicate that this utility will continue
as a major investment area of the City. This section is intended
to be a policy plan and status report which defines the directions
the City of Clearwater is taking in resolving its problems concernlng
sanitary sewage service.
e
- 1 -
Intergovernmental Planning Framework
e
e
The federal government has been active in water pollution
abatement since the end of the nineteenth century. Federal
legislation dealing with water quality and pollution culminated In
1972 with the enactment of Public Law 92-500, the Federal Water
Pollution Control Act Amendments (Clean Water Act). The law
established the national goal of returning waters in the public
domain to a quality which is adequate for propagation of fish,
shellfish and wildlife, and which allows body contact water
recreatior. by July 1983. In addition, the law calls for the
elimination of pollutant discharge by 1985. Under Section 201
of PL 92-500, Congress established a program aimed specifically
at point source pollution, which consists primarily of effluent
discharged from domestic and industrial wastewater treatment plants.
The Federal Government, through the construction grants program
of the Environmental Protection Agency, will contribute 75 to 85
percent of the money needed to construct certain wastewater treat-
ment facilities. In order that these monies be spent wisely, and
to ensure that the money spent accomplishes the goals, the public
law~requires that 201 Facilities Plan be completed prior to the
disbursement of public money for the construction of treatment
facilities.
The City of Clearwater has contracted with the consulting
firm of Briley, Wild, and Associates to formulate the 201 Facilities
Plan for Central Pinel1as County which encompasses the Clearwater
Planning Area. This document is in its final draft form and will
e
~2-
e
be published and distributed ln the near future. The "201 Plan"
provides for the develoDment or an areawide system that meets
local, state and federal rules and goals while providing the most
cost effective, efficient and sare collection, treatment and dis-
posal of wastewater in the Central Pinellas Planning Area. A
majority of the information utilized in this section has been
provided by the 201 Facilities Plan.
Goals, Objectives and Policies
Overall Goal
Provide high quality, reliable, and erficient sanitary
sewer service throughout the City or Clearwater's service area ln
an enviror~entally sound manner which will protect the public
health and safety.
e
Objective
Provide optimum levels or sewer serVlce ln the City's
serVlce area.
Policies
Sewer serVlces shall not be extended to ~roDerties
outside the City's service area unless sufficien~ =apaci:y exis:s
to serve the areas committed to City service, as ;~ell as those
areas proposed ror serVlce.
Require septic tanks ~~d package trea:men: plan~s, :0
hook-uD to the central se\~'er system 2.5 tJ1e capacity or the C:.:;..'s
Se\iage trea~men~ plants allO\i3.
,-e
e
Should it appear likely that additional development
within the service area of a sewage treatment plant will exceed the
treatment capacity of that plant, the City Manager shall In-
stitutea method for temporarily limiting sewer hook-ups in
the area, while concurrently making provisions to expand plant
capacity to permit development.
Services shall not be extended except In those areas
so designated for the City of Clearwater by interlocal or other
agreement.
e
Develop a sewage treatment system which will mlnlmlze
energy, water and other resource needs in order to preserve these
valuable resources.
Coordinate and cooperate with appropriate local, state
regional and federal agencies in implementing the sewer system
plan.
Objective
Provide adequate sewer serVlce to all customers of the
Clearwater serVlce area.
Policies
Ensure that land development codes and ordinances
adequately address sewer provisions.
Annexation of developments within the serVlce area
which have deficient sewer systems shall be encouraged. At the
time of annexation, a program for subsystem improvements shall
be prepared by the City with estimated costs of subsystem
improvements to be submitted to the Commission at the time of
annexation.
e
When new subdivisions are being developed, it shall be
e
the responsibility of the developer to provide internal sewer
systems which are constructed to City specifications.
Develop an inventory of location and condition of
underground sewer lines to provide information for estimates of
repair and replacement needs.
Objective
To maintain equitable charges to support fiscal and
capital programs and to provide efficient financial management
for all sewer system funds.
Policies
Fees charged users of sewer services shall be adequate
to cover system operating costs, repayment of capital costs,
and allow for repair and replacement of existing facilities unless
e
otherwise approved bj governing body.
Charges for sewer shall r~~lect the levels of serVlce
glven each category of customer.
Prioritization and scheduling of major sewer improvements
should be done as a component of the capital improvements program.
Inventory and Analysis
The City of Clearwater currently meets
.: ~ ,-
J.. \".~
sewage
treatment requirements through the use of three trea~ment plants.
There are also nine private treatment facilities which operate
within the City's service area. These facilities are inventoried
lrr Table~ and locations are indicated on Plate~
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-' 5 -
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Map No.
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5
6
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9
10
11
12
TABLE 1
EXISTING WASTE WATER TREAT~ffiNT PL~~TS
CLEARWATER SERVICE AREA
Service Areal
Subdivision
Design Capacity
ADF(MGD)
Effluent
Characteristics
BOD (mg/l) SS (mg/l)
Effluent
Disposal
Subdrainage from
spray irrigation
to Old Tampa Bay
Stevenson Creek
to Clwr. Harbor
Old Tampa Bay
Po lis hing Pond
Curlew Creek to
St.Joseph Sound
Land locked lake
Pond, Spray
Irrigation
Unnamed Creek to
Alligator Creek
to Old Tampa Bay
Ditch to Alligator
Cr. to Alligator
Lake to Old Tampa
Bay
Alligator Creek to
Alligator Lake to
Old Tampa Bay
Unnamed Creek to
Old Tampa Bay
Unnamed Creek to
Old Tampa Bay
SOURCE: Briley, Wild and Associates, Inc. Central Pinellas County 201 Facility Plan (Final Draft).
Clear~ater, Florida: Briley, Wild and Associates, Inc., April, 1979. '
e
Treatment
Northeast
8.0/.34
14
10
AS
Marshall Street
i<!AS/NIT
10.0/5.7
30
18
Cleanofa ter Eas t
AS
5.0/4.4
.018/-
.047/ .02
7.2
20
18
7.5
9
4.8
Skylark
EA
EA
Regency Heights
Tropical Breeze
.01/.0045
.6/ .002
6.0
6.9
Top of the World
EA
EA
2.8
2.5
Southern. Comfort
.007/-
5.2
7.2
EA
Aerosonics
.0075/.005
7.7
EA
5.0
Boulevard
.0165/.03
7.7
EA
7.8
South Gate
TF
.05/.016
22.0
12.5
Tropic Huis
TF
.077/ .015
25.8
16.2
KEY: AS - Activated Sludge
~!AS/NIT - /,!odified Activated Sludge w/Nitrification
EA - Extended Aerotion
TF - Trickling Filter
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Implementation of the 201 Facilities Plan will
eventually phase out all private sewage treatment systems,
In accordance with Public Law 92-500 which prohibits discharge
of pollutants to navigable waters. It will be necessary for the
private and public facili ties to comply wi th this law. Thus,
the 201 Facilities Plan specifies that the private systems be
eliminated with flow from their collection areas being diverted
into the regional wastewater treatment facilities.
The City currently provides sewage treatment at these
plants serving roughly the respective planning areas (see Plate 2):
Clearwater East - Areas 4,5,6,7 and 10
Marshall Street - Areas 1,2 and 3
Northeast - Areas 8 and 9
The following is a description of the operation and
performance of the public sewage treatment plants in the Clear-
water service area.
e
Clearwater East Treatment Plant
The Clearwater East Treatment Plant lS located on the
south side of State Route 60 just west of the Courtney Campbell
Causeway. Commercial and domestic wastewaters are the prlmary
contributors to plant influent. The plant services no significant
industrial wastewater producers.
The Clearwater East Plant was constructed in 1960 as a
.5 mgd activated sludge process and has expanded into a 5.0 mgd
capacity plant. The East Plant serVlce area will be reduced to
design capacity when the Northeast plant is completed. The plant
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- 8-
Plate 2
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effluent is discharged into Tampa Bay some 650 feet from the
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shoreline just south of the Courtney Campbell Causeway.
Figure~).
As evaluated in the 201 Facility Plan, the East plant
(See
e
is operating satisfactorily and meets existing regulatory
standards. The plant is also meeting the "Interim Effluent
Limitations" NPDES permit conditions. The plant was designed
to achieve 90 percent reduction of influent BOD and suspended
solids when average daily flow is 5 million gallons. The BOD
removal has been consistently better than the standard. The
overall operation, facilities, and personnel of the Clearwater
East Plant meet or exceed required standards. The East Plant
has experienced excessive load demands in the past which shall
be improved with the completion of the pump station at Alligator
Creek and expansion of the Northeast Plant.l
Marshall Street Plant
The Marshall Street Plant is located on Marshall Street
In the Northwest section of the City's Service Area. The
original primary treatment facilities were constructed In 1954
and subsequently upgraded in 1957 to provide secondary treatment
at a capacity of 4 mgd. Further modifications to the facility were
completed in 1978 which increased the plant capacity to 10 rngd.
With the increase in capacity of the Marshall Street Plant, the
Marina Plant on Clearwater Beach was closed and converted to a
pumping station. Subscribers of the Marina Plant are now being
e
served by the Marshall Street Plant. Disposal of effluent is
-10-
- -
- -
- -
FINAL PRIMARY
- -
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Figure 1
OFFICE
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~ ,~DIGESTED WASTE
~ ACTIVATED SLUDGE
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SCALE: I" = 40'
Prepared by
BRILEY, WILD a ASSOC.
FLOW DIAGRAM
CLEARWATER EAST P. C. F.
CLEARWATER, FLORIDA
-11-
discharged by gravity to Stevenson Creek which flows into C1ear-
e
water Harbor.
(See Figure~). The stabilized sludge resulting
from treatment IS delivered to trucks which land-spread the
sludge in pasture lands in the northern part of Pinellas County.2
Although this facility has been generally meeting
permit criteria, the level of treatment to provide in the
primary and secondary portions of the plant is less than what
would be the case if this were to be just a secondary plant.
,
As researched by the 201 Facility Plan, the average daily flow
from January 1975 to September 1977 has been 5.4 mgd, which lS
within the limits of 8 mgd required by permit. The permit
limitations for the expanded facility are based on only 8 mgd
hydraulic capacity with complete advanced waste treatment because
the permit was issued before the Increase in original design
e
capacity and at a time when the completion of advanced waste
treatment facilities was still planned. A revised discharge
permit is being applied for with effluent limitations on con-
centrations and loads more in accordance with the actual treat-
ment processes.3
As summarized In the 201 Facility Plan, the Marshall
Street Plant has the capability of adding denitrification and
filtration facilities. The capacity for hydraulic expansion IS
limited due to the lack of adjacent city-owned property.
Northeast Treatment Plant
The Northeast Treatment Plant is located north of
State Road 580 and east of McMullen Booth Road. The original
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-12-
Figure 2
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treatment facility was constructed to handle the rapid growth
experienced in the northeast section of the City's service
area. The plant is anticipated to handle 8 mgd and is scheduled
to be in operation by December, 1979. The plant will be completed
In mid-year 1980.
The existing plant is a one mgd plant arranged for
conventional activated sludge, step aeration, or contact
stabilization biological treatment. Plant effluent is discharged
to an on-site retention pond and then sprayed onto one of seven
isolated spray fields. Sludge is digested aeobically and hauled
away by tank truck for liquid land-spreading.4 (See Figure~).
The originally proposed method of advanced waste
treatment effluent disposal was by outfall to Tampa Bay. Under
direction of the State DER and Federal EPA, a cost effective
analysis of alternate treatment and disposal methods was performed.
To avoid water quality problems in 'Old Tampa Bay, the federal
and state agencies directed that the facility be constructed as
a secondary treatment plant with deep-well injection as the
proposed method of disposal. At this time the Federal EPA has
refused to permit any further experimental programs for deep-well
injection in the Northeast Plant Service Area. Thus, the method
of disposal and treatment for the Northeast Plant has not been
determined by the EPA.
The proposed treatment process for the Northeast plant
was conventional activated sludge. The proposed influent struc-
ture will have structural hydraulic capacity to accept an average
daily flow of 24 mgd. However, plant capacity for all of the
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-14-
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City's treatment plants will depend upon the method of effluent
disposal.S
Collection System
e
Sanitary waste is collected through a system of over
280 miles of gravity sewers and force mains, and approximately
60 lift stations. Most of the system was installed independently
. by developers. The condition of some of these systems due to
age deterioration has caused some problems when annexation has
integrated them into the City's system.
The collection system has been evaluated in the 201
Facilities Plan as adequate. There is no sufficient infiltration
or inflow to warrant major overall repairs to the collection system.
Only private systems have been evaluated as needing major work to
their collection system. These systems will be improved when they
are integrated in the City's overa~l collection system. The City
provides continuous maintenance for the collection system.
Existing Conditions and Regulations
The provlslon of central sewerage systems and treatment
facilities to collect and safely dispose of domestic and commercial
wastewater lS one of the important responsibilities of the City of
Clearwater. Not only does the City have a moral and environmental
responsibility, but the City's standards for water quality are
established by federal, state, and local regulatory agencies and
elected officials. Regulatory agencies directly impacting the
e
-16-
e
operation of the sewer system are the U.S. Environmental Protection
Agency (EPA), Florida Department of Environmental Regulation (DER)
and the Pinellas County Environmental Protection Commission. The
following illustrates the hierarchy of regulatory agencies which
affect the City's sewer operation.
Federal
e
As a portion of Public Law 92-500, Section 201 studies
must normally be completed before Federal grants will be released
for construction of treatment plants and/or transmission systems.
The City of Clearwater's 201 Facility plan is in its final draft
form and will be proposed for adoption in the fall of 1979.
Federal grants provide significant capital for the
construction of water treatment and transmission systems. Because
federal monies provide 75% of the financing of new advanced waste
treatment plants and various transmission lines, many of the City's
operations are affected since they must conform to federal guide-
lines.
State
The Florida Department of Environmental Regulation
under the direction of the U.S. Environmental Protection Agency
is responsible for overseeing sewage treatment facilities and water
quality management on a statewide basis. DER has established
standards for sewage effluent discharged into streams and water-
ways. A minimum standard has been established for secondary
treatment. This minimum is 90 percent of Biochemical Oxyg8n DemandS*
e
~17-
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and Suspended Solids removed from effluent discharge. DER
is also responsible for regulating permits for sand filters
through County Health Departments.
Local
e
In 1972, the Florida Legislature passed the Wi1son-
Grizzle Act because of the severe pollution problems existing
in Tampa Bay and its surrounding bodies of water. The Act
stated that: "No facilities for sanitary sewage disposal
constructed after the effective date of this Act ?ha1l dispose
of any waste into Old Tampa Bay, Tampa Bay, Hil1sborough Bay,
Boga Ciega Bay, St.Joseph Sound, Clearwater Bay, Sarasota Bay,
Little Sarasota Bay, Roberts Bay, Lemon Bay, and Punta Garda
Bay or any bay, bayou or sound tributary thereto without
providing advanced waste treatment approved by the Department
of Environmental Regulation. The County Health Department issues
permits for septic tanks.
Population and Wastewater Flow Projectiore
Clearwater is expected to reach a population of 137,000
by 1995. With half of Clearwater's land planned for residential
uses, the net residential density will be 14.5 personi per acre.
The 1995 population projections for the central Pine11as County
Area are 478,000.
Future wastewater collection and treatment requirements
are tenuous due to the number of variables involved. The approval
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-18-
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by the EPA for the type of effluent disposal for Clearwater
lS one example. Within the boundaries of the existing Clearwater
Service Area, existing wastewater treatment demands are 13.16
mgd. By 1980, this treatment demand is expected to be 17.6
mgd on an average daily basis. In the years 1990 and 1995,
the demands are expected to be 20.1 mgd and 21.5 mgd,respectively.6
In making these projections, it must be recognized that
the values reflect current service area boundaries. However,
it is possible that these values will be revised to reflect and
conform with those in the 201 Study and its recommendations.
As developed In the 201 Facility Plan, each treatment
area was evaluated. The per capita flow generation developed
was based upon 1977 populations and wastewater treatment plant
records. The population included all permanent and seasonal
residents and the average day transient values. The population
included both the wastewater generation and the populations
presently connected to private treatment plants. It is likely
that most of these private facilities will be eliminated during
the planning period. Population and wastewater treatment are
illustrated In Table 2
e
As found in Table
2
the Clearwater serVlce area is
,
e
well prepared to meet the demand for wastewater flow. The big
problem which might limit the capacity of the plants is the
EPA's decision to abandon deep-well injection as an acceptable
means of wastewater disposal. The fate of the -deep-well
injection experiment will have a great bearing upon the
capacity of the, Clearwater plants.
- 19-
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YEAR
1980
e 1985
1990
1995
Table 2
Clearwater 201 Service Area
Population and Wastewater Flow
1980 - 1995
TOTAL FACILITY TOTAL FACILITY
POPULATION GCD* DEMAND (MDG) CAPACITY CMGD)
120,711 134 16.2 23.0
130,568 134 17.5 23.0
139,877 143 20.1 23.0
151,084 142 21. 5 23.0
SOURCE: Briley, Wild and Associates, Inc., Central Pinellas County 201
Facility Plan (Final Draft), (Clearwater, Florida: Briley, Wild
an d As sac i ate s, In c . ), p p. 4 - 1 5 - 2 1.
*Ga1lons Per Capita Per Day
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Alternatives
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The most important aspects of the 201 Facility Plan
are the alternatives, recommendations and costs associated with
the recommendations. To identify the proper plan, different
alternatives should be evaluated to include types of treatment
facilities, various transmission arrangements and analyses of
treatment and disposal methodologi:s. Ideally, the chosen
system will be the one which requires the least amount of capital
and still meets the needs and requirements of the area.
Wastewater Treatment
There are four basic treatment processes that are
considered feasible in the Clearwater planning area. They are:
secondary treatment, secondary treatment plus filtration, modified
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secondary, and advanced waste treatment. Secondary treatment
generally consists of those processes needed to produce a disinfected
effluent which has had 90 percent of the influent suspended solids
and BODS removed. Secondary treatment plus filtration consists of
the addition of filter equipment at the end of the secondary process.
Modified secondary treatment is defined as the addition of a denitri-
fication process and a final filter to a secondary plant. And,
advanced waste treatment is that degree of treatment which removes
all but 5mg/L*of BODS'S mg/L of suspended solids, 3 mg/L of
total nitrogen and 1 mg/L of total phosphorus.7
Each of the above described treatment processes are
feasible alternatives for Clearwater's sewage treatment plants.
e
* milligrams per liter
-21-
--.-.- --'.- -- -_.~ ----... --- -~- --......- ...,,-"....- ~ - ....,...... -'-... ......_.
e
Capacity, cost, and effluent disposal will dictate the type of
treatment process which will be used at each Clearwater plant.
As previously mentioned, the Clearwater plants have adequate
capacity to meet the demand for the planning period. The cost
of meeting that demand will be greatly dictated by the type
of disposal method used.
Effluent Disposal
The four basic types of effluent disposal available in
the Clearwater area are direct discharge to surface water, injec-
tion wells, land applications, and reuse. With the exception of
discharge to inland surface waters, none of the available ultimate
disposal methods have been used exclusively for extended periods
of time.
e
Direct discharge of effluent to surface waters is the
traditional method of waste disposal. It is often the cheapest
and simplest method. Because of the Wilson-Grizzle Act (October
of 1972) effluent discharge to surface waters is not a viable
alternative for future secondary treatment plants in the Tampa
Bay area. Strict regulations 1n present Bay outfa11s may cause
other alternatives to be more economically feasible. One form
of direct discharge 1S gulf/ocean outfall. Effluent treated to
secondary standards lS pumped offshore to be diluted in the salt
water. The initial affects to the Gulf appear to be minimal
but year-round outfall coupled with ocean currents, depth of
water, water temperature and salinity, and the outfall diffuse
must be considered. The big disadvantage to ocean outfall is
--
- 22-
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the loss of valuable nutrients as well as large quantities
of fresh water. The 201 Facility Plan designated an ocean
outfall site south of Honeymoon Island and out to a water depth
of 18 feet. The pipe and pump stations could be sized to handle
the effluent from Clearwater's treatment plants.
The most desirable method at this time because of oper-
ating cost is the deep-well injection process. This method lS
highly dependent upon the geological formations underlying the
area. These formations must be such that the underlying rock
strata will accept the effluent and prevent it from contaminating
the drinking water. Deep-well injection could act as a barrier
to saltwater intrusion. However, injection testing was not
permitted since only effluent was available as an injection fluid.
This procedure was unacceptable because the consultants for the
City were unable to demonstrate the existence of adequate con-
fining ability for protection of the fresh water zone. In fact,
television surveys of the borehole'indicated vertical fractures
throughout the confining layers. This lack of adequate con-
fining strata was the main reason for halting testing and
removing the wells from any further consideration as a disposal
option. An alternative method of effluent disposal must be
made available.
Land application of treated effluent is also very
desirable, where applicable, the technical aspects of land
application are simple and usually inexpensive. Since Pine11as
County is the most densely populated county in Florida, land
values make spray irrigation a marginal choice economically.
Large tracts of land would have to be purchased or leased
outside the Clearwater service area which would make this
alternative no longer economically competitive.
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-23-
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In the areas where the drinking water supply is in-
adequate or diminishing, the reuse of effluent will help conserve
the potable water supply. Pinel1as County is in such a situation.
Potable water is being imported from outside the County to supple-
ment the water supply. Reuse of treated municipal sewage effluent
has been considered in many areas for some period of time. Aside
from the obvious public and regulatory aspects, public acceptance
of preception of wastewater reuse has been a major obstacle to
overcome. Potential uses for tested municipal effluent are m~ny
and varied. Reuse can take the form of cooling water, industrial
supplies, recreation supplies, irrigation requirements, agriculture,
and human consumption. If the entire capacity of the Clearwater
Wastewater Treatment Plants were to be reused, it would have the
impact of increasing the City's water supply capacity by 10 to 15
mgd.
e
A key factor in the selection of alternatives is the
method of effluent disposal. The type of final disposal will
dictate the degree of treatment required. With secondary
treatment process, the disposal method will be a gulf outfall,
reuse, or deep-well injection. With a filtered secondary treat-
ment process, disposal will be a land application. With an
advanced waste treatment process, the disposal method will be
discharge to surface waters. The ultimate decision will be the
most cost efficient method to meet social and regulatory demands.
Sludge Disposal
e
Sludge (the dried solids resulting from the treatment
process) can be a disposal problem if not viewed as a valuable
resource. Several communi ties have marketed and packaged sewage
-24-
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sludge as a soil conditioner while others have incinerated or
hauled the sludge to landfills for disposal.
In the past, Clearwater's sewage treatment plants have
utilized pasture lands In the north county area for sludge
disposal. This method of disposal has been satisfactory for
the City since it involved a minimum cost and solved the disposal
problem. It is likely that this current disposal program will
continue, at least in the near term. The U.S. Department at
Agriculture has voiced a strong concern about possible health
aspects of high cadmium levels contained in the sludge (of some
cities) which is distributed on agricultural lands. At present,
no ban or discouragement of these practices has been initiated.
If such practices are determined to be detrimental to public
health, other disposal alternatives (landfill, resource recovery,
or incineration) will be actively investigated. The City does
have the option of cooperating with other jurisdictions to develop
a regional sludge disposal program. Such a program could alleviate
Clearwater's sludge disposal problem, and would probably yield
the best long-term solution to the problem of sludge disposal.
RE COtvflvlENDA T ION S
The most important aspects of the 201 Facility Plan are
the recommendations. Recommendations in the areas of wastewater
collection, wastewater treatment, effluent disposal, sludge
disposal, and management agencies resulted from the 201 Facility
Plan. The following provides major recommendations for the
Clearwater Service Area to the Year 1995.
Wastewater Collection
One of the functions of the 201 Facility Plan is to
e
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-25-
evaluate the condition of the sewer lines that collect waste-
--
water. If lines are deteriorated, cracked, etc., excess water
enters the collection system from sources of inflow (generally
storm water runoff) and/or infiltration (generally groundwater).
In order to determine whether it would be more cost effective
to treat the additional flow at the treatment plant or repaIr
the system, an infiltration/ inflow (1/1) analysis must be
conducted. If this analysis indicates that it would be less
expensive to repair the system a more detailed sewer system
evaluation study (SSES) is conducted to determine exact problems
and costs.
Clearwater's collection system has been evaluated as
not having sufficient infiltration or inflow to warrant major
overall repair to the system. The only systems evaluated which
e
may be in excess of EPA standards within the Clearwater Service
area would be Boulevard and Southgate Mobile Home Parks treat-
ment plant. These private systems are planned to be absorbed into
the Clearwater East treatment plant service area. FUrther cost
analysis will have to be performed on the two mobile home parks
infiltration/inflow situation before the City assumes responsibility
for the
. 8
systems.
The City should continue to inventory and inspect sewer
lines.
Inspection points and condition of those points should be
plotted on a map and used as a basis for estimating repaIr and
replacement costs for capital improvement programs.
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.., ,.
_.;.~J
Wastewater Treatment
e
e
As previously mentioned, the Clearwater wastewater
treatment plants will have the capacity to handle the projected
volume of wastewater for the planning period. It is recommended
that the Clearwater plants accept sewage to the limits of their
ultimate capacity as part of a sub-regional system for the
Central Pinellas area. Sewage from areas outside the City, the
collection systems for which are not owned by the City, would
be accepted on a rate basis to be determined by a rate study.
The Safety Harbor plant should be eliminated and treat-
ment accomplished at the Clearwater Northeast Plant. This holds
true regardless of the effluent disposal method selected for the
Northeast Plant. A large portion of Safety Harbor service area
has already been diverted to the Northeast facility. The maximum
average flow for the portion still serviced by the existing
Safety Harbor facility is .4 mgd, whereas the total ~rojected
year 1995 average flow for the entire Safety Harbor serVlce area
is 1.6 mgd.
The type and degree of treatment for the Clearwater
p1ints will greatly depend upon the type of effluent disposal
used. The capacity of the plants will also be dict~ted by the
type of effluent disposal. At the present, the Clearwater plants
should continue with secondary treatment with the option to
upgrade to an advanced waste treatment process.
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-27-
Effluent Disposal
e
The most pressing problem facing the sewage treatment
process in the Clearwater Service Area is effluent disposal.
As previously mentioned, any new treatment plants are prohibited
from discharging sewage effluent into Tampa Bay or Clearwater
Bay and only advanced wastewater treatment effluent by existing
plants is allowed in Tampa Bay. In light of these standards
and the other local, state and national goals, the consulting
engineers in the 201 Facility Plan evaluated alternatives which
would meet applicable goals and standards utilizing the most
cost effective methodology. After careful analysis, testing
and calculation the selected disposal alternative was identified
as deep-well injection. A local system was proposed for Marshall
Street and a combined system at East to handle flows treated
e.
there as well as to Northeast.
(The least cost analysis is
illustrated in Tabl~~.)
Since the negative zesponse to deep-well injection by
EPA, the next most cost competitive system would be the use of
gulf outfall which was proposed in the North Pinellas 201 Facility
Plan. If the course of action would be gulf outfall, the East
Plant would be phased out and the Northeast plant would handle
the additional load before discharge to the outfall. Alternatives
involving surface water discharge following advanced waste treat-
ment have been provided for comparison purposes, even though
current waste load allocations would not permit such direct
discharges except at ~larshall Street. Other alternatives such
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- 2 S -
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TABLE 3
Least Cost Rankings for Optimum Alternatives-Clearwater
Marshall Street (8.6 mgd)
Present Worth
Million Dollars
% Above
Least Cost
1. Nitrification treatment. Effluent to local injection well.
2. Nitrification treatment. Effluent to gulf outfall.
3. Advanced waste treatment. Effluent to Stevenson Creek.
4. Advanced waste treatment. Effluent to Clearwater Harbor
5. Modified secondary treatment to gulf outfall.
6. Modified secondary treatment. Spray irrigation
plan number 2.
$11.006
$13.859
$13.895
$14.141
$15.159
$18.395
0.0
25.0
26.2
28.5
37.7
67.1
Clearwater East (5.3 mgd)
l.
2.
3.
4.
e 5.
6.
Secondary treatment. Effluent to local deep well.
Eliminate plant. Treatment at Clearwater Northeast
with gulf outfall for combined flow.'
Secondary treatment. Effluent to gulf outfall.
Secondary treatment plus filtration. Spray irrigation
plan number 3.
Advanced waste treatment. Effluent to bay outfall.
Secondary treatment plus filtration. Spray irrigation
plan number 2.
$ 6.232 0.0
$ 9.102 46.0
$lO.On 61.9
$11.652 8 i . 0
$12.253 96.6
$13.065 109.6
Clearwater Northeast (9.1 mgd)
l. Secondary treatment. Effluent to east deep well. $11. 531 0.0
2. Secondary treatment. Effluent to gulf outfall. $12.583 9.1
3. Secondary treatment plus filtration. Spray irrigation
plan number ., $17.139 48.6
~ .
4. Secondary treatment plus filtration. Spray irrigation
plan number 3. $17.332 50.3
5. Advanced waste treatment. Effluent to bay outfall. $17.817 54.5
6. Secondary treatment plus filtration. Spray irrigation
plan number 4. $23.179 101.0
SOURCE:
Briley, Wild and Associates, Inc., Central Pinellas County 201 Facility Plan (Final
Draft) (Clearwater, Florida: Briley, Wild and Associates, Inc., 1979), p. 7-32.
Best Copy
Available
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- 29.-
as spray irrigation and effluent r3use Vla spray irrigation
a...o
~ '"
well dow~ the cost ranking list. The land spreading technique
e
would appear to be the most beneficial for effluent generated at
the Northeast plant.
Sludge Disposal
During the treatment process, sludge is created and
must be disposed. The cost-effective method for sludge disposal
at the Clearwater treatment plants calls for dewatering at each
facility which will produce a sludge cake consisting of approxi-
mately 18 percent dry solids. This cake will then be transferred
to one of three places. Clearwater can continue to use the norther:
fields of the county, tranfer it to the county's resource
recovery/landfill site, or utilize a new technique, solar heated
drying beds, as a means of sludge dewatering. In addition to
e
the latter method being an innovative and potentially economical
technique, this would permit utilization of a portion of the
sludge cake for fertilizing public property within the City. The
City should also work with surrounding communities ln an effort
to develop a new regional sludge disposal facility.
Management Agency
Management is the backbone of any business whether it
is private or public. A cost efficient, well organized sewage
system must have a sound management organization with authority
and control. Two studies have been conducted on serVlce area and
management agencies for the Central 2inellas area.
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-:3 0 -
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The 208 Plan (Water Quality Management Plan) recommended
a regional body separate from the political jurisdictions to
regulate, control and plan sewage treatment systems. The
recommendations of the 208 study were presented and discussed
with the administrative staffs of the local governments in
Pine lIas County. This plan did not receive support because
the suggested degree of consolidation did not appear to be a
readily or reasonably implementable concept.9
The 201 study concurred with the 208 plan but at a
smaller scale.
Instead of a Central Pinellas County sewage
e
utility district, the same area would have four regulatory or
management agencies. These agencies would be Belleair, Clearwater,
Largo and Pine lIas County. Thus, Clearwater will be the manage-
ment agency and responsible for planning, financing, constructing,
operating and maintaining all treatment and disposal facilities
within its service area as illustrated on Plate 3
The area
includes the municipal limits of Clearwater and Safety Harbor
and a significant amount of unincorporated land.
Clearwater will also be responsible for prov~ding the
lead role for the financial and regulatory aspects of establishing
rates, fees and regulations in accordance with user charges,
industrial cost recoveries, and industrial pretreatment require-
ments. An interlocal service agreement between Clearwater,
Safety Harbor, and Pinel1as County should be established to
determine responsibilities, authority and accountability.
-
-31-
Plate 3
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...
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r
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-32-
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e
F 0 0 T NOT E S
1. Briley, Wild and Associates, Inc., Central Pinellas County
201 Facility Plan (Final Draft) (Clearwater, Florida:
Briley, Wild and Associates, Inc., 1979), pp. 2-20-23.
2.
Ibid. , pp. 2-24-27.
Ibid. , pp. 2-40-43.
Ibid. , p. 44.
Ibid. , pp. 2-57-60.
Ibid. , pp. 4-l5-2l.
Ib id. , pp. 7 - 8.
Ibid. , pp. 5-31-37.
3.
4.
5.
6.
7.
8.
9. Tampa Bay Regional Planning Council. Water uality Manaaement
Plan - Tampa Bay Basin. CSt. Petersburg, Flori a: Tampa Bay
Regional Planning Council, 1973), pp. 14-30-35.
-33-
e
e
e
BIB L I 0 G RAP H Y
Briley, Wild and Associates, Inc. Central Pinellas County 201 Facility
Plan (Final Draft). Clearwater, Florida: Briley, Wild and
Associates, Inc., April, 1979.
City of St. Petersburg Planning Division. St.Petersburg Sanitary Sewer
Element of the Comprehensive Plan. St.Petersburg: City of St.Peters-
burg, June, 1978.
Division of State Planning (Florida). The Florida State Comprehensive
Plan. Tallahassee, Florida: State of Florida, February, 1978.
Pine1las County Planning Department. Population Forecast - Pinellas
County, Florida Clearwater, Florida: Pinellas County Planning
Department, August, 1977.
Tampa Bay Regional Planning Council. Areawide Water Quality Manage-
ment Plan for the Tampa Bay Region. St.Petersburg, Florida:
Tampa Bay Regional Planning Council, May, 1978.
Tampa Bay Regional Planning Council. Water Quality Management Plan -
Tampa Bay Basin. St.Petersburg, Florida: Tampa Bay Regional
Planning Council, June, 1973.
-34-
,
,
/
D
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tit
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I
II
III
IV
V
VI
VII
VIII
IX
TABLE OF CONTENTS
Introduction
Goals, Objectives and Policies
Inventory and Analysis
Existing Conditions and Regulations
Population and Future Water Needs and Demands
Alternatives
Recommendations
Footnotes
Bibliography
Page
1
3
7.
10
15
17
20
22
23
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List of Tables and Plates
Page
e Plate 1 Clearwater's Water Supply Facilities 11
Plate 2 C1ean-ra ter' s Water Di s t r i bu ti on r,lap 12
Table 1 Projected Water Demand - Clearwater 1978-1995 17
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POTABLE WATER
Introduction
The demand for water for drinking, cooking, bathing
and all other human needs in the Clear~ater Service Area is a
major and continually growing problem directly .related to
urbanization. While potable water has not constituted a constraint
on the growth of the area to date, whether or not it will in
the future depends upon public policy and thoughtful appli-
cation of reliable planning concepts.
If traditional policies
and patterns of water use are continued, serious problems
affecting ruture development and environmental quality could
occur.
Concern over Pinellas County; 's water SUDDlv has
.. ,
been growing ror many years, and recently the ruture avail-
ability of potable water has been viewed as a serIOUS
limit to urban grO\'ith. The increasing problem of salt',v'ater
contamination of ground water in much of the lower peninsula
has resulted in transport or water from well fields in Pasco
Count.y, an action that has been accompa...il.ied by controversy
between the two governing bodies.
In central Pinellas Co~~ty the shortage of potable
ground \~'ater is not as acute as in the St. Petersburg area,
but this condition has a clear potential ror worsening in the
cornIng years. Rapid population growth is increasing daily
deman.ds on ',yater resources, a.il.e
, .
eX?~--:.c.l;lg
urban are2.S are
- 1-
decreasing water recharge capabilities by replacing vegetated
e
natural l~id with roads, buildings and other artifacts of city
development. Simply stated, the supply of water is being used
at ~i increasing rate while recharge capacities are being
reduce d.
Faced with this dile~~a, the City of Clea~Nater must
v1.ew its water sys tem Hi th a s harp eye. Al though it has highly
developed distribution facilities, the water supply is still
governed by hydrogeologic laws ','i"hich cannot
,
oe
repealed.
The
reliable supply, treatment and distribution of potable water
is vital to the health, safety and 'delfare of the Cleartia:er
Service Area.
The nUTcase of this ele8ent will be limited to
" "
identifying
, "
tne eXlstlng
~n'':; J::l1f"11.,...'" '""0-:-<:::'01'" w-~+-"'r 7"0",-1",
~ '- - .... .........l.. __ l-' '-...... -- - a. ~ ""'" ..._ '-' '-' U.-.J
of
e
the City of Clearwater ~~d major factors ~ld contraints which
affect the comprehensive pIs-wing effort.
It is beyond the
scope of this element to attempt to refine and dissi8inate
the massive volumes of information that has been written about
potable water in the region.
Projections will be made per-
taining to future service requirements or the City's potable
water system ~ld its capabilities to deliver that service.
Several ge.::1.eral recorrunendations will be made setting forth
areas which should be investigated.
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- / -
Goals, Objectives and Policies
Overall Goal
e
Provide, develop and maintain a permanent potable
water supply system to meet anticipated demand while providing
maximum practical protection to the environment at a cost
consistent with the public's ability and willingness to pay.
Objective
Provide adequate quantities and qualities of water
services to all customers of the Clearwater service area.
Policies
Insure that land development codes aud ordlua~ces
adequately address water system provisions.
The Utilities Departillent shall prepare estimated costs
of subsystem improvements to be submitted to the CO~D1SSIcn
e
prior to the time of annexatiou of any developments within
, .
the service area which have deficieut water systems.
When new subdivisions are being developed, it shall be
the responsiblity of the developer to provide internal water
systems w~ich are constructed to City specifications.
Continue to construct water system improvements which
will provide adequate quantity, pressure, and duration or rIre
flows while meeting system user needs.
Develop a system and construct' improvements ~hich
\~ill, to the degree possible, conserve energy, water and other
valuable resources.
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Encourage the development of innovative techniques to
augment water supplies.
Continue to identify, acqulre and develop sources of
water supply to meet existing and future needs.
Utilize water and land management practices and pro-
grams \Vhich retard runoff and enhance percolation to lncrease
the quantity and protect the quality of groundv;ater.
Ensure that water management projects are designed
and operated to maintain and enhance natural systems as well
as the systems of man.
Objective
Continue to maintain the \Vater system ln a safe,
sound and efficient manner.
Policy
e
The Utilities Department shall continue to inspect
underground water lir;es iVith the objective of maintaining an
inventory of system extent and condition. Inventory information
shall be an input to the capital budgeting process.
Objective
Provide optimum levels of water serVlce ln the City's
s e rvi ce a re a .
Policies
Water serVlce shall not be extended to properties
within the City's service area unless sufficient capacity
exists to serve the areas already committed to City serVlce, as
well as those areas proposed for service.
--
-4-
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Water serVlces shall not be extended except in those
areas so designated for City of Clearwater by interloca1 or
other agreement.
Continue to develop qualified plant operators who
meet applicable standards and certification in order to maximize
the efficiency and effectiveness of the treatment process.
Objective
Provide sound fiscal management for the operation and
maintenance of potable water service in the City's service area.
Poli cies
e
To the maXImLOO extent feasible, charges to each
category of user shall reflect the levels of service needed
to service that user group.
Fees charged users of water serVIces shall be
adequate to cover system operating CQsts, repayments of
capital costs, and allow for repair and replacement of
existing facilities unless approved otherwise by the governing
body.
Prioritization and scheduling of maJor improvements
associated with the water system should he accomplished as a
component of the Capital Improvement Program.
Funds set aside for repair and replacement of the
water system shall not be diverted to other uses.
The City should continue to seek financial support
of the water system through grant programs administered by
appropriate state and federal agencles.
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-5-
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Objective
Develop a potable "1,'later system that, to the maXimum
extent feasible, is compatible with the environment and seeks
to conserve and protect sensitive natural resources.
Policies
e
Shallow wells shall be encouraged as a source of
water for irrigation.
The City's building code shall be modified to include
the requirement for water conserving features in newly con-
structed or remodeled buildings.
Encourage the supply of water in quantities which
would minimize significant adverse impacts on the natural
system and protect the long term pllllic interest.
Encourage rate structures which enhance conservation
of potable water.
Objective
Achieve effective coordination with other government
agencies to solve problems of an extraterritorial nature.
Policies
e
The City shall participate in regional and county-
wide studies which are or may be formed to seek solutions of
problems of an extraterritorial nature.
Continue to cooperate with the Southwest Florida
Water Management District and the West Coast Regional Water
Supply Authority in developing environmental and hydrologic data
that will identify safe and reliable potable water yields in
existing and future we1lfields,
- 6-
Coordinate with appropiate local, state, regional
e
and federal agencies in implementing the water system pl~~.
The City shall actively pursue a coordinated
approach to interjurisdictional problems, providing support
of both staff and officials.
Inventory and Analysis
The original water supply in the City was obtained
from deeD wells located in what is now the downtown area
~
near Cleardater Bay. Transmission lines emanated from the
down t min
area and extended west~ard to the beach area
"lTH-1
..........l._
eastward into the new development. As the population and
the water demand increased, overpumping led some of these
wells to be abandoned. Newer wells, to replace those aban-
e
doned and to augment the City's swpply, were drilled faT~her
to the east. The development of the water system has followed
the development of the City.
In 1954, the City entered
in to
an agreement
. .'
Wl:..il.
Pinellas COU.il.ty to purchase ',iholesale, a minimum of -+ mgd
from the Count.y's \Vater System. The 'agreement provided the
City with additional water to meet its increasing demands
without drilling additional wells and provided the COwlty
with guaranteed revenue to finance the construction of a
ne','/' '..later supply and transmission filain.
The County system rapidly became the major source
of
l....... ~~......
~~a.'-_J.
s up ply
r 0 reI ear,'/' ate r .
0!eter stations were
in stall e d
at various take-off points on the C01..LTlty ',~.ater main. on Belcher
e
-
- J -
e
Road and large diameter transmission lines were constructed to
convey water to the downtown and beach areas. The distribution
system was re-designed to accommodate the revised direction of
flow and feeder mains were constructed in the eastern areas.
As water consumption continued to increase, the need
for additional storage capacity became critical. Small elevated
tanks were replaced with larger ground storage tanks. The water
demands on days of high consumption increased to such an extent
that the combination of water supply and storage facilities
became inadequate to meet peak requirements. The problem was
not so much inadequate water supply as improper utilization
of available water supply, with neither source being utilized
to maximum benefit. A need existed for additional water supply
wells, storage facilities, comprehensive programs of exploration
and management of water supply. Storage and high volume pumping
facilities were constructed which provided a balanced system and
allowed the fullest utilization of the County's and City's well
supplies as well as avoiding excessive pumping of underground
supply sources. These additional facilities allowed the opera-
tion of the municipal well fields over a 24-hour basis which
resulted in greater total quantity of water from the wells and al-
lowed greater use of the County supply source by making County
water available during County off peak periods for use by the
City for peak demand periods.
The Ci ty 0 f Cl e anvate r ope rates the larges t dispe rs e d
wellfield system on the Pinellas peninsula. PToduction of \-later
e
e
- 8 -
increased ISI percent from 1970 to 1975. Dependency on water
e trans fe rs from Pinellas County was also reduced over the same
period from 73 percent to 35 percent of Clearwater's water
supply use. Additional wells increased Clearwater's yea r-
round production rate to over IO mgd 2~d for the short term
making the City nearly self-sufficient in water production.l
A renewed agreement between Clearwater and Pinellas
County was signed in early 1976 which transferred some of the
County water service areas to the City system.
In slgnlng the
agreement, the City 1S now committed to purchase a ffilnlmum of
4 mgd and a maX1mum of 10 mgd from the County. Proportional
1ncreases will take place as additional County service areas
come into City service.
e
The rapid expansion ln water production resulted
from annexations and Clean'/'ater's extension of its wellfield
sys tem no rthward on the Pine II as Ridge to th e Cotm t rys (de a re a.
The Pinellas Ridge, referred to as the "Coachman High" has
water production capabilities superior to most areas of Pinellas
County. 2 The Clean'/'ater wells are tested for chlorides once
monthly and wells near the coast are pumped at low levels and
are alternated frequently.
The present water supply for the City consists of
27 deep wells and six connections to the Pinellas County Water
System transmission mains. Nineteen of the wells arc connected
to storage tanks. The wells not linked to the storage tanks
have chlo rina t ion units at th e we 11 1-J.eads.
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- 9-
e
Stored water lS both pre-chlorinated and post-
chlorinated upon leaving the reservoir. The total storage
capacity of the system is 23,3 mg. There are four five-
million gallon ground storage tanks, three one-million
gallon elevated storage tanks and one 300,000 gallon elevated
storage tank. The City's wells and storage facilities are
located on Plate 1.
The present water supply, storage, transmission and
distribution system provide a well balanced system which is
adequate for the requirements of the presently served portions
of the Service Area as illustrated on Plate 2.
Existing Conditions and Regulations
e
Because of the number of regulatory agencles, private
companies, and local governments involved in various aspects
of water development, or regulation, conflicts often arlse
concerning the individual role and purpose of each agency.
For example, a city in Pinellas County may develop a water-
supply source, but the Southwest Florida Water Management
District regulates the quantity and conditions under which
water may be withdrawn. The U. S. Environmental Protection
Agency stipulates the type of treatment which is required for
a given source of water. The West Coast Regional \Vater Supply
Authorit.y coordinates long-range water-development plans. The
following is a brief discussion of major programs and agencies
involved in water management in the area.
e
- 10-
Plate I
e
~~
~o
.....
::;
u ~
<l:
... ..
..
>- w ~
......
i:l.. ..
i:l.. 0: '"
c w
:;) Z ~
V'l <(
;: ~
<>:: ~
w :; >-
.....
~ ~
",- z
Z ::>
<( 0
V'l .... U
c.: 5: ~
w 0 <(
..... > ~ ~
<l: ::; Z
~ '" w 0:
'" w ~
<l: '"
w . II
...... +:
u
O:JIX3W iO ~ll):;
tit
-ll-
e
e
Plate 2
+~
c:
w C. 0 a
l- e:(
c:c :E
S
>- ~
2 '"
IX <
0 ~
w 0
l- I- > ~
'"
~ ::J ~ <
'"
r.a ~
- < '"
c: <
c: ~ ~
cC '" ~
I- < v
W t1) I
:'~>;.
..J ~J,t<~
tJ C :~.;,~' O?IX3W ;0"7
Ii:;
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-12-
Federal
e
The U.S. Environmental Protection Agency under the
provisions of the Clean Water Act and the Safe Drinking Water
Act is responsible for development of standards, guidelines
and programs involving water quality. The U.S. Geological
Survey is responsible for identifying water levels and the
location of the salt and fresh water interface. The U.S.
Corps of Engineers is responsible for flood control. The
Corps has been instrumental in preventing major disasters
through their flood control efforts while at the same time has
been responsible for recharging underlying wellfields.
State
e
The Florida Department of Environmental Regulation
monitors water quality and is responsible for standards and
regulations relating to surface, ground and drinking water
in Florida. The Department of Environmental Regulation IS
also responsible for the State Water Plan Element.
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-13-
i------H
Regional
e
e
The regional planning authority, Tampa Bay Regional
Planning Council, is responsible for the Section 208 Areawide
Water Quality Management Plan for the region. The basis for
the 208 study is generally water quality but also deals with
identifying sources of water pollution. Southwest Florida
Water Management District is responsible for the Consumpti ve
Use Permits, instituting a District Water Use Plan, and
administration and regulation of flood control projects within
the district which included Pinellas County. The most important
responsibility is that of managing the Consumptive Use Permits
Program. The program regulates the amount of water that can be
withdrawn from surface and ground water supplies. Thus, the
program attempts to protect water supplies within the region.
The West Coast Regional Water Supply Authority, established
by the State legislature, is responsible for the design, con-
struction, operation, and maintainance of facilities to insure
an adequate water supply in Pinellas, Pasco, and Hillsborough
Counties.
Local
Pinellas County is responsible for monitoring and
sampling surface and ground water which is supplied to the
C i t Y 0 f C 1 e a rwa t e r . The C i t Y 0 f C 1 e a rw ate l' un d e r the Uti 1 i tie s
Department is responsible for sampling and monitoring surface
and ground water for quality and quantity. The City is also
--
-14-
e
e
e
responsible for operating and maintaining well heads, pumping
stations, and the entire water system.
Population and Future Water Needs and Demands
The Clearwater Service Area is expected to reach a
population of 137,000 by 1995. With half of Clean~ater's land
planned for residential uses, the net residential density will
be 14.5 persons per acre.
The forecast of population growth in the Service Area
is the key to determining design criteria as well as to planning
phased-construction. Both the overall demands and the demands
placed on the system due to seasonal population peaks will
govern the design of future operations.
Water demands have increased steadily in terms of
per capita use and the total numbers of customers served. Per
capita water consumption is measured In gallons per capita per
day. The West Coast Regional Water Supply Authority has cal-
culated Clearwater's average gpcd at 120.3
Daily water use can deviate substantially from "average"
daily water use figures. As a general rule, peak day water use
is 1.5 times the amount of the average daily water consumption.
WCRWSA has calculated Clearwater's peak/average Tatio at 1.65.4
The effect of peak daily demand is such that additional treatment,
storage, pumping and transmission capacity must be increased to
accommodate the increased load.
-IS -
Water demand can vary substantially from one season
e
to another and is generally lower in the swnmer than in the
fall or spring since outdoor water requirements cut consider-
ably. During the winter, water use is also generally lower than
in the fall or spring since this is the dormant' period for
much of Florida's vegetation. The occasional intrusion of cold
fronts generally produces enough precipitation to satisfy plant
water requirements.
Future water demands must be proj ected and based upon
present and historic water-use trends in order to insure that
there will always be a sufficient supply of water for all needs.
At the present time, the Cleanvater water supply system along
with the Pinellas County supplements has been assured by the
e
Southwest Florida Water Management District to have an adequate
supply to meet projected demands past the year 2000.5 Competition
for water can become acute when several needs are competing for
the same source. The West Coast Regional Supply Authori ty is
currently proceeding with plans which would insure an adequate
supply of water for the City, County and the reglon past the
year 2000.
Existing and future demands (pumped wateT) for the
years 1978, 1980, 1985, 1990 and 1995 are depicted as follows:
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-16-
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T,able I
Projected Water Demand
~leanvater 1978-1995
(In million gallons per day /mgd) *
1978 1980 1985 1990 1995
Average Day 13.33 13.68 14.45 15.34 16.46
Peak Day 20.89 21. 44 22.63 24.04 25.79
*Based upon per capita consumption standards of 120 gpcd
(average) and 188 gpcd (peak).
Source: Clearwater Planning Department
From the reVIew of water demand and supply projections,
it becomes apparent that additional water supplies will be re-
quired shortly after the year 1995 if traditional .trends continue.
e
It is also apparent that CleanlatcT's Iv-ater supply coupled with
the Pinellas County water contract that the demand for water in
the year 1995 will be obtained. However, unless conservation
measures are instituted, Clean'/'ater will be forced to find
additional water sources.
Al ternati ves
The City of Cleanvater has very few alternatives
relating to water supply. The City has eliminated alternatives
by establishing contractual obligations and operating procedures
which will provide potable water to a well defined service area
for 30 years or until the population reaches approximately
137,000. Since the hydrologic situation in Pinellas County can
e
- I 7 -
be expected to make reliance on Clean'/'ater's local Hell fields
e
an increasingly precarious position, the added supply of
imported water from the County's Pasco Caun.ty fields may
become very important to City groHth in the future. However,
the City should continue to encourage water conservation and
discourage wasteful consumption.
Conservation of potable Hater can have a significant
.
impact upon the overall water system when all customers reduce
their consumption by a small percentage,
Should the per capita
demands reverse the historical trend (that of increased usage) ,
future water requirements could be substantially less than
currently projected.
For example, a 10-15 percent decrease in water use
e
could be easily accomplished by the use of low volume toilets,
showers instead of baths, flow restrictors on faucets, and
the proper irrigation of plants.
Such a decrease would not
adversely affect our present lifestyles. The positive impact
of such practices would be an extension of the time
before additional supplies would be required.
Reuse of highly treated waste effluent has been
considered for many years, and has become a reality in a few
conununities in the area. Many people are opposed to the use
of treated wastewater for drinking, however, treated waste-
water can be used for many other purposes, s~ch as lawn irri-
gation, car washing, toilet flushing, industrial uses, and
other non-potab~e uses,
Reuse is not Hithout its drawbacks
-
- 1 S -
e
however, an alternative method of disposal must be available
during high rainfall periods when spray irrigation cannot be
used. The cost of alternative disposal methods can signifi-
cantly raise the cost of this treatment and disposal alterna-
tives. The cost of a dual-distribution system to supply potable
and sub-potable quality water to individual consumers is great
when retrofitting an existing water system with secondary lines.
However, it is possible that such a system could save 20-30
percent of ~otable water use when considering new development.
The impacts of the reuse of wastewater effluent is
similar to that of the conservation alternative - reducing
demand by a percentage. By reusing wastewater, an additional
supply source lS essentially gained thus extending the period
of time before a new water supply and treatment facility is
required.
Shallow wells can supply sufficient water for law~
sprinkling during the months when there is a deficiency of rain.
Several well points should be adequate for the average size lot
ln Clean'/'ater. Shallow wells for lawn sprinkling can contribute
to alleviating the demand put upon the City's and County's
wellfields during peak demand.
Sources of desalination were rejected for the planning
period because of low benefit-cost ratios. Furthermore, there
are not sufficient quantities of surface water available to
supply even a small portion of the projected demand for Clean'i"ater
without causing considerable environmental damage and requiring
considerable treatment to meet potable water standards.
.e
e
-19-
Recommendations
e
The quality of T,'Iater produced a.I1d distributed by
the City of Clea~vater will continue to comply with all local,
state, and federal water-quality criteria. The city currently
has a designed capaci ty to supply 10 mgd supplied from its own
well fields. The ultimate capacity of the system coupled with
the County's supply is 20 mgd at the present time. The quantity
.
of '.....ater available to the City of Clear;~.aterr s service area
should be sufficient to the year 1995. Water service will be
I
provided to
crivate residences in the service
..
~""'Q ;::J
'-....., --
, .
~.hO"""'.o-~'-"",,
N.I....._..:._ ,:)'-"'-.i....
connections are found to be financially =easible. The water
system should be continuously monitored ~ld upgraded :0
prevent deterioration.
Water impact rees to offset canltal costs s~cul~ De
e established to cover eXDansion into neT,vly c.e'leloped a:-eas,
The policies in the Conservation Plan relating to
water conservation and ground water recharge should be strictly
followed by the City.
Building codes should ~e amended to
reauire that water conserving features be installed i~ all ~e~i
consfruction.
"':'. -
.. '1,- tV
residen~ial developmen~s should
requlre
shallow wells far lawn irrigation so that potable water is
conserved.
The City should consider uSlng treated wastewater
effluent far irrigation purposes. Areas \'ihich could utilize recycled
IV a s t e ". ate r \~. 0 u 1 din c 1 u d ego 1 f co u r s e s, r 0 ad 8 e d i an 5 t yip 5, S c h 0 0 I
e
-20-
e
grounds and open space areas. The City should also study the
feasibility of a dual distribution system for new developments
in the northeast sector of the service area.
Graduated water rates or surcharges should be an
integral part of the City's water conservation effort.
Increasing water rates above a base rate can be a strong
economic incentive for water conservation practices.
The City should adopt a water conservation plan to
include graduated water rates or surcharges, lawTI irrigation
bai"ls during water shortages, shallow \'iell sprinkler systems,
wastewater reuse, new construction which includes water
conserving fixtures, and a public education and information
program on water conservation.
Except during prolonged dry periods t~e populace
of Clearwater has been able to conSlli~e water without much
consideration of the overall supply~ Because of a dwi~dling
supply of ground water resources and continuing salt water
intrusion, the City of Cleardater must look to conserving its
most import~"lt natural resource. The more potable water that
is conserved, the longer the supply will last.
e
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- 21-
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Footnotes for Water Elements
I
Pinellas County Planning Council, Water Supply Element
of the Pinellas County General Plan (Clearwater, Florida:
Pinellas County Planning Council, 1978), pp. 36-3~
3
Briley, Wild and Associates, Inc., Water and Sanitary
Sewerage Facilities (Clearwater, Florida: Briley, Wild
and Assoclates, Inc., 1969), pp. 20-21.
West Coast Regional Water Supply Authority, Comprehensive
Study of the Regional Water Supply Needs and Sources, Phase I
(1980-1985), Volume I and Volume II, (Clearwater, Florida:
West Coast Regional Water Supply Authority, 1977), pp. 42-43.
Ibid.
2
4
5 Pinellas County Planning Council, op. cit., p. 69.
e
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- 22-
BIB L lOG RAP H Y
e
Briley, Wild and Associates, Inc. Central Pinellas County 201 Facility
Plan (Final Draft). Clearwater, Florida: Briley, l'lild and Associates
Inc., April, 1979.
Briley, Wild and Associates, Inc. - Water and Sanitary Sewage Facilities.
Clearwater, Florida: Briley, Wild and Associates, 1969.
City of Clearwater and Planning/Design Group.
Management Program and Conservation Plan.
City of Clearwater, August, 1976.
Clearwater Environmental
Clearwater, Florida:
City of St. Petersburg Planning Division. St.Petersburg ~ater Element
of the Comprehensive Plan. St. Petersburg; City of St.Petersburg,
June, 1978.
City of Tampa Planning Department. City of Tampa Water Element. Tampa,
Florida: City of Tampa, February, 197Y.
Division of State Planning. The Florida State Comprehensive Plan.
Tallahassee, Florida: State of Florida, February, 1978.
Pinellas County Environmental Assessment Task Force. Land Resources
Assessment, 1974.
e
Pinellas County Planning Council. Population Forecasts - Pinellas
County, Florida. Clearwater, Florida: Pinellas County Planning
Council, April, 1979.
Pinellas County Planning Council, Water Supply Element of the Pinellas
County General Plan. Clearwater, Florida: Pinellas County,
December, 1978.
Southwest Florida Water Management District. District Water Management
Plan 1978. Brookville, Florida: Southwest Florida Water Manage-
ment District, January, 1978.
Tampa Bay Regional Planning Council. A Modeling Study of Water Quality
In Old Tampa Bay. St.Petersburg, Florida: Tampa Bay Regional Planning
Council, October, 1972.
Tampa Bay Regional Planning Council. Areawide Water Quality Management
Plan. St.Petersburg, Florida: Tampa Bay Regional Planning Council,
June, 1973.
Tampa Bay Regional Planning Council. Areawide Water Systems. St.Peters-
burg, Florida: Tampa Bay Regional Planning Council, June, 1974.
West Coast Regional Water Supply Authority, Comprehensive Study of the
Regional Water Sup ly Needs and Sources, Phase I (1980-l985), Volume
I and Volume II. Clearwater, Floria: West Coast Regional lVater
Supply Authority, April, 1972.
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- - I
,
: t/
,/
o
~ t^^^^-1
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TABLE OF CONTENTS
Page
I Introduction I
II Goals, Objectives and Policies 2
III Inventory and Analysis 4
e IV Existing Conditions and Regulations 12
V Costs 14
VI Alternatives IS
VII Recommendations 19
VIII Footnotes 26
IX Bibliography 27
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-
List of Tables, Plates, and Figures
Figure I Yearly Average Waste Generation
Table 1 Projected Solid Waste Generation
e
Plate I Solid Waste Disposal Facilities
Plate 2 Resource Recovery Site
Plate 3 Electrical Transmission Line Routing
Plate 4 Plant Site Layout
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Page
7
9
IO
21
?~
~~
23
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SOLID WASTE
Introduction
e
The responsibility for removal and disposal of solid
waste ln a safe, economical, and sanitary manner is shared by
every person in Clearwater. With increasing population and ever
large quantities of waste being discarded, the problems of exist-
ing waste handling and disposal methods are growing rapidly.
Any waste disposal system that lS to receive public
acceptance must be economical as well as nuisance-free. Ultimate
disposal of waste under present-day technology is dependent on
some form of landfilling. Three factors contribute to problems
experienced in urban areas uSlng the landfill disposal method.
They are: (I) a continuing increase in solid waste volume, (2)
a decline in available land for disposal sites, and (3) an
increasing number of environmental regulations and emphasis on
resource recovery by federal and state agencles. The basic
problems in solid waste management are the apathy of the general
public and the unglamorous nature of solid waste disposal.
Generally, people are not concerned with these matters unless
some crisis occurs.
Professional skills must be applied to the solution
of problems for storage, collection, transportation, and disposal
of solid waste. These skills are especially warranted in the
densely populated Clearwater area, In 1977 the population density
of Pinellas County was approximately 2,593 persons per square mile
several times that of any other Florida County. The City of
e
- 1 -
e
Clearwater's population density in 1977 was 4,063 persons per
square milel. Each person generates, on the average, 28 pounds
of garbage per week. These statistics reflect the high impor-
tance of a sound solid waste management program.
The purpose of this report is to provide the necessary
information to the City of Clearwater to insure that future
solid waste management decisions are made in a planned and
orderly manner. This report will propose solutions to several
existing collection and disposal issues, address resource
recovery, and provide guidelines to the general public and
elected officials concerning the proper and fiscally effective
rendering of solid waste management services.
Goals, Objectives and Policies
Overall Goal
e
Provide the most cost effective and efficient pro-
VISIons for removIng and disposing of solid wastes in order to
provide and maintain a healthy and clean environment.
Objective
Develop collection and transport strategies which
minimize costs and consider the use of optimally located waste
transfer facilities.
Policies
Collection serVIces shall not be extended to properties
outside the City's limits unless sufficient capacity exists to
serve the areas committed to City services, as well as the areas
proposed for service.
-
- 2-
Services shall not be extended except ln those areas
so designated for the City of Clearwater by interlocal or other
e
agreement.
Provide collection service to every residential and
commercial location with the Clearwater City limits and requlre
all residential and commercial entities within the City to sub-
scribe to the City's collection operation.
Evaluate collection routes so that transfer stations
may be strategically located for ease of collection and cost
reduction.
Objective
Provide sound fiscal management of the solid waste
disposal system.
Policies
Fees charged subscribers shall be adequate to cover
,..
system operating costs, repayment~ of capital costs, and allow
for repair and replacement of existing facilities unless other-
wise approved by the governing body.
Charges to each subscriber shall reflect the costs
incurred to service that subscriber.
Funds set aside for repalr and replacement shall not
be diverted to other uses.
Replacement of equipment shall be scheduled on basis
that permits a uniform replacement rate as opposed to irregular
capital outlays of substantial amounts.
Objective
Conserve, to the ~ax:~um
=:. yO-:- 0'" 1-
_.... _ '-'..J, l.,.
feasible,
:1atuT::.l
e
- .) -
resources used In the collection and resource recovery system.
Policies
e
Make every reasonable effort to utilize techniques
that conserve resources and minimize adverse environmental
impacts.
Develop a solid waste collection, disposal and
recovery system that will, to the greatest degree possible"
conserve energy and other natural resources,
Objective
Achieve effective coordination with other governments
to solve Droblems of an extraterritorial nature.
Policies
Participate In the Pinellas County Solid Waste
Disposal and Resource Recovery Program.
e
Coordinate and contract with other ~unicipalities
for transfer of solid waste from ~ource to transfer station
to resource recovery facility ln an efficient and environ-
mentally clean manner.
Inventory and Analysis
~ollection and disposal make up the functional
operations of the solid waste manage~ent system.
In the City
of Clearwater, the collection operation is conducted by the
Sanitation Division which is part of the Utilities Department.
The following system description was adopted and updated froe
the 1975 report Regional Solid Waste Study:
A Plan far Resour=e
Recovery by the Tampa Bay Regional Planning Council.
e
_ 1 _
..,.
Collection
e
The City Sanitation Division provides collection
serVIce to approximately 20,800 residential accounts with 17
routes, including one downtown route which is almost exclusively
commercial. The only collection services not provided by the
City are eighteen to twenty 30 and 40 yard roll-offs which are
contracted to private firms. Collection rates have been recently
raised for curbside residential service. Backyard collection
is provided at no extra charge to disabled persons; twice the
charge for curbside pickup is charged other customers wishing
backyard collection. Clearwater's residential collection rates
are lower than those charged by surrounding communities.
The City has 5~ day a week commercial service with
nIne frontend loader routes on Mondays and Fridays, and eight
routes on other days, Approximately 1,850 containers are
services from one to six daysper week as needed. All regularly-
collected containerized wastes are weighed. Containers are
weighed so that the efficiency of the system is maintained.
Collection routes are determined by the time and the amount
of work required. Work is measured by the tonnage which a
truck picks up. Weighing a truck will reveal its loading effi-
ciency. If a truck cannot load to its capacity, then the
hydrolic system or other mechanical adjustments may need
repaIrs.
e
Loose brush and trash are picked up and hauled to
to Toy town or C.E. Pierce land fill sites. Seventeen trucks
e
- 5 -
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make about one trip a week to the landfills with a full load
or less. On major construction projects the City permits
contractors to place open-top roll-offs on site. Other scrap
resulting from demolition, etc., must be hauled by the owner
or contractor. Junk, appliances, white goods and other bulky
items are picked up by City at curbside and hauled to Davis Pit
or Toy town. These services are provided upon request.
The total volume of waste collected requlres a minimum
of one truck load a day, five days a week. In early fall,
for one month, the City has held annual clean-up campaigns
and hauls heavy quantities of all kinds of materials to the
landfill. The annual campaign was not conducted last year
because it was felt that the everyday collection ~as operating
so efficiently that a month long program was not warranted.
Generally, the City exp~riences increased tonnage
because of tourism from January through mid-April. A second
peak is experienced In summer; October to December are the
lightest months due to the dry season and relative lack of
tourists.
e
Ninety-five percent of the waste collected lS either
res ide n t i a I (SOp e r C e n t ) 0 reo ffim ere i a 1 (4. 5 per c e n t), ( See
Figure 1). This percentage is determined by type of pick up
vehicle, not by source of generation. Dead animals
are picked up by the sanitation department on a call-in basis,
A red tide fish fill occurs every few years and the dead fish
are hauled to Toyto,m.
e
-6-
-.--.------- -------.---.-.----
.,
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Pinellas County does not and will not permit hazardous waste
disposal at the existing sanitary landfills or the resource recovery
facility when it is in operation. Hazardous waste disposal in Florida
is administered by the Department of Environmental Regulation (DER)
whereby hazardous waste generators must contact DER to obtain a permit
to dispose of the waste. The State is presently preparing enabling
legislation so that it has the legal authority to administer the
.hazardous waste regulations established by the United States Environ-
mental Protection Agency.
The City of Clearwater is presently working under state
and federal guidelines concerning hazardous waste collection and
disposal. Although large generators of hazardous waste do not
operate in Clearwater, the City is monitoring the actions of
small producers such as hospitals and doctor's offices. Con-
taminated materials at local hospitals. and doctor's offices are
compacted and incinerated on location. Radioactive material
waste is kept "in house" until such material is no longer radio-
active.1a
-6a-
Figure 1
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YEARLY AVERAGE WASTE GENERATION
(BY SOURCE)
e
COMMERCIAL
45 %
--
- 7 -
RESIDENTIAL
50 %
e
In fiscal year 1977-78 the City's Sanitation Division
collected 36,000 tons of residential solid waste and 32,400
tons of commercial solid waste. The remainder of the 72,000
tons consisted of brush and white goods. Projections for
fiscal years 78-79 are approximately 75,000 tons of solid waste,
which is an average of 1440 tons per week.
Based upon population estimates and collection tonnage,
the average citizen of Clearwater produces 4.26 pounds of solid
waste per day. Clearwater's average waste generation figure is
below national average estimates of 5.25 pounds per capita per
day. Projections of tons per day, week, and year until 1995 are
illustrated in Table 1
Disposa12
e
Solid waste collected in the City of Clearwater is
deposited at the Toy town sanitary landfill. Toy town is located
eight miles south of the Clearwater City limits as illustrated
on Plate I. The City IS seven years into a ten year contract
with St.Petersburg for use of the Toy town landfill. St.Petersburg
leases the 400 acre site from Pinellas County, The landfill has
complete leachate control facilities, monitoring wells and scales,
The estimated remaining life of the Toy town landfill operation is
approximately 3 years.
Prospects for continuing the contractual arrangement beyond
its current period are good, since St.Petersburg has purchased 300
acres near Toy town for use as an emergency disposal site. However,
the regulatory mandate of the City's participation with Pinellas
-
- 8 -
e
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Table I
PROJECTED SOLID WASTE GENERATION
City of Clearwater
DAY WEEK YEAR
POPULATION (TONS) (TONS) (TONS)
1980 114,053 242.9 I ;7 0 5 . 2 88,670.5
1985 120,389 256.4 1,799.9 93,596.4
1990 127,874 272.3 1,911.8 99,415.6
1995 137,171 292.1 2,050.8 106,643.6
1Source: P.C.P.D.
24.26 lbs./Capita/Day
Source: P.C.S.W.E. & R.R.E.S.R.
e.
- 9-
Plate I
DISPOSAL.
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SOLID WASTE
FACILITIES
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. CLEARWATER TRANSFER STATION
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* TOnOWN SANITARY lANDFill
* FUTURE RESOURCE RECOVERY SITE
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- 10-
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County in the resource recovery program prohibits against continuing
landfill as it is currently practiced.
Prior to 1971, solid waste collected In Clearwater was
burned at a City owned incinerator located on Russell Street.
Incinerator residue was deposited in a City-owned landfill. The
incinerator was closed because of environmental and operational
problems. A transfer station for solid waste collection was
opened when the incinerator was closed. The transfer station
compacts solid waste and loads it onto tractor-trailers for trans-
port to the landfill. Transfer station equipment includes two
stationary compactors with IO feet by IO feet push pits, five
tractors and six trailers, The station is located adjacent to
railroad tracks in east Clearwater and could be modified for rail~
haul.
e
Toy town is located near the St.Petersburg-Clearwater
International Airport, and also near Tampa Bay. Flocks of seagulls
and other birds attracted to the ~te pose an aviation hazard.
Water pollution from leaching of storm water through waste is
another potential hazard which requires strict control. In addition
to environmental hazards, economic awareness is also working
against continued landfill operations. Solid waste is increasingly
being viewed as a resource. As the technology of resource recovery
becomes further refined, and the shortage of non-renewable resources
(land and fossil fuels) becomes recognized, it is inevitable that
steps toward resource recovery will be taken.
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- I I -
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Existing Conditions and Regulations
Until recently, solid waste disposal has basically
consisted of sanitary landfills, incineration or dumping at sea.
Environmental legislation and urbanization have all but eliminated
historical methods of solid waste disposal. Legislation has been
enacted at every level of government controlling and regulating
disposal operations, many times causing higher costs of operation.
Federal
e
At the Federal level, Congress passed Public Law 94-580
In 1976. This legislation, the Resource Conservation and Recovery
Act, (RCRA) amended the Solid Waste Disposal Act. The Act encou-
rages new and improved methods of solid waste recovery and manage-
ment practices. Financial and technical assistance for developing
new procedures and practices is also included in the Act. In order
to receive federal assistance and funding, a statewide solid waste
plan is required. The state plan must be approved by the United
States Environmental Protection Agency and must; (1) identify
responsibilities of state, local and regional authorities in
carrying out the plan; (2) indicate the distribution of federal
funds; (3) specify the strategy for solid waste planning; (4)
prohibit the establishment of new open dumps; (5) require that all
non-hazardous wastes be utilized for resource recovery or be
disposed in a sanitary landfill; and (6) provide a basis for the
regulatory authority which will be required to implement the
program(s).
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- I 2 -
State
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On the state level, the Resource Recovery and Management
Act was passed by the Florida legislature in 1974. The state law
enabled the Department of Environmental Regulation to develop a
statewide resource recovery and management program. After the state
program was adopted, all counties and cities were required by
legislation to develop local solid waste management and/or resource
recovery plans.
Regional
e
The Tampa Bay Regional Planning Council is responsible for
regional planning and technical assistance. In 1975, TBRPC adopted
the Regional Solid Waste Study: ~ Plan for Resource Recovery which
analyzed solid waste collection and disposal systems in the region.
The study has been used as a guide for sub-regional solid waste
management planning.
Local
Pinellas County was glven the authority to develop and
implement a solid waste management and resource recovery system
und~r a state law passed in 1975. The act gave the County several
regulatory powers. These pOHers are: (I) secure a resource
recovery system for the County; (2) operate or contract for the
operation of a resource recovery system; (3) require the use of these
facilities by residents of the County; (4) prohibit the operation
of competing solid Haste disposal systems by other governmental
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-13 -
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authorities In the County; (5) finance and collect fees to own
and operate the resource recovery system, and (6); of utmost
importahce, require the use of the resource recovery system by
all municipalities in the County. Thus, the City of Clearwater
is obligated to participate in the Pinellas County resource
recovery operation.
A technical advisory committee was established under the
guidelines of the County Act. This committee, along with consult-
ing engineers, developed resource recovery system guidelines and
requested proposals from private firms to implement the system.
In January, 1979 the Board of County Commissioners, upon the advice
of the technical management committee and consulting engineers,
selected Universal Oil Products (UOP) to construct and operate
the resource recovery facility. Date of completion will be 1982.
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Costs
Sound management practices indicate that rates should
reflect the costs of operation. This can be done by either raising
rates or lowering costs, or both. Indications are that as new
equipment is purchased, residential collection can be converted to
an "automated. system that requires one collector per vehicle
instead of the three presently required. This system, utilizing
automated arms to lift and deposit refuse in the truck from a
special curbside container, would require only one operator at a
central control panel. Although the capital costs would be higher
than those for present equipment, long-term savings would be
achieved through reduced labor requirements.
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-14-
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Unfortunately, savings due to a decrease in collection
labor requirements are likely to be eclipsed In a few years by
increases in the cost of disposal. The City is bound by state
legislation (the Pinellas County Solid Waste Disposal & Resource
Recovery Act of 1975) to participate in a County-wide disposal
program. Resource recovery is a major goal of the County program
with sanitary landfills receiving only the inert lower-volume,
low-value residue of whatever recovery process is chosen.
The County investigated new systems which utilize the
latest advances in solid waste disposal and resource recovery.
The analysis has been conducted and the technology applied will
result in combustion to generate electricity from steam. In
addition to energy recovery, resources such as ferrous scraps,
aluminum, heavy non-ferrous metals and an inert aggregate
suitable for road beds and other construction applications will
be recovered.
Gross costs of this system are likely to be $20 to $30
per ton of solid waste processed, based on a $70 to $100 million
capital investment. Costs recovered from the use and sale of
energy and resources could lower final costs to $10 to $12 per ton.
All municipalities and private collectors will pay a "tipping fee"
or rate per ton for disposal at the facility.3 The impact on the
individual customer should be less than a dollar per customer per
month,
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Alternatives
e
While resource recovery is a vital national goal con-
sidering the declining abundance and rising costs of energy and
resources, the technology of solid waste processing for energy and
-15 -
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resource recovery 1S ln its infancy. Supporters point out that
rising costs of energy and resources make recovery more feasible,
but these same cost increases also directly affect collection and
transfer. Although large, centralized systems may more quickly
create markets for energy and recovered resources, they are more
costly to operate because of a community's commitment to greater
haul distances. In the near term, the most obvious option for
the City of Clearwater is to continue disposal at the Toy town
Sanitary Landfill. Clearwater's contract is directly with
St.Petersburg, and would allow three more years of disposal at
the present operation. Continued landfill should be considered,
at best, an interim operation, since Toy town's life expectancy
as a landfill terminates in 1982.
The railroad adjacent to Clearwater's transfer station
could be used to either transport compacted solid waste to a
large regional facility, or (which .is less likely) to an approved
landfill outside the urbanized Tampa Bay area. Another option
would utilize the tranfer station site as the location of a
resource recovery process which would serve the northern half of
the County.
Other options include production of hot and chilled
water for building air condition using the transfer station site
or the old City incinerator site. Unforturnately, Clearwater
does not have the volume of users to justify such a system.
Transfer of waste to a water-wall combustion unit at the site of
the old incinerator could become feasible if a four-lane road
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-16-
,_ .. "'.._,-'- ~..__~r._....__ _.- _.,_- _~...___ "-",,,,,"'-,, ....._..---~~,--. .__.
IS built nearby. All of these options have met with negative
e
reactions because of logistical, environmental, and/or economical
problems.
Traffic levels in the residential neighborhood sur-
rounding the City's incinerator and sewage treatment plant were
a major complaint during the period of operation of the incinerator.
Technological advances in solid waste, water-wall combustion SInce
the facility was closed in 1971 have nearly eliminated stark
emissions and have increased the efficiency of relatively small
combustion plants.
Unfortunately, the City has found it unjusti-
fiable to consider the City's existing incinerator a viable alter-
native.
Clearwater has investigated and will continue to investi-
gate the financial feasibility of alternate systems by requesting
proposals from various manufacturers and suppliers inconjunction
with the Countywide system.
e
As previously discussed, the City of Clearwater is under
mandate to participate in the Pinellas County Resource Recovery
System.
Since the City does not have a more economical or practical
alternative available for disposal of solid waste, it should work
closely with Pinellas County and the City of St.Petersburg in the
resource recovery options.
Although Clearwater does not have many alternatives
available for disposal, the Sanitation Division lS testing a ne\~
collection process.
In order to keep revenues and expenses as
close together as possible, either rates will have to be increased
or expenses decreased, Since the resource recovery alternative
will probably raise rates approximately one dollar, the new collectior
system has the possibilityof saving SlO million over the next 10
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-17-
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--~ -_-.-,~-_-..-._~-~._'--,._- ~..~_. -- -....- . --.- --.--.--
years In labor cost alone.4
The new collection program being tested by the
Sanitation Division involves phasing out vehicles which requIre a
two or three man operation. The two or three man system will be
replaced by one man collection vehicles. Garbage is deposited in
90 gallon containers with wheels as opposed to the normal 30 gallon
containers. The containers will be provided ~y the City and will
have a 10 year life expectancy. This system allows the vehicles to
be positioned near the collection container which is lifted onto
the compacting area of the truck, then repositioned and released
at curbside. The operator would not have to disembark from the
vehicle during the entire operation. The advantages of this
system to the City are: improved efficiency by eliminating the
manual emptying of the containers, reduced customer complaints
about damaged cans, improved health and safety conditions for
employees, and reduced manpower needs. There are also advantages
of the one-man system to the customer, They are: the elimination of
the expense of bags or less durable cans, the reduction of Ii tter
and spillage, the elimination of garbage-can lid loss, the
r~duction of damage to the cans themselves, and the reduction
of chances for rodents and other animals to enter the refuse
containers. Larger containers on wheels provide easy transfer
to curbside and allow for disposal of most brush and yard
clippings without bundling. The containers will also provide a
more attractive and cleaner neighborhood on collection days,S
- IS -
. Recommendations
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Overall, the Sanitation Division operates an efficient
and organized public business. Routes are constaintly evaluated
for performance and timing. Vehicles are maintained and replaced
in an orderly manner. Cooperation between Clearwater, St.Petersburg
and Pinellas County is maintained to ensure the exchange of new
and improved methods of solid waste collection and disposal.
The City of Clearwater is currently resporisible for the
disposal activity. Pinellas County will be responsible for disposal
of all solid waste in the County once the resource recovery facility
1S built. The following is a discussion.of recommendations for the
collection system and a description of the proposed resource recover)
system.
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Collection
Efficient routing, minimizing collector movement, reducing
labor costs,and providing for up-to-date equipment continue to be
the top priorities of the Sanitation Division. The Division should
continue to evaluate and monitor collection practices. Existing
mechanisms to resolve service inequities or low service levels
should be continued. A system of resource allocation such as a
Collection Management Information System should be maintained.
The Division should continue the trial examination of the
one-man, automated collection system. If favorable user response
continues, the system should be implemented throughout the City.
Equipment should be replaced to facilitate the implemention of the
tit
one-man automated collection system.
-19-
With rising energy costs and the gasoline supplies becoming
shorter, the City should examine the possibility of once a week
e
pick-up.
If the new collection system were implemented, once a
week pick-up could reduce costs, save energy, and still maintain an
acceptable level of service.
Disposal
The City does not maintain or operate a disposal system.
Clearwater will deposit its solid waste at the Toy town Landfill
until the Countyrs new resource recovery facility is completed, As
discussed previously, the County is responsible for planning,
financing, constructing, and operating an energy and resource
recovery facility in order to dispose of the solid waste generated
ln Pinellas County.
e
Pine lIas County 15 contracting with Universal Oil Products,
Inc., to design, construct, and opeTate the resource recovery plant
for 20 years. UPO, Inc., guarantees the capacity of the facility
and will receive fees to operate the plant. The plant will be
located at the Pinellas County sanitary landfill site at 34th
Street and ll8th Avenue North as illustrated on Plate 2 The
site consists of approximately 400 acres of which 40 acres will be
required for the facility. The remainder of the area will be used
for residue landfilling and a back-up disposal area. A location
map is illustrated on Plate 3
and a site diagram is illustrated
on Plate
.1
~
Initially, the facility Hill recelve between 330,000 ana
370,000 tons of solid waste per year (a capacity of 728,000 tons/
-
-20-
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- 22-
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-
-23-
--
year will be provided). Of the 530,000 to 570,000 tons processed
by the facility it is anticipated that less than 3 percent will
ultimately have to be .landfilled. This substantial reduction ln
the waste tonnage represents a corresponding volume reduction
and, therefore, a similar savings in the amount of land annually
consumed by landfilling operations.
As part of the waste disposal program, the plant will
generate a minimum of 262 million kilowatt hours of electrical
energy per year (based on the guaranteed tonnage of 530,000 ton
per year and 495 ~VH per ton net output) which can be related to
a reduction 1n the use of crude oil of 742,000 barrel per year.
In addition to providing electrical energy, reducing the. require-
ment for imported oil, and the recovery of processed resources,
these converted reSources will genera te revenues which will be
e
applied to offset the overall cost of owning and operating the
facility. Not only will the resource recovery facility produce
energy, recover materials, and reduce land requirements, but it
will also have the following other advantages:
1) Eliminates the need for daily cover fill.
2) Reduces the odor and visual unattractiveness of
existing landfill operations.
3) Reduces the number of birds in the area which cause
flying hazards in the vicinity of the St.Petersburg-
Clearwater Airport.
4) Reduces the population of rodents which inhabit
existing landfill operations.
The City of Clearwater should continue to evaluate its
present system, convert its collection system to a less labor
intensive method, and support the Pinellas County Resource Recovery
--
System.
.2:+ -
e
It must be stressed that future solid waste management
activities shall be conducted ln an environmentally sound manner.
The development of a cost-effective resource recovery program, is
a recognized, ultimate, long term goal of Clearwater's solid waste
management program. The City should work closely with Pinellas
County in realizing the goal of an efficient resource recovery
program. Resource recovery, however, will not address all of the
City's solid waste management needs. Other critical concerns
include collection, transport, disposal, and budgetary allocation
to each of these items. Solid waste management shall also be
addressed within the framework of land use planning. Historically
a reactionary municipal service, solid waste planning must antici-
pate future waste generation with geographic City sub-sectors
scheduled for changes or intensification of land use.
The City should continue to monitor the minor hazardous
waste activities within Clearwater. A coordinated effort should
be initiated between the City, County and the Florida Department
of Environmental Regulation to establish procedures and site for
the collection and disposal of hazard waste material.
e
e
-25-
Faa T NOT E S
e
1. Pine11as County Planning Council, Population Estimates.-
1970-1979 (Clearwater, Florida: Pinellas County Planning
Council, 1979), p. 4.
la. Telephone Conversation with Mr. Dollhouser, Hor!~p Plant
Hospi taL
2. Selover, John, Interview Superintendent of Clearwater
Sanitation Division, April 4, 1979.
3. Hemingson, Durham and Richardson, Application of Power Plant
Siting Certification, Pinellas County, Florida (Clearwater
Florida: Hemingson, Durham and Richardson, 1978), pp. 7.6-
7.11.
4. Selover, John, Interview Superintendent of Clearwater
Sanitation Division, April 4, 1979.
5. Ib.id.
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-26-
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BIB L lOG RAP H Y
.
Acenbrack, D.F. nTools and Team Expedite Resource Recovery Project,U
Public Works, Magazine. Ridgewood, New Jersey, October, 1978.
City nf St.Petersburg Planning Division. St.Petersburg Solid Waste
Element of the Comprehensive Plan. St.Petersburg: City of
St. Petersburg, June, 1978.
Henningson, Durham and Richardson. A for Power Plant
Certification, PinellasCounty, FlorIa. Clearwater, FlorI a:
Henningson, Durham and Richardson, October, 1978.
Henningson, Durham and Richardson. Solid Waste Energy and Resource
Recovery for Pinellas County, Florida. Clearwater, Florida:
Henningson, Durham and Richardson, May, 1976.
Pinellas County Board of Commissioners. "The Pinellas Solution to
Garbage," Pamphlets published by Board of County Commissioners,
August, 1978.
Tampa Bay Regional Planning Council. Regional Solid Waste Study: A
Plan for Resource Recovery. St.Petersburg, Florida: Tampa Bay
Regional Planning Council, June, 1975.
Tampa Bay Regional Planning Council. Regional Solid Waste Management
and Resource Recovery Study - Phase II. St.Petersburg, Florida;
4It Tampa Bay Regional Planning Council, February, 1976.
Universal Oil Products. Proposal for scilid Waste Resource Recovery
Program for Pinellas County, Florida. Des Plaines, Illinois;
Universal Oil Products, November, 1977.
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APPENDIX B:
INTERGOVERNMENT AL
COORDINA TION
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INTERGOVERN~ffiNTAL COORDINATION
Federal regulation of the coastal zone has increased
dramatically since the last half of the 1960's in the fields
of environmental quality and energy facility siting. The
increase in federal activity was due to the fragile nature of
the nation's coastal zone and the intense conflicts which were
occurring there. In 1972, Congress passed the National Coastal
Zone Management Act and amended it in 1976. The Coastal Zone
Management Program is charged with the responsibility to "pre-
serve, protect, develop, and where possible restore or enchance
the resources of the nation's coastal zone."
This concern regarding the rapid growth and impact of
development on coastal areas was shared by officials at federal,
state, and local levels of government and prompted various
pleces of legislation creating agencies and programs aimed at
providing appropriate planning and management in the coastal
zone. As a result of increased activity, more federal agencles
have become involved with coastal issues including the Commerce
Department, Department of the Interior, Environmental Protection
Agency, Corps of Engineers, Coast Guard, Office of Coastal Zone
Management, Forest Service, Department of Transportation, and
the National Oceanographic and Atmospheric Administration.
Despite this substantial federal activity, the states through
their police powers retain control of critical policy matters.
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.Federal and state laws prohibit certain activities unless
authorized by permit. These laws include: the River and Harbor
Act of 1899; the Federal Water Pollution Control Act Amendments
of 1972; the Marine Protection, Research and Sanctuaries Act
of 1972; and Chapters 161, 252, 258, 370, 373, 380 and 403 of
the Florida Statutes. In addition, other laws are directly
related to the procedures for processing permit applications.
FEDERAL
The Coastal Zone Management Act passed by Congress in 1972
and amended in 1976 designated the Office of Coastal Zone Manage-
ment of the National Oceanic and Atmospheric Administration under
the U. S. Department of Commerce as the administering agency.
The act provided funds on an 80 percent federal to 20 percent
state matching basis for development of individual state coastal
zone management programs. The act allowed a state four years of
funding to develop its management program. Upon' federal approval
of a state's programs, the state is eligible to receive funds to
implement its management programs. While coastal zone management
responsibilities ~ ~ were formalized within the office of
Coastal Zone Management, a large number of federal agencies are
involved with permitting and program implementation in coastal
zone areas.
The U. S. Forest Service is involved in woodlands and
watershed management within the coastal zone, with the Soil
Conservation Service contributing efforts toward maintaining
soil stability and hydrologic management. From the Department
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of Commerce, the National Marine Fisheries Service is involved
in the determination of the impact of man's activities on
marlne life; the National Oceanic and Atmospheric Administra-
tion is likewise involved in studying the effects of human
activities on aquatic life forms. The U. S. Coast Guard
regulates bridges and navigation in coastal waters, and the
Army Corps of Engineers is responsible for approving dredge
and fill permits and maintenance of beach conditions through-
out the United States. In the Department of the Interior, the
Bureau of Sport Fisheries and Wildlife is intimately involved
with the preservation of marine and upland species, while the
National Parks Service and the Heritage Conservation and
Recreation Service are concerned with development of
recreational opportunities in the coastal zone. The Geological
Survey provides a valuable research function by studying the
geological formations of coastal areas, studies of flood prone
areas, stream flow and water quality resources studies. The
Environmental Protection Agency plays a major role in protecting
both the air and water quality of the coastal zone. The
major coastal zone management activity of the Departnent
of Transportation is its requirement of environmental impact
statements for transportation projects either involving federal
funds or crossing navigable waterways.
In 1968, Congress passed the National Flood Insurance
Program which was designed to provide flood protection to
property owners who were not able to acquire coverage from
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private companles. Local governments were encouraged to enact
flood plain zoning, subdivision regulations, etc., that would
reduce the number of persons and structures located in flood
prone areas. In 1973, the Federal Government refined the
program by instituting two major requirements. They were:
(1) any property owners in communities where flood insurance
is being sold were required to purchase flood insurance to be
eligible for any new or additional Federal or federally related
financial assistance for structures located in areas identified
by HUD as having special flood hazards, and (2) all communities
identified as having flood prone areas were required to enter
the program or become ineligible for federally-related financing
for projects that would be located in identified flood hazard
areas.
The City of Clearwater is participating in the Flood Insur-
ance Program. Flood prone areas of Clearwater have been identi-
fied on Figure 22. These include both Federally-recognized
hazard zones and locally-determined flood prone areas. The
Federal flood district designations are currently undergoing
reVIew, and some minor adjustments to mapping and flood hazard
elevation requirements are expected.
Finally, the Department of Energy monitors onshore and off-
shore energy explorations so that ecological and environmental
concerns may be protected.
STATE
In 1970, the Florida Legislature created the Coastal Zone
Coordinating Council. The primary functions and duties of the
Council were to:
1 .
"develop a comprehensive state plan for the protection,
development, and zoning of the coastal zone, make maxi-
mum use of any federal funding for this purpose".
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FIGURE
22
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~~~"'"''''''''''''''''lmr''''"""f,,,,,,,,;''''''''' ""'~""
~ i i ;~~~f1tC:t ,,''''''''''
l';j N N ~~!~
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2. "Conduct, direct, encourage, coordinate, and organize
a continuous program of research into problems relating
to the coas tal zone".
3. "review, upon request, all plans and activities pertinent
to the coastal zone and provide coordination in these
activities among the various levels of government and
areas of the state".
4. "provide a clearing service for coastal zone matters
by collecting, processing, and disseminating pertinent
information relating thereto". 1
The 1975 Legislature abolished the Coastal Coordinating
Council and transferred its duties and functions to the Depart-
ment of Natural Resources. New legislation in 1977 transferred
these powers and duties to the Department of Environmental
Regulation and added two additional mandates:
1. "The state coastal zone management plan ... shall
con tain a boundary, policies, goals, and programs
necessary to comply with the requirements of the
Federal Coastal Zone Management Act of 1972 ...
specifically delineating the role of state, regional,
and local agencies in implementing the plan, and
2. shall provide that the appeal of any regulatory
decision, other than those provided for by existing
law, shall be to the Governor and Cabinet". 2
1 ~ureau of Coastal Zone Management, Florida Department of
Environmental Regulation, Florida Coastal Management of Program
Legislative Draft October, 1978, (Tallahassee, Florida, 1978).
2 Ibid.
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A continuing demand upon the coastal areas of Florida
for commercial and economic development, tourism, recreation
and residential development prompted the Florida Legislature
in 1978 to pass the Florida Coastal Management Act. The Act
stated that "the coastal ione is rich in variety of natural,
commercial, recreation, ecological, industrial, and aesthetic
resources of immediate and potential value to the present and
future well-being of the residents of the state which will be
irretrievably lost or damaged if not properly managed". The
Act establishes a coastal management program based on existing
laws and authority to protect, maintain, and develop these
resources, and calls for coordination among state, regional
and local officials and agencles.
The following is a brief description of state agencies
which have major responsibilities for coastal zone matters.
Department of Environmental Regulation (DER)
The Department of Environmental Regulation (DER) was created
by the Florida Environmental Reorganization Act of 1975. The Act
combined the functions of the Department of Pollution Control,
Trustees of the Internal Improvement Trust Fund, and selected
appropriate functions of the Department of Natural Resources
relating to environmental protection.
All State-owned submerged lands are held in trust and are
administered by DER through the Trustees of the Internal Improve-
ment Trust Fund. The submerged lands boundaries were established
by state law and defined as the coastal construction line formally
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known as the bulkhead line. The Coastal construction line is
designated statewide at the mean high water line. No person
or agency shall excavate or construct any structure within
fifty feet of the mean high water line at any riparian coastal
location fronting the Gulf of Mexico or bayous, creeks and
passes. A variance of the setback requirements or any dredge
and fill action to be carried out by upland property owners
of their riparian submerged lands may be authorized by the
Department of Natural Resources through DER. Specific criteria
and procedures are established by both departments in evaluating
such requests.
Any coastal county or coastal municipality may establish
coastal construction zoning and building codes provided such
zones and codes are approved by DER as being adequate to protect
the shoreline from erosion and safeguard adjacent structures.
DER enforces State air and water quality regulations, and
regulates the operation of liquid and solid waste disposal
systems. Any project which may degrade water quality must have
the Department's certification over and above all other permits.
DER collects data on air and water quality during the course of
its normal research and enforcement activities. Further, this
agency cooperates with other State agencies in reviewing major
development proposals located within the coastal zone. DER also
houses the Bureau of Coastal Zone Planning, a prlmary reviewing
agency for CZM plans under the LGCPA. This bureau is also
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charged with the responsibility of coordinating state CZM
planning with the Federal CZM programs. The BCZP replaced
the old Coas tal Coordinating Council whi ch ini t ia ted. the
coastal zone planning activities in Florida.
Department of Natural Resources (DNR)
The Department of Natural Resources (DNR) has the legis-
lative responsibility under Chapter 161, Florida Statutes for
establishing coastal construction setback lines on a county
basis along the sand beaches of the state fronting on the
Atlantic Ocean and the Gulf of Mexico. The construction set-
back lines are determined only after comprehensive engineering
studies and topography surveys have been conducted. Public
hearings are held to solicit public input in establishing the
setback lines.
The DNR works closely with the U. S. Corps of Engineers
in erosion control and beach restoration projects. Beach
erosion has become a serious menace to the economy and general
welfare in coastal areas. The DNR through legislative authority
has the jurisdiction to refurbish eroded beach if the beach
sought to be nourished or restored has been or will be destroyed
in the immediate future if corrective actions were not taken.
Surveys are conducted to establish the quantity and type of
restoration. Upon completion of the survey depicting the area
of beach to be restored, an erosion control line is established.
An erosion control line is that area defined to closely approxi-
mate the coastal construction setback line had the erosion n~t
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occurred. Once the erosion control line along any segment of
the shoreline has been established, title to all lands seaward
of the erosion control line shall be deemed to be vested in
the state and title to all lands landward shall be vested in
the upland owners whose lands either are adjacent to
the erosion control line or would have abutted the line if it
had been located directly on the line of mean high water.
The Department of Natural Resources further plans for the
wise utilization and conservation of the State-owned water
resources throughout the State, with special emphasis on the
salt water contamination of fresh water supplies in the coastal
zone, promotes economic development of salt water resources;
enforces salt water fish and shellfish regulations, prepares
hydrologic and geologic studies of the coastal zone, and
conducts ecological surveys for dredge and fill proposals
submitted to the Department of Environmental Regulation.
Game and Freshwater Fish Commission
In the field of coastal zone management, the Game and
Freshwater Fish Commission has a more limited function than
the Department of Natural Resources. It coordinates with the
Department of Natural Resources in preparing ecological surveys
of estuarine areas and manages fish and wildlife areas in the
coastal zone.
Florida Division of Forestry
This division of the Department of Agriculture and
Consumer Services has two main coastal zone management activities,
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although the agency is not primarily oriented toward coastal
matters. The DOF manages extensive woodlands and many critical
watersheds in the State's coastal zone. It also conducts
research applicable to beach stabilization, urban landscaping
and mangrove reforestation. Furthermore, it conducts tree
farming and experiments with exotic lumber species in coastal
zone portions of south Florida.
Department of Veterans and Community Affairs
Formerly the Division of the State Planning, the Division
of Local Resource Management is one of the more important
divisions within the Department of Veterans and Community
Affairs. This agency plays a key role in implementing the Florida
Environmental Land and Water Management Act of 1972 through
determination of "areas of critical State concern" and defining
the guidelines for "developments of regional impact." In addi-
tion, the Division of Local Resource Management serves as the
State clearinghouse for review of public projects specified
under Circular A-95 of the Federal Office of Management and
Budget. The former Division of State Planning was the key agency
that established a statewide system of planning regions, speci-
fied under the Statewide Comprehensive Planning Act of 1972
which has resulted in the development of the State Comprehensive
Plan. This plan was adopted as "advisory in nature" by the
1978 Florida legislature. One of the most important roles of this
agency is the coordination of functional planning by other State
agenCIes under an integrated planning-programming-budgeting system.
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The most important role of DLRM, however, is that of en-
forcing and implementing the Local Government Comprehen-
sive Planning Act of 1975. DLRM reviews all coastal zone
protection elements of local comprehensive plans as well
as all other plan elements mandated by the 1975 Act.
In addition to the functions of the DLRM, DVCA co-
ordinates the federal "local planning assistance program"
which passes funds to local governments, allocated under
Section 701 of the National Housing Act.
Florida Department of Commerce
The Marine Science and Technology section of this
agency guides the economic development of marine-oriented
industries and products throughout Florida.
RE G ION
The Tampa Bay Regional Planning Council (TBRPC) has
been involved with coastal zone planning for. four counties
(Pinellas, Pasco, Hillsborough and Manatee) and some
muncipalities within the region since 1974. In that year
TBRPC established both a Technical Advisory Committee and
a Citizens Advisory Committee with the objective of
establishing regional CZM policies and coastal areas of
particular concern for inclusion in the statewide plan
being prepared by the Bureau of Coastal Zone Planning.
The City of Clearwater has been well represented on both
of these committees.
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The culmination of the efforts of these committees and
the TBRPC staff resulted in a set of policy recommendations
for coastal zone management that were published on September
30, 1976. These detailed policy recommendations were to
have been included in TBRPC's growth policy document en-
titled, "Future of the Region", however, only selected poli-
cies of a general nature were recommended by TBRPC staff
for inclusion in this document.
TBRPC is actively planning for coastal zone areas through
their designation as a regional clearinghouse under A-95
Review process, the Development of Regional Impact review,.
and the LGCPA review of planning documents in the region. In
addition, TBRPC is also preparing a regional hurricane evalu-
ation plan.
COUNTY
The Pinellas County Planning Council and the Pinellas
County Board of County Commissioners have both been involved
In CZM planning.
The Pinellas County Planning Council (PCPC) IS authorized
under Chapter 73-594, Florida Statutes, to develop a county-
wide comprehensive plan and overall development policy document.
The Pinellas County Plan has been defined by the PCPC to be the
Countywide comprehensive plan called for in Chapter 73-594.
The PCPC has been designated as the countywide Local Planning
Agency (LPA) authorized under the Local Government Comprehensive
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Planning Act of 1975. All Pinellas County General Plan elements
are designed to provide countywide and multi-jurisdictional
policies that are to be administered by the PCPC. The PCPC
is governed by elected officials representing the County
and its twenty-four municipalities. The PCPC and the
Pinellas County Board of County Commissioners are supported
by a joint planning staff which has been involved in CZM
planning and regulation.
Shortly after TBRPC presented its CZM policy recommen-
dations, Pinellas County likewise published a set of CZM
policies and designated areas of concern addressing issues
at the county level. A Citizens Advisory Committee had been
formed six months prior which has as its responsibility, the
reVIew of technical data prepared by the staff of the Planning
Department. The City of Clearwater was represented on the
Citizens Advisory Committee. These policies ultimately became
guidelines for the development of the County's Conservation
and Coastal Zone Management Element adopted by the PCPC on
April 18, 1979.
Although countywide In scope, the Pinellas County
Conservation and Coastal Zone Management Element will not
supersede this plan for the City of Clearwater. It is primarily
designed for the unincorporated areas of the County. Where
appropriate, the County's plan, policy recommendations, and
data base have been utilized in the preparation of this plan.
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The Board of County Commissioners established the Pinellas
County Water and Navigation Control Authority under Chapter
31182 Special Acts in 19S5. The Authority has the power to
regulate and exercise control over the dredging and filling
of all submerged bottom lands ln the waters of Pinellas County
to include islands, sandbars and swamps. Any dredging, fill-
ing, extending lands or constructing islands requires a per-
mit from the Authority, which can be issued only after a public
hearing on the application. The Authority is composed of the
duly elected members of the Board of County Commissioners.
The Board of County Commissioners also has the power to
review local zoning changes throughout the County in connection
with annexations. The Board has the authority to overrule the
decision of the annexing municipality and to make their zoning
decision binding for a period of up to two years. The Board
control has the indirect effect of dictating land use in muni-
cipal areas. However, local jurisdictions do not have the
reciprocal privilege of contesting county rezoning decisions
in county areas which are adjacent to City coundaries.
MUNICIPAL
The primary objectives of coastal zone management at the
local level are to provide an added dimension to the City's
overall urban planning program, while enabling more environ-
mentally conscious decisions to be made regarding the use of
the coastal zone. To be effective, municipal shore zone
management programs cannot impose an added layer of govern-
ment on local citizens. They must work within the existing
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governmental authority and legal capabilities. Coastal zone
management at the municipal level must embrace all facets of
the community's comprehensive urban planning program and the
municipality's general management operations. This program
must demonstrate a clear utility to all elected and appointed
officials in order to accomplish its objectives.
Unlike coastal zone management programs at the regional
or statewide scale, the municipal program must be concerned
with a set of management tools which can be most effectively
employed. In fact, many of the normal implementation tools
for the municipality's comprehensive plan (zoning, subdivi-
sion review, public improvement programs, capital budgets, etc.)
can be effectively brought to bear on the solution of coastal
zone problems. Other management tools such as coordinated
control and upgrading of waste treatment systems can be brought
about by intergovernmental agreements between the muncipality
and neighboring jurisdictions.
There are several instances where direct local control
over waters and shorelines is exercised. A permit must be
obtained from the Building Department before a seawall,
dock, pier, or other marina structure of any nature can be
built within the City. The City Charter reqUIres a public
hearing before the City Commission and approval at referendum
for all dredging or filling in excess of 4,000 cubic yards
below the mean high water line except In cases reqUIrIng
maintenance or emergency dredging. In addition, provisions
in the City's Zoning Ordinance are specifically directed at
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preservlng vistas across intervening properties to the water,
and the City's AL (Aquatic Land) zone, applied to estuarine
lands and shorelines, essentially prohibits incompatible
development.
While the general planning process in coastal zone
management remains the same as that used in preparlng a typi-
cal community plan, this process requires a strong base ln the
biological and physical sciences. It also requires that
consideration be given to problems which are generated outside
the municipality and must be attacked on a multi-jurisdictional
basis. Finally, the process must be used with the clear under-
standing that it is not normally possible for a municipality
to establish a comprehensive coastal zone manag~ment program
on its own. However, there are clear advances which can be
made by actively managing coastal resources at the level of
government which is closest to the people.
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APPENDIX C:
HISTORIC AND
CULTURAL RESOURCES
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A HISTORY OF CLEARWATER BEACH
By Michael L. Sanders
Clearwater Beach is an old yet new place. Its "historic" period was initi-
ated with the "di scoveryll of Tampa Bay by Panfil 0 de Narvaez on April 15.
1528. Although the exact point of landing has been a subject of debate for
years, there is reason to believe the Spanish visited Clearwater Island at
some point in their expeditions. A 1904 Philadelphia Academy of Science
excavation turned up Spanish artifacts in the area of the Carlouel Yacht
Club. An excavation on a nearby island to the north revealed Indian acti-
vity but the Academy found nothing on1Clearwater Island to substantiate any
habitation of the island by Indians. '
History shows that Clearwater Key, as it was referred to in an early Hi11s-
borough County map, probably remained unmolested until the end of the 2
Seminole Indian Wars when the Armed Occupation Act of 1842 was made law.
The act allowed 160 acres of land to be granted by the government to any
head of a family or single man over 18 who was able to bear arms providing
he resided on the land for five consecutive years in a house fit for habi-
tation and cultivate at least five acres. James Stevens and Samuel Steven-
son were the first to take advantage of this homesteading act in Clear
Water Harbor with Stevens settling on the old Fort Harrison site. The fort
was built in 1841 as an outpost encampment for soldiers stationed at Fort
Brooke (now Tampa).
Picnics and recreation probably provided the first use of Clearwater Island.
An original survey of 1844 shows a boat dock in front of Fort Harrison and
there is reason to believe that soldie5s made frequent excursions to the
outlying islands for similar purposes.
The first homesteads in the area were concentrated on the mainland in Clear
Water because of its well protected harbor and high bluffs. The beaches
were avoided as suitable sites for homesteading because of their virtual
inaccessibility and lack of good soil for farming. Pioneers were content
to make brief daytime excursions and return to live permanently on the main-
land.
Research by Pinellas historian Harvey Wells indicates t~at the first
homesteads on Clearwater Island were established in 1883. In that year.
Prudence Chafer acquired six and a half acres on the south tip of the
island where she had a IIfish ranchell. Also in 1883 Patrick Houston acq~ired
thirty two and a5ha1f acres which began one half mile to the north of the
Chafer property. .
In 1897 Ernest Tate, who was described as a IIbeachcomber who wouldn't work"
bought the island for $200.00 and built a dwelling. For many years it was
the only house on the island which became known as IITate's Islandll until
well after the turn-of-the century. Tate took out a $450.00 loan in 1898
using the island as collateral and when he was unable to repay the loan a
year later foreclosure proceedings were initiated. Tate eventually lost
the island to his debtors. Tampa businessmen Gordon Keller and Charles Jon~s.
He never redeemed the island and moved with his wife back to the mainland.
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Sometime before Tate left the island, a fish wharf was built at the south
end of the island, on Little Pass. Larger boats came to Clear Water Har-
bor by way of Big Pass at the north end of the island but other craft
used Little Pass, as did the few fisherman from the mainland. Just what
commercial fishing activity centered around thefmal1 wharf and what part
Tate played in its construction is not certain.
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In'1902 Keller sold his interest in the island to BOuden and Malone, both
Dunedin residents, for $175.00 and, in 1903, Jones sold his interest to John
R. Davey, J.T. Bennett, and T.H. Asbury for $300.00. In 1905 the island was
divided into two parcels at about Acacia St. Davey, Bennett, and Asbury
acquired the south end and Bouden and Malone took the north end of the beach.
Thepunedin Yacht Club acquired a strip of property along the bayside of the
island from Malone in 1909. A dock was built to complement the yacht club's
facility on tne mainland.
The first development of C1earwqter Island by the town of Clearwater came in
1910 when the area known as Island Park was purchased by the town and a
palmetto shelter for picnics and bathing was erected. At this time local
residents still reached the island by sa~lboats and "naptha laun.ches",
so called because they used naptha fuel. Beginning in 1910, a sloop dubbed
the "Winnie Davis" was avai1~Dle for round trip excursions to the island for
the exorbitant fee of $2.50.
As activity to the public park increased, certain disputes arose as to right-
ful ownership of the entire island. In 1914 the Clearwater Town Commission
sought legal clarification as to exactly which parcels fell under town
ownership and which were owned by private interests. A 1914 ruling by Cir-
cuit Court Judge Robles established the town's holdings to be an 850 foot
piece of property stretching from the Gulf to the Bay (present Manda1ay Ave.)
where the Pavilion, bath house and a dock were located. This property was
intended to be "forever used as an Island Park". A 191f Clearwater News
still referred to Clearwater Island as "Tate's Island". 0
In 1917 the first bridge, a wooden truss structure, to the island was built
from the Seminole It. dock in Clearwater to the former site of the Clear-
water Yacht C1ub.1 This long awaited link to the beach opened the island
for development. The bridge, however, was to become obsolete before its
time. It was built of heavy timbers, and the Florida sun soon dried out
the boards popping the spikes out as they warped. A vehicle would start
across the bridge amid a clattering of loose boards that grew deafening as
as one reached the island.
Most of the early structures on the beach were built on the end of the
island nearest the wooden bridge including the 1918 Roux House which forms
the nucleus of the present day Clearwater Beach Hotel. First a summer resi-
dence for E.T. Roux of Plant City, the structure later became a boarding
house and then the Clearwater Beach Hotel when the south wing was added
sometime before 1921. The hotel landmark still stands today, a symbol of
the optimism early pioneers had for the future development of the beach as
a tourist resort. The hotel also has the distinction of once serving as a
college during the 1921 hotel season. Southern College in Sutherland, Fla.
(now Palm Harbor) burned in 1921 and E.T. Roux of Plant City, owner of the
hotel, generously donated his facility to the students and faculty until
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another fire partially destroyed the makeshift classrooms and housing bar-
racks. The hurricane of 1921 finished the damage initiated by the fire,
and the ill-fated college closed its doors again. From Clearwater Beach,
$outhern College finally found a permanent home in Lakeland, Florida where
it became Florida Southern College.
Clearwater Beach history was to be shaped dramatically in the early 1920s
when L.B~ Skinner of Dunedin revealed plans for the development of the
entire north half of the beach. Prior to this, beginning in 1917, Skinnerls
company, the Clearwater Island Bridge Co~, had subdivided the mid-beach area
into Clearwater Beach Subdivision (1917) and Mandalay Subdivision (1922).
Dredging by Skinner's Company, which had begun with the completion of the
1917 Clearwater Beach Bridge, continued northward to widen the narrow sec-
tions of "the mid-beach area. Running concurrently with these endeavors,
Skinner announced plans in 1922 for a huge development called "Mandalay...
The Isle Of A Thousand Palms", after Rudyard Kipling's poem lIOn The Road To
Manda1ay". The project called for subdivision of the island from Acacia St.
northward to the northern tip of.the island and included a large hotel,
yacht club, business-lined boulevard, acreage for the Skinner estate and
many sites for residences.12
Before they could layout lots and streets in this large development, they
had to continue dredging up silt from the bay and fill a large underwater
tract of land north of Acacia St. along the bay. Early photos, maps and
records show that the east side of the island was very narrow in the mid-
beach area and would be almost entirely covered by water during extreme
high tides. Bay Esplanade was created by this dredging.
In December of 1925 Skinner imported "a flock19f Cherokee Indians" from
North Carolina to clear the Manda1ay section. A month later newspaper
accounts of the day showed that soundings were made along Manda1ay Ave. to
determine whether a 250 room hotel was feasible. To finance construction
of the hotel Skinner's plan was to sell lots in the already subdivided por-
tion on the south end of the developmentoand the money from each sale was 14
to be turned over to the hotel builder. This was a sound idea at the time.
Meanwhile, in the mid-beach area, the Kipling Arms, the first apartment
building for tourists on the Beach, was completed in 1923 at the western
terminus of the 1917 Clearwater Beach bridge.
The Kipling Arms Apartments survives as the best commercial Mediterranean
Revival structure on the beach and reflects Skinner1s project in its heyday.
Several large Mediterranean Reviyal homes also survive, the ghosts of a
grandiose development which, like so many others in Florida, could not
survive the collapse of the land market in 1927.
Clearwater grabbed state-wide publicity during the Florida boom when, in
1927, the "Million Dollar Causeway" was completed from Cleveland St. in
downtown Clearwater to Clearwater Beach. It was the second built to the
island replacing the original 1917 bridge dubbed "~ickety Bridge" which it
became known as in later years. Local businessman Larry Dimmitt led the
fight to have the Clearwater Town Commission spend the additional revenue
needed to construct the beautiful palm-lined boulevard to the beach when
original plans called for a narrow, two-laned bridge certain to become
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obsol ete before its time. "The Mi 11 i on Doll ar Causeway" put Cl earwater
Island and its beautiful beaches on the map.15 By an act of the State Legi-
slature, Clearwater Island became part of the City of Clearwater on Novem-
ber 12, 1924. Thereafter, it was officially known as Clearwater Beach.16
By the spring of 1926 Clearwater Beach was enjoying the fruits of the
Florida boom as development was flourishing on both the north and south
portions of the island. On April 13, 1926, the foundation was l~}d for the
Skinner's 250 room Mandalay Hotel at the north end of the beach. Com-
pleted before the hotel was Skinner's handsome two story administration
building which also housed construction workers for the hotel. Further
south, several large Mediterranean Revival residences had just been erected.
The Mandalay project, as well as other development on the island, came to
an abrupt halt in early 1927 when the boom ended.
The houses which began to fill the sputtering Mandalay project after 1927,
such as the many modest bungalows and cottages bought for delinquent taxes
and moved to the island, served to keep land values down during the early
1930s. Out of necessity L.B. Skinner sold a large portion of the northern
tip of the island to T.R. Palmer, then President ~f Continental Rubber
Works of Erie, Penna. for $2500.00 in July, 1933.
While the depression dragged on into the 1930s Palmer, along with Garrett
A. Hobart (son of the 24th U.S. Vice President of the same name who served
as Wm. McKinley's first V.P.)and Paul Randolph conceived of a private yacht
club fashioned after the exclusive Palm Beach clubs which would cater to
wealthy, wintEr visitors from the north. Surrounding the club would be a
colony of cabanas (residences) which would be leased for the season. The
development would offer everything a yarBtsman, surf and sun bather, tennis
play, dancer or sportsman could desire. The Carlouel Yacht Club became
a reality in 1934 when Car10uel Subdivision was platted by Carlouel Co.,
Inc., T.R. Palmer, Pres., G.A. Hobart, Vice Pres. & Paul Randolph, Secy.
Originally 100 local families were invited to join, each family paying
$100.00 annual dues. This arrangement lasted for years until 1947 when
Palmer, then sole owner, sold the club to 100 members of $1,000.00 each.
A corporation was formed in 1948. The name Carlouel is derived from the
names of the wives of20he original owners - Carolyn Hobart, Louise Palmer
and ILeanor Randolph.
The origins of the Carlouel Cabana Colony are well worth detailing at this
point. When Carlouel Yacht Club opened in 1934 there were sixteen attached
cabanas. However, small "(:abana cottages" had been erected on the qulfside
several years before. In 1930, five local families, Aiken, Bishop,
Dirranitt, Palmer and Randolph, got together and built a "corranunity cabana"
at 1030 Eldorado Ave. which was constructed by R.M. Thompson, Sr. This
modest hipped roof frame structure was the original cabana cottage on the
north end of the beach. It was nothing more than a large room with fire-
place and two smaller ladies' and men's changing rooms, where these families
could gather for Sunday afternoon picnics, card playing, swirranin~, shower-
ing, etc. After the 1930 corrmunity "cabana cottage", others began to spring
up to the north and south along the gulfside. These "cabana cottages"
formed the nucleus of the idea for a colqr.r of cabanas which T.R. Palmer and
G. A. Hobart later brought into fr~ition.
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It should be noted that while the 1930 structure was the first cabana, it
was not the first residence on the north end of the beach. A two-story
boomtime Mediteranean Revival structure had been built by Ged Nelson in
1925 and was later owned by the Barbour family of the Barbour Thread Co.
For years this red brick structure was known as the lIfire house II because it
strongly resembled a fire station. Tradition holds there was even an
earlier residence than the lIfire hou22" at the north tip of the island
commonly call ed the lIsouth sea hutll. Whi 1 e thi s has been documentated
by photographs, there has been no authentication as to who lived there and
if, in fact, it was a residence.
The earliest lIcabana cottage II owners formed an association in 1930 for the
purpose of hiring a caretaker, and constructing a caretaker's house to pro-
tect their interests during the absentee summer months. This was accom-
plished and the Ed Schwable bungalow exists today, the first structure
north of the Car10uel gates to the east (973 Mandalay). Later, when the
association began to rent to prominent Tampa families during the summer
months, a caretaker was not as necessary as in the early years. This cabana
association should not be confused with the Car10uel Co. which was formed
in 1934 to develop the Carlouel section into a yacht club and cabana colony.
When Carloue1 Yacht Club opened in 1934 the Carloue1 Cabana Colony also be-
came a reality. Several families had already constructed more substantial
residences in Carlouel such as the Morrow house (1010 Eldorado), Nelson!
Barbour house (984 Eldorado) and Morgan (1034 Eldorado). In 1935 Mandalay
Point. Subdivision was created by T.R. Palmer and Colonel Wm. Hayward f023
homesites. By 1941 the Car10ue1 Cabana Colony contained 37 residences,
some modest cabanas, others more substantial two-story structures. With
additional buildings on Mandalay Point and the success of the Carlouel
Yacht Club, the Car10uel section helped bring the beach out of the de- .
pression with its desirable homesites and club facilities. Meanwhile, a
less extravagant attempt at beach living was underway south of the Carlouel
section. Many modest bungalows were moved to the beach from the mainland
providing lIinstantll permanent housing for area residents. Many of these
bungalows moved over in the early 1930s survive today, the victims of
alterations and additions over the years, necessitated by changing life-
styles.
In the mid-and south-beach areas trailer parks and motel apartment complex-
es were being built to accommodate gradually increasing numbers of tourists
and visitors.
The years during World War II slowed the development of the beach but there
was one event which lent national publicity to the area at a time when it
was sorely needed. A gentleman named Clinton Mozeley Washburn had bought
an island to the north of Clearwater Beach and advertised it for sale as a
tropical paradise in the New York Times. Having no luck he later offered
the island (in 1941) to young couples who couldn't afford a honeymoon.
Paramount Pathe News ran national newsreels on lIHoneymoon Is1andll and as a
resu1~4 the gimmick brought much publicity and many honeymooners to the
area. This kept Clearwater and its beaches alive during the dark hours
of Worl d War 11.
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After World War II, some of the servicemen who were stationed in the area
returned to settle here. Local Chamber of Commerce promotion added to
the thrust of new visitors and an influx of residents from other states
has steadily added to the population of Clearwater Beach in the ensuing
. years after the war.
As new residents built on the beach it was apparent that a new mode of
living had arrived. People seemed to want to escape from the restrictions
of the war years and the traditional patterns of living. Though the fif-
ties saw many abandoning the cities, it also saw a slow drawing away from
the etiquette and formal living. Florida seemed to foster this new ideal.
The houses that began to fill in the sparse Mandalay and other sections
which were slowed by the depression years and World War II were no longer
the spatial ~rewar house with its formal touches like a separate dining
room. They gave way to more compact informal design, built of low-main-
tenance materials, especially concrete block. Later housing in the 1950s
and 1960s was a larger variation of this theme.
.
The post war boom which was felt by this area has turned a peninsular
which began as an agriculturally based community into a totally urban
county having the second largest population in the state while one of the
smallest in land area. The continuing lure of Clearwater Beach oas an
ideal spot for visitors or new residents has played an important role in
the boom which has pushed its way into the sixties and seventies.
EDITOR IS NOIE
In some parts of the history of Clearwater Beach I was more elaborate
than others in chronicling details of our beach's history. As it was
not our intention to survey the South Beach, I felt justified in taking
this course. I chose to be more specific on Mandalay and Carlouel
because a definitive history of these developments, important to the
growth of the beach, has never before been set down in print. Any dis-
tortion of the history on my part is the result of honestly attempting
to take several sources of one event and emerge with an objective state-
ment of what actually transpired.
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ApPENDIX 'A'-
FOOTNOTES
1 Fifth grade class DUNEDIN - PAST AND PRESENT Dunedin (1956-57) P. 41-2
Interview with Myrtle Betz, daughter of Henry Scharrer who homesteaded
the southern half of Caladesi Island in 1887. Located in Local History
File, Dunedin Public Library.
2 Barbour, George M., FLORIDA FOR TOURISTS, INVALIDS AND SETTLERS
New York: D. A-pleton and Company (1882). P. 211.
3 CLEARWATER SUN NEWSPAPER, October 24, 1963 Historical sketch of Clear-
water and the beach written by Clerk/Historian Ralph Reed.. Located in
Local History File, Clearwater Public Library.
4 Wells, Harvey, HARVEY WELLS PAPERS. located in the Archives at Pinellas
County Historical Society at Heritage Park, Largo, FL
5 Ibid.
6 THE CLEARI-JATER SUN MAILAWAY EDITION, 1958, P.8 Interview by reporter Pat
Neal with Mrs. Leola Haines, wife of Ernest Tate who homesteaded Clear-
water Beach- in 1896.
7 D'Armand, Louis, THE STORY OF TATE'S ISLAND, Copyright, 1949, Clearwater
Fl a., P. 1
8 CLEARWATER SUN MAILAWAY, October 25, 1963. Article entitled IICity's
Hi story Dates to DeNa rvaez in 152811 wri tten by Hi s tori an Ra 1 ph Reed.
9 DIArmand, Louis, Page 2
10 CLEARWATER NEWS, 1914
11 CLEARWATER SUN MAILAWAY, October 25, 1963
12 Interview with Wallis Skinner, grandson of L.B. Skinner on August 20,
1980, Dunedin, Florida
13 CLEARWATER SUN, November 21, 1950, Column IITwenty Five Years Ago Todayll
14 D'Armand, Louis, Page 2
.15 CLEARWATER SUN MAILAWAY EDITION, 1958, Story by reporter Nat Stanton.
Located in local history file, Largo Library.
16 CLEARWATER CITY CHARTER, Bound Volume, Sec. 4, P. 14
17 CLEARWATER SUN, January 17, 1951 IITwenty Fi ve Years Ago Today........ II
18 Interview with F. S. Skinner by Dunedin Times, 19
19 Article entitled IICar10ue1 Yacht Clubll in a history scrapbook located
in the Local History File at the Clearwater Public Library.
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Clearwater Beach Historic Structure Survey Candidates, Florida
Master Site File
Compiled by Clearwater Volunteers in Preservation and Mary McCahon,
Architectural Historian
Address
*21 Acacia Street
444 N. Gulfview Blvd.
407 Poinsetta Ave.
485 Poinsetta Ave.
East Shore Blvd &
Mandalay Avenue
440 East.Shore Dr.
443 East Shore Dr.
500 Mandalay Ave.
10 Bay Esplanade
32 Bay Esplanade
30 Kendall St.
16 Glendale St.
21 Glendale St.
27 Idlewild St.
10 Cambria St.
675 Mandalay Ave.
800 Eldorado Ave.
805 Eldorado Ave.
831 Eldorado Ave.
719 Mandalay Ave.
742 Mandalay Ave.
765 Mandalay Ave.
812 Narcissus Ave.
880 Mandalay Ave.
936 Bruce Ave.
984 Eldorado Ave.
1000 Eldorado Ave.
1001 Eldorado Ave.
1010 Eldorado Ave.
1030 Eldorado Ave.
1046 Eldorado Ave.
1068 E1dorado Ave.
1078 Eldorado Ave.
1091 Eldorado Ave.
1104 Mandalay Pt. Dr.
1176 Manda1ay Pt. Dr.
973.Manda1ay Ave.
941 Bay Esplanade
1021 Bay Esplanade
Owner
J.H. Webster
Fred J. Wilder
Pelican Restaurant, Inc.
P. & C. Gluftis
Neal (Sandpiper Motel)
D.R.K. Inc. (Koli-Bree Motel)
D.R.K. Inc. (Lighthouse Cottages)
Clearwater Beach Hotel Corp.
Hamilton (Palm Pavilion)
Nostimo, Inc. (Kipling Arms)
Kaliope Soulounias
Kampouris (Nik Apartment/Motel)
One Seventy-Five Corp.
Jimmy Hammond
Martin Gonzalez
Boscher (Seagull Apts.)
T.C. & Joan Latham
Lloyd & Rose Scribner
Robt. & LaRue Williams
M.& G. Gilbertson
J.& C. Antekeier
C. Shank
K. & A. Wohlforth
U.S. H.U.D. (Mandalay Shores)
J. & K. McNaughton
M. & H. Dexter
J. & H. Gills
P. Wright
C. & M. Semsich
J. & R. Leonard
R. & B. Burchenal
H. Dexter
B.J. Roth
Carlouel Yacht Corp.
E. Re e d
Palmer/Davidge
J. Head
R. Heilman
C. Young
*Possible National Register eligibility
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Da te Cons t.
+1928
+1925
+1936
+1939
+195l
+1950
+1940
+1918
+1926
+1923
+1925
1938
+1949
+1925
+1940
1935
+1937
+1935
+1920's
+1925
+1932
+1938
+1924
1962
+1925
+1925
+1940
+ 19 36
+ 1930
+ 19 30
+1935
+1935
+1925
+1934
+193l
+1934
+ 1936
+1941
+1940
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BA YVIEW:
A History
BY: Michael L. Sanders
The history of the settlement of Bayview begins with the meanderin~s of an
early Pinellas pioneer Captain James Parramore McMullen (1823-1895) and his
initial journey to Florida in 1841. McMullen was the third of the seven
McMullen brothers from Quitman, Georgia who are credited with pioneering much
of the present-day Pinellas County.l At an early age, "Captain Jimll, as he
was known, contracted consumption (tuberculosis) and upon the advice of his
father decided to migrate southward to live near water. In 1841 he reached
Rocky Point Island near Tampa where h2 lived for a year before returning, com-
pletely cured, to his home in Georgia. During his one year stay on Tampa Bay,
McMullen1s boating expeditions took him to a high bluff on the Pinellas side
of the bay which formed a lasting impression.
Eight years later McMullen returned to settle here sometime in the early l850s
with his wife and family and built a log house just northwest of present day
Bayview at what became known as Coachman, Florida. Log houses were common
before the advent of sawmills which supplied milled lumber used to build
frame houses.
Camptain James McMullen, along with another pioneer named Elias Hart, together
made up the first white inhabitants of this section of the county. Hart and
McMullen were preceeded only by Odet Philipe who settled in 1830 north of
Bayview on a bluff now known as Safety Harbor. Tradition holds that Philipe
brought the first citrus plants to Central Florida at that time3.
It is believed that Captain McMullen never actually lived in Bayview in the
early days, remaining at his 320 acre (half section) homestead at Coachman.
But as he began to buy up investment property in the area at .25 an acre, he
acquired much of nearby Bayview, the land he so much admired on his initial
journey to Tampa Bay. It seemed logical, then, in 1874 that Captain McMullen
would decide to found the community of Bayview by applying for and receiving
Post Office Status under the name "Bayview, Floddall. The Bayview Post Office
was in operation from 1875 until it was discontinued in 1909 .
But let us retrace for a moment to the days prior to 1874 when Bayview was
known as Cow Pen~. The name Cow Pen refers to when Pinellas Peninsula was an
open range for cattle and no fence laws had yet been written into State Law.
This section along the neck of the bay was a natural point of departure for
cattle w~th its deep harbor, deeper at one time than Clear Water Harbor to
the West. At that time it was common to herd cattle down through the middle
of the settlement to the bay, pen them in the water, and hoist them into boats
with straps after w9ich the cattle would be taken to Port Tampa and exchanged
for staple supplies.
The cattle and fishing industry along with some cotton farming, provided the
early staples of Cow Pen. Captain James McMullen took an early interest in
these fields and after serving with five of his brothers in the Civil War,
returned to the area to develop a lucrative farm, which he increased yearly
iOn profits and acreage. 8 By ca. 1875 an i ncreas ing demand for ci trus 1 ed
McMullen to devote more and more time to this new cash crop which soon re-
placed cattle and cotton as his main staples.
McMullen is credited with designing the first orange crates which were made
with three foot boards strapped together with palmetto stems. Prior9to this
ti~ fruit was either placed in barrels or simply dumped into boats.
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After Captain Jim founded Bayview in 1874, the tiny village flourished immed-
i ate 1 y. McMu 11 en had a 1 ready buil t a wha rf and two genera 1 stores by th is.'.
time; a church and hotel soon followed. His brother Daniel operated one of
the general stores and his first son, Bethel, built the first frame house in
1874 in this section of the PeniBsula. It was located near the present day
residence at 520 Bayview Drive. According to a tape recording of Mrs.
Louise Potter, great granddaughter of Captain James McMullen, lumber used to
construct the house came from an old home in Cedar Key, which was dismantled,
made into a raft and barged to Bayview where it was reconstructed as Bethel's
residence. Bethel McMullen was born in 1845 and had previously helped his
father drive cattle to Georgia for the Confederacy. He later became the
first dentist on the Peninsula. Educated at the Baltimore School of Dentistry,
Bethel McMullen frequently had to leave his large family of eight children to
visit his patients. Traveling on horseback, sometimes in a white linen suit,
he made housecalls the length a?~ breadth of this Peninsula, accepting whatever
his patients offered as payment .
In 1885 Captain James McMullen built a second wharf at Bayview and established
the Bayview Hotel which enjoyed limited success prior to the turn of the
century. From descriptions given by James McMullen's grandson, Early McMullen,
the hotel was a two story, twenty room structure with open double tiered gal-
leries overlooking Old Tampa Bay. According to McMullen, the building was
razed in 1901, but the lumber was used to construct the presT~t structure, a
large two story residence, which stands on the original site .
Before the advent of the railroad in the mid 1880s, Bayview was still enjoying
a degree of commercial success. With its deep harbor~ steam boats would by-
pass Clear Water Harbor plying around the tip of the peninsula to Bayview, where
cattle, cotton, sugar cane, syrup, and sweet potatoes were shipped to Port
Tampa, Cedar Key and other destinations. In eXr~ange, flour, coffee, and other
staples not produced in the area were purchased .
The complexion of transportation was dramatically altered in 1888 when the
Orange Belt Railway was laid through the area. Built from Oakland in North
Central Florida to its terminus in St. Petersburg, the railroad bypassed Bay-
view by five miles to the west (Clearwater). Small corrrnunities like Bayview
which had to ship goods miles to a rail outlet were dealt a grave blow by the
absence of rail service. Some communities disappeared as lIinstant" towns
popped up along the new transportation route. This one fact in history
accounts for the increased growth of Clear Water after 1888 and for Bayview1s
decl i ne..
Another blow to the economy of Bayview was the Great Freeze of 1894-95. This
crippling freeze (120 Tallahassee, 190 Tampa) accounted for the wholesale damage
to Florida'a citrus industry at the time, ~gd many local inland areas were
equally affected in terms of damaged crops . One bright spot locally was
found in the cattle industry. Cattle shipments had helped Bayview in the early
years when citrus culture was in i'ts infant years. It sometimes took seedling
trees four and five years to bear, and cattle helped fill the economic slack
during this period. - This' ability to diversify, helped pull struggling 'corrrnuni-
ties such as Bayview, through hardships like the freeze of 1894-95
It was this same independent spirit which led the inhabitants of the Pinellas
peni nsul a to fight for and win thei r free9gm from Hi 11 sborough County as
Pinellas became a separate county in 1912 . Dr. Bethel McMullen, son of
James P. McMullen, although not involved in politics, was a strong voice for
Pinellas' independence from Hillsborough County.
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In 1912 the first paved roads were constructed in the County and a main
East-West y,tery (now State Road 60) was paved forming the north boundary -
of Bayview . This transportation route added to the increasing popularity
of Pinellas County as an ideal place to visit and settle and helped keep
Bayview on the map.
This survey focuses on the handful of extant pioneer homes and a church
which relates to the original Bayview settlement. Also included in the
old Bayview Hotel building which stands today as a large two-story resi-
dence overlooking Tampa Bay. It should be noted that the proposed Pinellas
Parkway has been planned through this area to relieve the heavy trafr~c
along U.S. 19 which bottlenecks at the southern tip of the peninsula .
As an outgrowth of this project, a preliminary archaelogical study by Dr.
Steven Gluckman, a USF professor, has turned up two significant sites in
the vicinity; a dirt and shell midden on the Bayview Hotel site, and an
underwater site just southeast of the Bayview Hotel site near the old wharf
pilings. In an interview, Dr. Gluckman noted that both of the sites mY9 meet
the criteria for inclusion in the National Register of Historic Places .
Further studies should be done to determine the degree of signifigance of
these sites.
Bayview also possesses a generous number of giant live oak trees which account
in part, for the lasting impression Captain James McMullen received when he
returned to settle the area he loved in the 1850s. The trees played a signi-
ficant role in providing a cooling canopy of shade for early Bayview and are
well worth registering and preserving in accordance with guidelines from the
City Forrester.
Today, if one chooses to venture off busy and developed State Road 60 to the
South at Bayview Drive, one will find the vestiges of an old community which
survives ina relatively unaltered state of preservation. The fact that Bay-
view exists at all today, is due to the concentration of McMullen descendents
who chose to keep their homes and families in the area which helped to shape
the history of Pinellas County. However, time and progress has taken its
toll~ The future of this environmentally sensitive area, which is one of the
oldest. settlements in the County, is at best uncertain. What is certain is
that it will take more than a handful of McMullens to save Bayview.
Preservationists, concerned citizens, and government alike must rally to
preserve this most important aspect of the birth of Pinellas County. True
concern for the maintenance of these beginnings of our county are of utmost
importance and must be preserved as a part of our heritage.
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Bayview Historic Structure Survey Candidates, Florida Master
Site File.
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Compiled by Volunteers in Preservation and Mary McCahon,
Architectural Historian.
Address
Owner
Year
Built
Corner Gulf-to-Bay and
Thorn ton Road
509 Bayview Ave.
510 Bayview Ave.
517 Bayview
520 Bayview
603 Bayview
*Tract "C", Myron Smith's
Subdivision
Bethel Presbyterian
E. Boo th
N. Meador
E. McMullen
H. Bowman
E. & M. McMullen
Church +1925
pre1900
+1925
+1925
+1925
+1890
E. & D. DeMa r
+1901
*Archaeological site.
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FOOTNOTES
1
Harris, Robert C., "The Seven McMullen Brothers of -Pinellas County". Tampa.
Bay History, Tampa: Rinaldi Printing Co. (1979) P.62.
Ibid., P.63.
Ibid., P.63.
2
3
4
Bradbury, Alford and Hallock, E. Story, A Chronology of Florida Post Offices.
Florida Federated Stamp Clubs, 1962.
5
"Recollections of Bert L. McMullen", son of James P. McMullen.
ment was written in 1945 when he was seventy-nine years old.
ical Museum, Heritage Park, Largo, Florida.
This docu-
County Hi s tor-
6
Taped interview with Nancy McMullen Meador, 1958. Historian and spokesman
for McMullen Clan, on file at the Pinellas County Historical Museum at
Heritage Park, Largo, Florida.
7
"Recollections of Bert l. McMullen", son of James P. McMullen.
ment was written in 1945 when he was seventy-nine years old.
ical Museum, Heritage Park, Largo, Florida.
This docu-
County Hi s tor-
8
9
Ibid.
Harris, Robert C., liThe Seven McMullen Brothers of Pinellas County". Tampa
Bay History, Tampa: Rinaldi Printing Co. (1979) P.62.
10
Taped interview with Louise Cone Potter, great granddaughter of Captain
James Parramore McMullen, March 23, 1979. Located at Pine11as County
Historical Museum at Heritage Park, Largo, Florida.
11
12
13
Ibid.
Ibid.
Interview with Early McMullen, grandson of ~Captain James Parramore McMullen
at Bayview, Florida October 10, 1980.
14
"Recol1ections of Bert l. McMullenll, son of James P. McMullen. This document
was written in 1945 when he was seventy-nine years old. County Historical
Museum, Heritage Park, Largo, Florida.
Sanders, Michael, liThe Effects Of The Great Freeze of 1894-95 on Pinel1as
Countyll Tampa Bay History, Tampa: Rinaldi Printing Co. (1979)
Ibid.
15
16
17
Recollections of Bert L. McMullenll, son of James P. McMullen. This document
was written in 1945 when he was seventy-nine years old. County Historical
Museum, Heritage Park, Largo. Florida.
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FOOTNOTES (Continued)
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18 Public Referendum on the proposed Pine11as Parkway, 1976 - defeated.
19 Interview with Steve Gluckman, University of South Florida Professor of
Anthropology, Tampa, October 29, 1980.
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OR.~!:'~"..-\::rCE =';0. Z 33';-2. ~
A~ ORDL.'IA:--;CE OF ~2E CI':'Y OF C!....2:.-\:=\ "v.~ -.:'~::, ?LORID.~,
COMPL YI:-iG WITH THE "LOCAL GOVER.~-:.i'=::';T CCMPR'=:-
HE..'lSIVE PLANNING ACT OF 1975", AS AMENDED;
ADOPTING THE E:.'lEl".GY ELL\.ENT AS PAR. T OF THE
COMPREHENSIVE PLAN FOR THE 2<T!P.E CITY OF
CLEARWATER, FLORIDA; ADOPTING THE ..>,TTACHED
EXHIBIT; PROVlDL.'lG FOR PROPER ;-IOnCE OF PRO-
POSED E:NACT)"~E?-<T; A),'D PP,ovLDING FOR. -r-u,,",
EFFECTIVE DATE OF n.ns ORDDlANCE.
BE IT ORDAL'lED BY THE CITY COM.\.1ISSION OF THE
CITY OF CLEARWATER, FLORIDA:
Section 1. The Energy Element of the Comprehe!lsive PIa=. as
required by tha I'-Local Gover~~ent Com~rehensi'"/e Plan.=.i::.g P..ct ~f 1975",
as a.mended, and as set fort!l in the attached e:2libit. cescri:,ed. as:
Composite Exhibit A - Doc=ent entitled "T;::.e E:.:1ergy
Element of the Comprehensive Plan for ~e Ci:y "Ji
Clea=water", consisti=.g of 157 pages,
is adopted in a.ccordance witb. the "Local Gover:l..."':'le~t Cc~?re..n.ensi"...e ?!.an::ing
Act oi 1975", as amended, for the entire City "Ji Clea.:-wa:er, Florica.
Section 2. ue a.t"'..acb.eci exhibit desc:ibed as:
Composite Ex1::.ibit A - :Coc..unent entitled TT7:::e .:.~e=g:r
Ele..nent oi the Comprehensive Plan for :.':e Ci:y oi
Clearwace:-1', cons is ti.=.g oi lSi pages,
is adopted as ?a:t of ~s ordinance as if it was set :or':..~ :..::. :ull he:ei=:..
Section 3. For the pur?oses of ::!lis ord.i::.ance, :1:le area. ~~C"J:-::passec.
oy ~s ordinance shall be desc:ibed as:
The entire area '.vithi::! the present ~oundaries of ':be
City of Clea:v.rater as suc~ boundaries are eX?anded and
redeii."'led by future ar...nexations, and the City of C:'eaz-"'3.ter
service a.rea wnicb. se:-vice area is !u!'t..~e:' desc=:bed as f0110'-,,,s:
Bounded on the West by the Gulf of ;Mexico, on ~e :--iorth :,y
the centerline oi Du:::edin ?ass; thence Southeaster:y :"J a point
b St. Joseph's Sound approxi..nately 700 feet Sout..'l.east of
MooIlsnine Isla::::.ci, excluc.i.;:lg ~foo:lshi.::Le Isla.:lci; the:lce c.'.le :::a.st
through. St. Joseph's Sou.:d and along Union Street to Keene ?,cac;
thence due ~ortb. to C.:lunty Road 34; tlJ.ence due East to :.':e
Southerly extension oi Cou.:ty Road 70; :.':ence cue ::.I'or':2:. al.c:::g
C.:lunty Road 70 :0 State Road 58C; t..':ence due ':::ast to C:. S, ::ig::way
19, excludi..::.g ~e !)-..l:leciin Indust=-ial ?a:-k; t...~ence d~e :';o:-:..~ :0
Curle'.v Creek; t...1;.e::.ce .::a.ste=~y to ~vfc).tl.:11e!:.- 30c~ ?cac.;
~l;.e~ce c.ue Sou6 3.??r':Jx:-"":":.ately 5, 4CO :ee~ :0 C:~:-o..;.r7:ed ?:-'J?e:-':"/:
:..':ence due E:ast a?pr"Jx:.......,-;ately 2,000 feet; t..':ence ;{or:::: 33C1
feet; :hence '::ast: -J18 :eet: ~e::ce c.:..:.e ,sou~ a??=c;;c....~a.:el:r 3. :CO
!eet to State Read. 580; '::ler:.ce ?les':. ane. Sout..~we.st :0 ~"ic~~iulle:l-
3oo~ =toad.; ~e~~e c::.:.e scu~ ::0 ':.he ce::::e:-~:::e~: _:":l:~a':::::"' C:-ee:,:
~e~ce :::ast ala::g ":""il.:ga.:or C::"e~~ a.nd ~:;"e scu:-~er:1 s::c:-e ::>i
_.l..Uiga,=o:' !....3::.ce a::d A=~:e ::;~ive to Coope=; s 3a:;ou a::.d ~??e= Cld
7are?a 3ay all ~~e \~.;ay ~.;) ~e Clea:""..;ate::--7a::""7a Ci::y .:...:-'"":':.:-tS
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a::d ?:::.eila.s -:-:':':":.5 GO -:::;:.:;~ '::;,~:: :"':.~ ~i-~.i:5; :'.::e~c ~ '::L:e'::;o~,;~'"}.
to t..~e COUr:::1ey Ca::::;oell C.1.USe'.l./ay; :....'-:.e::ce 'Nes:e=ly,
Southwesterly, and Soutb.erly alcng the sr..oreline of Old
Tampa Bay to the ce~te=l:.:::e of .-\llenl s Creek; :..1.:ence East
to U. S. 19; :hence ::-:cr:..~ ~;J 3e~lea.i= ?~0ad ex~e::dec.; ~e::ce
due West on i3elleair Road co the Seaboard Coast Line Railroad
tracks; thence due North to and along Ft, Harrison Avenue
to D Street; thence due West ap?ro:C."nately 150 feet; the!lce
due North to B St.eet; ilience due West to 4th Avenue; L>,.ence
due North to...~ St:-eet; ~e:lce d1.:e E:ast to Ft. Har:-ison .:\venue;
thence due North to .1Vat...'<i::s St:-eet: the:1ce due V{est to Vlaters
Sc::eet; ~ence due :'ioz-:h approxi...--:::ately 700 feet; ::::'er..ce .\Vest
to the Intracoastal Waterv,ray; thence Scuth--Southwest
approximately 6,000 feet; thence due West to the Gulf of ~iexico,
bfIJ
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Section 4. All required and optional elements and parts of the
Comprehensive Plan as requi.ed or allowed by ::.he "Local Government
Comprehensive Planning Act of 19i5", as amer..ded. which are Set :or:l:. i..."'l :he
attached exhibit adopted herein, are hereby adopted as part of :::Us o.di:lance.
Section 5, All development undertake=. and all actions taken in regard
to development orders. all land development regulaticr..s ena.cted ~r aI":le=.ded
shall ":le consistent with :::Us ?lan and ;ucl:l eleme=.t a:=.d :;art ::.hereo: in regard
';0 the land covered by this ele:':le!:.t and ?ortio:o.s of -==-e Cc::-:.?rehe.:J.sive ?:a~
as =-e:eby ado9ted silall be cc'nsistent wit=. :::is ?la:: 3.!:cl eac.::. ele=.e!:l: a!:.c.
e
~a=t tl::ereoi..
Sec~:.on 6. Notice ot the ?T':J:posed. e:::'3.::~ent 01 :'::':3 or~i::.a::ce cas
~ee!l ?roperly ac.ver"::ised i..:1 a ne".vspape::- oi gene::-al .:i=ccla::..on i.:1 accordance
',Vi:=:' Section 166.041, Florida Stat"..ltes..
Section i. All public hear~gs and ?uclic participation reqcired
?=suant to Section 163.3181, Florida Stal:".ltes, and Section 163.3134, ?loric.a
Statutes, has ?receded the c=I:side::-ac.on oi ~s o::-~:.::a=.ce.
Section 8.. This ordi::a.:::.ce is hereby adopted a::.d s~all ~e cc~sic=reci
he~ceiortb. a.dopted. for the ?u=poses of Section 163. 313~ (7), .:2.0::-:::'3. S:3.::-:.:.t:es,
a:.ci shall become e!fectiye i=l...~ec:ately upon i:s .?assa.ge.
?ASSE::l ON ?L'<.ST ?.2..o..DL"\iG
),la.ch 5, P81
?~';SSZ:D ON SECO:--rD ..-\.~'TI ?::--IAL
3..2..o..DI.:iG A:--;n ADO?:"::::J
Var~~ lq. 1081
..;. :-:e s~:
s.' !..~cille "':,\-~l1ia:":1S
s/ Charles ? LeCher
~'Ila :-'0= - C ';::-_-::':'35 l::JI;,e =
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CONTENTS
List of Tables. . , . . . . . . . . . . . . . . . . . , i
Introduction. . . . . . . . . . , . . . . . . . . . . . v
Executive Summary . . . . . . . , . , . . . . . vii
Section I: The World's Energy
Future. . . . . . . . . , . . . , . . . . . . . . . . .2
Section II: Clearwater's Energy
Future. . . . . . . . . . . . . . . . . . . . . . . .18
Section III: Energy Management
in CI earwater. . . . . . . . . . . . . . . ., . .39
Appendices. . . , . . . . . . . . . . . . . . . , . .65
Appendix I: The Search for
Solutions. . . . . . . . . . . . . . . . . . . . . .66
Appendix II: Data From Phase I
of the Clearwater Energy Man-
agement Program. . . . . . . . . . . . . . . .96
Appendix III: Clearwater's Residen-
tial Energy Audit Program. . . . . . . .101
Appendix IV: Local Energy Conser-
vation Implementation Measures,. .119
Bibliography- Footnotes. . . . . . . . . . .139
THE ENERGY ELEMENT OF THE
COMPREHENSIVE PLAN FOR THE
CITY OF CLEARWATER
The preparation of this document was
financially aided through a Federal Grant
from the Department of Housing and
Urban Development under the Urban
Planning Assistance Program authorized
by Section 701 of the Housing Act of
1954, as amended.
Prepared by:
City of Clearwater
Planning Department
Clearwater, Florida
June 1978
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Prepared for adoption pursuant to
Chapter 163 F.S.
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",V' LIST OF TABLES, GRAPHS AND MAPS
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U 9 GRAPH: M.I.T.W.A.E.S. SUPPLY AND DEMAND SCENARIOS
11 GRAPH: WORLD'S REMAINING OIL RESERVES
18 MAP: CITY OF CLEARWATER LOCATION MAP
19 TABLE 1 : LAND USE COMPARISONS
20 TABLE 2: PROJECTED POPULATION
20 TABLE 3: PROJECTED NUMBER OF HOUSEHOLDS
21 TABLE 4: REQUIRED NEW HOUSING UNITS
22 TABLE 5: HISTORIC AND PROJECTED LAND USE
23 TABLE 6: EMPLOYMENT FORECASTS
25 TABLE 7: PROJECTED GASOLINE CONSUMPTION FOR PINELLAS
COUNTY
. 26 TABLE 8: PROJECTED GASOLINE CONSUMPTION FOR CLEARWATER
27 TABLE 9: PROJECTED ELECTRIC POWER CONSUMPTION
28 TABLE 10: PROJECTED NATURAL GAS CONSUMPTION
29 TABLE 11 : PROJECTED ENERGY SUPPLIES
29 TABLE 12: PROPORTIONS OF ENERGY SUPPLIES TO TOTAL ENERGY
SUPPLIES
30 TABLE 13: PROJECTED FLORIDA POWER FUEL MIX
31 TABLE 14: ENERGY SOURCE COMPARISON
31 TABLE 15: PROJECTED ENERGY SOURCE MIX FOR CLEARWATER
32 TABLE 16: ENERGY DEMAND IN CLEARWATER
32 TABLE 17: ENERGY USE COMPARISON
33 TABLE 18: RESIDENTIAL DEMAND
33 TABLE 19: COMMERCIAL DEMAND
34 TABLE 20: INDUSTRIAL DEMAND S
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34 TABLE 21:
35 TABLE 22:
35 TABLE 23:
36 GRAPH:
40 TABLE 24:
41 TABLE:
41 TABLE:
42 TABLE:
43 TABLE:
. 44 TABLE:
71 GRAPH:
75 MAP:
79 TABLE:
80 TABLE:
80 GRAPH:
.
LIST OF TABLES, GRAPHS AND MAPS
PUBLIC FACILITIES DEMAND
TRANSPORTATION DEMAND
PROJECTED CLEARWATER ENERGY USE
CLEARWATER ENERGY SUPPLY AND DEMAND 1978-1995
EXAMPLES OF PHASE I ENERGY SAVINGS
HIGH AND LOW PRESSURE SODIUM LIGHTING COSTS
EXISTING ANNUAL STREET LIGHTING COSTS
ANNUAL HIGH AND LOW PRESSURE SODIUM LIGHTING COSTS
BOTTOM LINE FIGURES FOR HIGH AND LOW PRESSURE
SODIUM LIGHTING
MAINTENANCE COSTS FOR HIGH AND LOW PRESSURE SODIUM
LIGHTING
COST OF BUILDING A 1,000 MEGAWATT L1GHT-WATER-
REACTOR POWER PLANT
U.S. COAL RESERVES
COAL TRANSPORTATION REQUIREMENTS TO THE YEAR 2000
CUMMULATIVE CAPITAL REQUIREMENTS FOR INCREASED
U.S. COAL PRODUCTION
THE CAPACITY OF U.S. COAL PRODUCTION TO REPLACE OIL
AND NATURAL GAS
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U 81 GRAPH:
82 GRAPH:
102 GRAPH:
115 TABLE:
115 TABLE:
121 TABLE:
133 TABLE:
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LIST OF TABLES, GRAPHS AND MAPS
HISTORICAL AND PROJECTED U.S. ENERGY SOURCES
HISTORICAL AND PROJECTED U.S. ENERGY SOURCES
CLEARWATER RESIDENTIAL POWER PIE
ENERGY USE OF APPLIANCES
COST OF COMMON LIGHTING METHODS
ANNUAL SAVINGS IN ENERGY COSTS UNDER ASHRAE 90-75
RELATIVE ELECTRICITY CONSUMPTION OF MASTER-
METERED AND INDIVIDUAL METERED MUL TI- FAMILY
DWELLING UNITS
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INTRODUCTION
ORIGINS OF THE PRESENT ENERGY SITUATION
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""J
U ORIGINS OF THE PRESENT ENERGY
SITUATION
.
Energy, the power to work change, plays
an essential part in every aspect of the
natural and human worlds. To read these
words, for instance, requires that your
body (eye and brain) burn energy in the
measured form of Galories, which must be
assimilated in the form of food. Food it-
self is taken from the great organic cycle
of I ife driven by energy radiated from the
sun. Before the nineteenth century all hu-
man societies, both primitive and civilized,
relied almost exclusively on direct energy
income from the sun, through agriculture,
forests, animals, human muscle, or wind
or water power; all of wh ich are derivatives
of, or dependent upon, solar energy. Nor
has this dependence essentially changed in
our day.
The phenomenal rates of economic growth
and the resultant high standards of living
experienced by the citizens of western in-
dustrial nations depend, however, upon the
intensive use of stored energy capital to
power thei r manufacturi ng and production
systems. It is no accident that the great im-
pact of science on technology took place
after 1859, with the discovery and devel-
opment of petroleum and natural gas. If
there had been no coal, as well as no oil
and natural gas, the modern world as we
know it would not have come into exis-
tence at all, and the world would look
much like it did in the 1700's. We would
have had the rise of science, perhaps, .
but without the huge energy stocks avail-
.
able to us in the form of fossil fuels, the
application of science to economic life
would have been very meager.
All deposits of pevoleum, natural gas and
coal, are the residues of fossil plant matter;
hence the term "fossil fuels." These fuels
were formed approximately one billion
years ago after the first photosynthetic
plants evolved which could use the energy
of the sun to convert carbon dioxide and
water into carbohydrates. Before this time,
the earth's atmosphere was devoid of oxy-
gen; in fact, all the oxygen in the air today
is a chemical byproduct of photosynthesis.
Since the build up of oxygen was gradual,
oxygen breathing organisms could only
evolve towC!rds the end of this time, so that
during this period both oxygen and carbo-
hydrates were produced more rapidly than
they were consumed by metabol ic com-
bustion. The excess carbohydrates accu-
mulated as the remains of plants. These
fossilized and were eventually converted,
through the heat and pressure of geologic
forces, into oil, natural gas and coal. Thus,
this unique, never-to-recur period in the
earth's history created the earth's entire
stock of fossil fuels, as well as the oxygen
needed to burn them.
The energy crisis arises from the inevitable
coil ision of these two facts: that the energy
capital of fossil fuels is finite and non-
renewable; and that modern industrial
societies must spend this capital, particu-
larly in the forms of petroleum and natural
gas, in order to sustain their economic
growth and high standards of living, The
energy crisis is not a result of intermittent
supply interruptions, such as occurred dur-
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ing the 1973-74 OPEC oil embargo, nor
a result of shortages during abnormally
cold winters, such as those of 1976 and
1977. At most these are mild, symptomatic
phenomena,
When we discovered how to use petroleum
in 1859, it was as though we had been
willed a great fortune, which we have been
spending with great abandon ever since,
When it is gone, it is gone for good, how-
ever, and we shall have to go back to I iv-
ing on our income again. If we have truly
acted the part of irresponsible heirs, and
have not made the capital investments nec-
essary to increase our renewable energy
income, it will mean a definite decline in
the style of life to which we've grown
accustomed,
The mere fact that we will one day deplete
our energy capital of petroleum and natu-
ral gas does not in itself give necessary
cause for alarm. The anxiety stems from
the recently acquired fact that we are going
to run out of petroleum and natural gas
relatively soon, even as human history
measures it. The most sober estimates now
suggest about 30 years as the world life-
time of petroleum and natural gas. Even
on the most optimistic assumption, it
would be hard to push this beyond half a
century.
As this planet's petroleum and natural gas
reserves are consumed, demand will out-
strip supply sometime near or before the
end of this century, Hopefully, by this
time, renewable sources of energy income
will be developed and "on line," Research
and development of these sources is cur-
rently underway on, as yet, a relatively
small scale. Coal and uranium, while both
nonrenewable, and posing known hazards
to health and environment, will be devel-
oped as interim energy sources to help ease
the inevitable transition to the renewable
energy sources of the future. Nonetheless,
it will be wise to anticipate socio-economic
stress of some kind and degree as techno-
logical societies undergo this transition.
The uncertainty arises because just what
or how severe these stresses will be cannot
be precisely known in advance.
In creating an Energy Element for Clear-
water's Comprehensive Plan, the common-
place truth of global interdependence,
most often expressed in the cI iche of the
"shrinking world", pervades every plan-
ning consideration. Even though national
and world trends are far beyond Clear-
water's control, the first section of this
element must outl ine the present and fu-
ture world energy situation simply because
Clearwater's energy future is almost wholly
dependent on these larger, outside trends.
Sound policy planning depends upon the
adequate assessment of these trends. The
second section of this report will outline
Clearwater's current energy status and wi II
attempt to project the City's future energy
status within the context of the energy
trends facing the state, nation and the
world. Only in section three can an exam-
ination be undertaken of the policies avail-
able to Clearwater in response to the future;
and only then can pol icy decisions be rec-
ommended for adoption,
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EXECUTIVE SUMMARY
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EXECUTIVE SUMMARY
It has been approximately 24 months since
the Energy Plan for Clearwater was re-
searched and drafted in the summer of
1978. Since that time, world events relating
both directly and indirectly to the energy
situation have closely borne out the valid-
ity of the pictures and predictions drawn in
the plan.
Interruption of world oil production
caused by the political destabilization of
Iran is, of course, the most obvious exam-
ple of the plan's accuracy of anticipation,
not to say prediciton, of world events. The
economic dislocations already felt in the
U,S. since then, which can be directly
I.inked to the tightening energy future, in-
clude the insolvency of Chrysler Corpora-
tion, as well as the 25-30 percent decline in
1980 new car purchases, Rising diesel fuel
prices were a direct trigger of the wildcat
Teamster strikes of 1979 which disrupted
the nation's trucking industry and caused
spot-shortages of goods throughout the
country, Even more directly attributable
to the energy crisis are the skyrocketing
costs of fuel oil for home heating caused
by world spot-market oil prices of $50 a
barrel, and, of course, long lines at gas
stations, odd-even days and weekend
closings which have become recurring fea-
tures of American life.
More deeply still, double digit inflation,
falling national productivity and economic
growth rates can be attributed, in part, to
the tremendous flood of capital leaving
this country to purchase the energy that
industry must have just to keep operating-
leaving little remaining for capital improve-
ments necessary if American corporations
are to remain competitive in domestic and
world markets.
But perhaps the most significant event
of the last 24 months, for the energy future,
was the setback dealt to the long-term pros-
pects of conventional nuclear fission as a
source of electric power in the U,S, when
the Three Mile Island reactor near Harris-
burg, Pennsylvania, narrowly escaped total
meltdown, At very best, the supply of new
energy which could have been provided by
nuclear fission will be delayed for years, At
worst, conventional nuclear fission was
dealt a mortal blow at Three Mile Island,
with the next most likely source of high-
grade energy (nuclear fusion) still decades
away,
In the decade of the 80's the energy
picture shall undergo even more rapid and
radical changes effecting the most funda-
mental aspects of American life. In order
to deal at all effectively with the changes
that will occur, local governmental policy
makers can hope to do little except arm
themselves first with knowledge. To that
end, one of the main purposes of this
report has been to inform the reader both
of the causes and effects of the current
energy situation, and of the forces and
direction of the energy future. By reading
the full report, a fairly complete outline
of the true nature and scale of the energy
crisis can be gained.
Because the energy future of this and
every other western industrial nation is
in a state of such rapid flux, the goals
and policies recommended for Clearwater
in this report are intended as ways of
developing and implementing solutions .:s
rather than as detailed, pat solutions ~
themselves (which become outmoded or 0
impractical even as they are adopted), {f
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By providing for the establishment of a
mechanism of flexible response, Clearwater
can reasonably hope to take advantage of
changing funding and legislative climates
to meet the needs of its citizens for a
coherent, effective local response to the
global energy problems which threaten
us all.
The problem facing Clearwater and the
nation is a result of the collision of two
facts which are carefully documented in
Section I of the Energy Plan, One; at
present the economic strength of the
western industrial nations is entirely
dependent upon petroleum and natural
gas. Two; supplies of petroleum and
natural gas will fail to meet demand a-
round or before 1990.
Section I also deals with the potential ef-
fects of this collision; and finds that at its
worst the energy problem could cause an
economic depression on a scale equal to or
greater than that of the 1930's, or embroil
the industrial nations of the world in grow-
ing political conflicts for diminishing fossil
fuel resources. At best, the coming energy
problem presents the United States and the
industrial nations of the West with a time
of great challenge and hardship,
The challenge facing the nation will be to
find new and renewable sources of energy
to replace petroleum and natural gas, and
eventually uranium and coal as well. Ap-
pendix I documents the search for new
sources of energy for the United States;
and covers both sources of nonrenewable
energy, such as uranium and shale oil, and
sources of renewable energy such as solar
and nuclear fusion, Until that challenge can
be met, the nation faces hardships of un-
known kind and degree during the period
of transition from nonrenewable energy
sources of the present to the renewable
energy sources of the future; a transition
period which will last anywhere from
20 to 45 years.
Section II of the Energy Plan, using
population projections and land use and
economic forecasts developed for the City
by the Planning Department, projects the
City's future energy supply and demand
trends, and finds that, barring unforesee-
able and drastic interruptions of energy
suppl ies such as occurred during the" Arab
oil embargo" of 1973-74, Clearwater's
total suppl ies of energy must grow by at
least 45 percent in order to meet the City's
energy demands of 1995. Given the fore-
seeable future of national energy supplies
outlined in Section I, it is concluded that
Clearwater should undertake a more serious
effort to constrain energy demand and to
conserve exisiting energy supplies, The Fed-
eral government alone is incapable of miti-
gating the coming hardships without the
aid and initiative of state and local govern-
ments, private industry, and private citizens
throughout the nation,
Clearwater's elected and government offi-
cials are entrusted with the welfare of the
City and its citizens. They are responsible
for the well-being of their fellow citizens
to the degree which they are able to affect
that well-being. Therefore, the government
of the City of Clearwater should do every-
thing in its power to mitigate the hardships
of the coming transition period, To do this
the City needs to pursue an agressive and
independent policy of energy conservation
and should lobby the regional, State and
Federal governments and representatives
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Section III of the Energy Plan reviews
Clearwater's existing energy management
program and provides the framework
necessary for the expanded development
and implementation of the energy conser-
vation policies and programs which will
further mitigate the local hardships of the
coming transition period. Specifically, the
adoption and implementation of the En-
ergy Plan will result in the creation of an
expanded Energy Office capable of achiev-
ing the goals and objectives of this plan.
The energy conservation policies suggested
in Section II of this plan, to be implemen-
ted by the new Energy Office, will be
aimed at achieving quantifiable reductions
or changes in energy consumption in Clear-
water. Preliminary surveys indicate that
the City can reduce its present energy con-
sumption by as much as 25 percent without
detracting from the presently attainable
quality of life in Clearwater.
In addition, the new Energy Office will
develop aid in implementing public edu-
cation and awareness programs designed
to teach the public more conservative daily
energy consumption habits, will develop
energy emergency plans to provide for the
equitable distribution of scarce fuels dur-
ing critical shortages brought about by
future supply interruptions, and will study
the feasibility of developing City-generated
energy sources, such as solar power.
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SECTION I: THE WORLD'S ENERGY FUTURE
2 Petroleum
3 U.S. Oil Dependence
5 Demand
6 Supply
6 Determining Rates of Production
7 Developing More Realistic Projections
8 Determining the Accuracy of Projections
10
12
13
14
In the Time Left
Natural Gas
What the Future Holds
The Coming Capital Crisis
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IQV'SECTION I: THE WORLD'S ENERGY
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Petroleum
Many people were shocked during the win-
ter of 1973-74 to find that nearly half of
the petroleum supplied to the U.S. came
from abroad, This shock was not just
another strident headline proclaimed by
the news media. It was felt by millions of
Americans in a very direct, personal way
when they had to spend hours in long lines
of idling automobiles to buy a tank of
gasoline. That year world oil prices qua-
drupled, The gasoline shortage depressed
the sale of cars, and the automotive in-
dustry went into steep decline, Within a
year 20% of its plant capacity and over
100,000 of its workers were idle. (1) The
OPEC oil embargo set off sharp rises in
heating oil, propane and numerous chemi-
cals, especially plastics, pesticides and fer-
tilizers. The rising cost of agricultural
chemicals contributed to rapidly inflating
food costs. Suddenly, it seemed, the energy
crisis was upon us, increasing problems of
inflation and unemployment in the worsen-
ing economic climate of the post-Vietnam
War era.
Due in part to the discovery by the Amer-
ican people that during the year of the
energy crunch U.S. domestic oil companies
reaped gigantic windfall profits,(2) and
that during the worst months of the short-
age available amounts of petroleum were
only 1.5% or less below amounts available
the previous year, (3) most Americans
came to bel ieve that the energy crisis was
a hoax contrived by the oil industries to
gain power and profit while putting the
blame on the OPEC nations. (4) Since then,
gasoline prices have stabilized, and the
nation has weathered two severe winters
with only isolated instances regional of
fuel shortages. The great majority of people
still enjoy uninterrupted suppl ies of elec-
tricity, gasoline, natural gas and fuel oils
at prices they can still afford, Another sud-
den quadrupling of oil prices seems un-
likely, given heavy OPEC investment in
Western economics (5) and their need for
steady, assured flows of capital to achieve
the goals of their long range social pro-
grams, (6) Though the danger of another
temporary interruption of oil imports is
real, it seems jess likely.
I n the absence of severe energy shor~ages
resulting in widespread personal economic
hardship, it is easy to understand how
most Americans can view the "energy
crisis" as either safely past or nonexistent,
Yet, because of a continued overdeveloped
dependence on oil and natural gas for its
primary sources of energy, the continued
political and economic primacy of America
and the well-being of its citizens is far
from secure in a world where depletion of
both oil and natural gas is rapidly ap-
proaching.
With less than 6% of the world's popula-
tion, the United States consumes 32%, or
almost one third, of the world's total en-
ergy production. While it is true that the
American's enjoy one of the world's high-
est standards of living, the United States
burns more energy to generate each dollar
of Gross National Product than any other
nation, (7) Americans consume twice as
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much energy per capita as West Germans,
who enjoy an equivalent standard of living.
In the United States oil is the primary
source of that energy, providing approxi-
mately half of all the energy consumed.l8)
The United States is responsible for about
7 billion barrels of consumption per year,
or 35% of a total yearly world consump-
tion of 20 billion barrels. Of these 7
billion barrels of oil, the United States
must import 3.5 billion barrels annually
to augment domestic production.(9) This
means that if for any reason the United
States could no longer import petroleum,
for however long, the per capita consump-
tion of oil would be cut from 3.5 gallons
per day to 1,75 gallons. Overall it would
mean a 23% loss of energy to the nation,
To say that America's economy depends
on oil is an understatement. Last year, of
the top 20 U.S. corporations, 14 were
either oil companies (ten) or companies
which produced oil dependent products
(petrochemicals and automobiles). While
the 500 largest U. S. corporations real ized
a total of 1,000 billion dollars in combined
sales, these 14 corporations alone account-
ed for 322 billion of this, nearly one third
of the total sales. (10) Oil imports to the
United States have grown from 328 million
barrels in 1950, to 1,250 million barrels in
1970, to 2,620 million barrels in 1976, to
3,500 million barrels today. (11) How has
this situation arisen?
U. S. Oil Dependence
According to the National Energy Plan,
"the expansion of imports was made pos-
sible by new production from large reser-
voirs of oil overseas and by the develop-
ment of an efficient international oil trans-
portation system," (12) which, during the
two decades between 1950 and 1970,
allowed the real cost of energy to decrease;
which in turn fueled an unprecedented
102% growth of the Gross National Prod-
uct, As the National Energy Plan notes,
"during the entire post-war period, almost
all economic and technological develop-
ment was premised on cheap energy," (13)
However, though real energy prices fell,
the profitability of oil produced abroad by
domestic corporations increased dramati-
cally. From 1947 -1956 the profitabil ity of
domestic petroleum dropped from a return
of about 15% on equity to 14%. In the
same period the profitability of foreign
operations by U.S. petroleum companies
increased from a return of 15% equity to
28%. (14) The lesson was not lost on the oil
companies. In the words of H. W. Blauvett,
Chairman of Continental Oil Company,
"the cost of finding and developing a bar-
rel of crude oil in the U. S. was revealing a
stubborn upward trend. . . the discovery
of prolific reserves in the Middle East made
it evident where the large fields of low cost
oil could be found, As overseas crude out-
put rose, profits also grew rapidly, and the
rates of return earned by U. S. companies
from their international operations proved
considerably higher than returns from the
U. S. operations." (15)
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Having documented the increase in oil im-
ports, all that remains is to confirm the
decline in domestic oil production. Con-
firmation can be found in the changes in
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t domestic oil exploration. In 1956, about
/I,j 16,000 exploratory wells were drilled in
".J the United States and on the continental
U shelves. This number dropped sharply
and steadily to about 7,000 in 1971. (16)
With the occurrence of the 1973-1974
OPEC oil embargo and subsequent price
rise, and in response to greater demand
for domestic oil, the promise of higher
profits, and governmental pricing and tax
incentives, exploratory drilling for oil and
natural gas had risen to the astonishing
rate of 48,500 new wells sunk in 1978
alone. (17) Even with a record number of
new exploratory wells being drilled annu-
ally, however, the rate of new discoveries
of oil and natural gas continues to fall
far short of the rate of domestic reserve
depletion, wh ich in 1978 alone, fell by
.1.7 billion barrels of oil and 8 trillion
cubic feet of natural gas. (18)
e
The fact remains that despite massive
efforts by the U.S. oil companies, which
for the last six years have devoted ever in-
creasing percentages of their production
revenues to exploration efforts, domestic
reserves of oil and natural gas have been
declining steadily since 1970. Today, U.S.
proven reserves of oil amount to less than
10 years of current domestic production,
or only 5 years of current total U,S. oil
consumption. (19) The failure of these
explroatory efforts is particularly grim
because the oil companies have been con-
centrating on drill ing in "known" oil
and gas producing geologic formations.
The few regions of the U.S. and its con-
tinental shelves yet to be explored, the
remote and inhospitable regions whose
geological probability of bearing oil
or gas is unkown, and where drilling and
transportation costs are greatest, are a II
e
that remain.
As pointed out in the Florida State Com-
prehensive Plan Energy Element, "this
situation (the fact that we are usz'ng up
our oz"l and gas reserves faster than we
are adding to them) is akin to borrow-
ing more from a savings account than one
deposits, "Th is borrowi ng spree has not
been confined to the United States,
either. Virtually all of the oil consuming
nations of the world have been fuel ing
their economic growth in this fashion
since the end of World War".
The long-range prospect of irreversibly
diminishing domestic and foreign petrole-
um supplies will only increase this vulner-
ability. At some point down the line the
world's demand for oil will exceed supply,
consumption will exceed production.
When this occurs, "the United States could
face repeated jolts as energy supplies be-
come increasingly unreliable and actual
shortages occur more frequently. Regional
disruptions could result from unusual
weather, failure to bring electric power
'on line' and many other factors. In some
cases, the American people could experi-
ence mere inconvenience; in others, real
suffering, as economic activity stalled, It
is difficult to predict which regions would
encounter what problems and when, but
future supply disruptions would be very
common." (23) The National Energy Plan
continues: "If the U.S. were unable to
purchase all the oil it needs, the U.S. would
most likely experience a dramatic interrup-
tion of economic activity akin to a depres-
sion. Real income would plumment. Ra-
tioning and other government controls
would become necessary, even permanent
fixtures of life in the U.S," (24)
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The plan warns that "some industries, such
as the recreation industry (read: tourism
and Clearwater's recreation-based economy)
are particularly dependent on a continuing
supply of energy. Short term limitations
on energy use are especially disruptive to
these industries. . . their very survival may
come into question in the future." (25)
Robert L. Hirsch, Assistant Administrator
of the Energy Research and Development
Administration in 1976, put it this way:
"What's going to happen is that we are go-
ing to strangle. The crisis will either send
us to war, or throw us into a depression
that will make the 1930's look like a tea-
party." (26)
Demand
I n order to determi ne when th is crisis is
likely to overtake us, two questions need
to be answered, one of supply, the other
of demand. Historically, the demand for
energy has closely paralleled economic
growth. Since 1950, the U.S. Gross Nation-
al Product has risen at an average of 3.6%
per year. At the same time, overall energy
demand grew at an average rate of 3.5%
per year. (27) Over this same period, how-
ever, domestic oil consumption has risen
at an average annual rate of 4.4%. (28) At
this past rate of growth, oil consumption
would rise from 17.4 million barrels of oil
per day in 1976 to 24 million barrels of
oil per day by 1985. (29) However, energy
demand growth is expected to be slower in
response to slower economic growth and a
reduction in the amount of energy required
to fuel each additional unit of Gross Na-
tional Product.
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According to National Energy Plan projec-
tions, "energy consumption (will) grow at
different rates in the different sections of
the economy from 1976 to 1985. The in-
dustrial section's consumption of energy
(37% of the total in 1976) is projected to
increase by 5% per year. Residential and
commercial demand (also 37% in 1976) is
projected to increase by 2% per year. Trans-
portation demand (26% in 1976) is pro-
jected to increase at an annual rate of 1%,
assuming successful implementation of
present fuel efficiency ratings and consum-
er response to higher gasoline prices." (30)
These projections yield an average yearly
energy growth rate of 2.6%, so that in 1985
demand for oil would increase to about
22 million barrels per day.
Energy demand growth projections from
other sources differ somewhat. Exxon, the
largest petroleum corporation in the world,
anticipates an average annual growth rate
of 3.2% over the period from 1975 to
1990, (31) amounting to an increase to
about 22.5 million barrels per day in 1985.
The impact of inflation and other econom-
ic problems, new developments in energy,
and future price changes all contribute to
the difficul ty of arrivi ng at accurate energy
growth projections. Nonetheless, a petro-
leum demand growth projection of 3% an-
nually is a conservative estimate based on
trends since 1950, and present and future
energy pol icies. If it could be assumed that
world demand for oil would grow at an
annual rate of only 3%, and if it were pos-
sible that production would keep up with
demand, the world's presently estimated
recoverable reserves would be totally ex-
.
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hausted before the year 2025.(32) Yet the
3% growth in oil demand applies to the
U.S. only. World demand for oil has grown
at an average annual rate of 6.6% since
1940. (32) Using this figure, the world's
supply of oil would be totally exhausted
even sooner, before the year 2010.
Supply
How much oil is there? A widely used geo-
logical estimate of total recoverable world
oil reserves, past and present, isabout 2 tril-
lion barrels. More than 340 billion barrels
have already been consumed. Current prov-
en reserves equal roughly 700 billion. (34)
Proven reserves are the amounts of petro-
leum known to be in the ground and eco-
nomically recoverable in the future.
Oil under natural pressure is considered
"primary" production. In the U.S. today,
about 25% of the oil in a reservoir may be
recovered this way. "Secondary" recovery
is achieved, where feasible, by pumping
water or gas into a reservoi r to create addi-
tional pressure. "Tertiary" production,
not yet widely applied, can sometimes be
achieved if the viscosity or thickness of the
oil is thinned by injecting chemicals into
the reservoir so it flows more freely. Sec-
ondary and tertiary production methods
have increased recovery in the U.S. from
about 25% of the oil "in place" to about
32% today. (35) Th is recovery rate is ex-
pected to increase to about 42% over the
next 25 years as a result of new develop-
ments in recovery technology. Thus, actual
physical exhaustion of oil reserves will
probably never occur. Indeed, it is quite
foreseeable that about half of the world's
oil will be left in the ground forever be-
cause additional recovery will be either
technically unfeasible or too expensive.
Long before this occurs, however, the
price of oil will prohibit its use as a fuel to
generate energy. Oil will then be reserved
for petrochemical uses; to derive plastics,
pesticides and other exotic materials. (36)
Determining Rates of Production
From experience, it is known that each oil
field has a potential production rate that
depends upon the size of the field, its geol-
ogy, and the production facilities that have
been installed at the wellhead. A justifiable
estimate of the maximum rate of produc-
tion from proven world reserves, is a re-
serves to production ratio of 15: 1 .(37)
A basic supply curve can be obtained by
adding to the proven reserves of a base
year the gross additions to reserves, and
then subtracting the amount of oil which
has been produced from those reserves.
The maximum potential production from
those reserves is determinable by dividing
the reserves by 15. As long as oil demand
is less than potential production, the quan-
tity of oil suppl ied equals, by definition,
actual demand. When demand exceeds sup-
ply, demand becomes necessarily limited
to production capacity. (38) The question
then becomes, when will potential produc-
tion fall below projected demand?
To answer this question, over seventy uni-
versity, government and petroleum industry
experts from eleven nations participated,
under the direction of the Massachusetts
Institute of Technology, in a 2% year study .:s
entitled A Workshop in A lternatz've Energy ;)
Studies. The study, completed last year, 0
assumed two different world growth rates; {f
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a high growth rate and a low growth rate.
The "high-growth" (and resultant high
price) scenario postulated an average annual
petroleum energy growth rate of 3% to
the year 2000. Note that is "high-growth"
scenario assumes a rate of growth in world
energy demand which is less than half the
historic world energy demand growth of
6.6%. The "low-growth" scenario, which
assumed drastic global energy conservation
measures, postulated an average annual
growth rate of only 2% to the year 2000.
Given "high growth," and a higher rate of
additions to reserves likely to occur if oil
prices are high, production will fail to meet
demand in 1997, according to the M.I.T.
study. (39) "If in this scenario we subsitute
the lower rate of additions to reserves"
(which is less likely but certainly possible),
"production fails to meet demand in
1990." (40) But even given the low growth
scenario, with the ensuing probability of a
low rate of additions to reserves, oil would
fail to meet demand in 1994. That is, ap-
plying a reserves to production ratio of 15: 1
to the recoverable reserves figure for 1994
yields a maximum potential world produc-
tion of 66 million barrels per day, whereas
world demand in that year is projected at
66.5 million barrels per day.
Developing More Realistic Projections
The trouble with the projections above are
that they are based on the rather unrealis-
tic assumption that oil-producing countries
will increase their production capacity to
the maximum reserves-to-production ratio
15: 1. Taking this into account, each na-
tional team participating in the M.I.T.
study estimated its country's oil produc-
e
tion to the year 2000. Similar estimates
were developed for other non-OPEC oil
producing countries as well. It was deter-
mined from this that if a reserves-to-
production ratio of 15: 1 were the only
constraint, they could today produce oil
at the rate of 17.4 billion barrels per year,
or 47 million barrels per day, which is
about equal to the present total free world
oil output. Usable production capacity is
less than the ideal 15: 1 maximum, how-
ever, at 16.8 million barrels per day. Be-
cause actual production is limited by the
economics of profit-making, the non-
communist non-OPEC nations produced
only 11.3 million barrels of oil per day in
1975.(41)
The study goes on to point out that the
Organization of Petroleum Exporting
Countries has suggested to its members
specific production limits which would
hold OPEC production level to 4.8 million
barrels per day less than OPEC's usable
capacity. Such restrictions are most likely
to be imposed by countries that are "low
absorbers" of oil revenues. The Arabian
Peninsula countries (such as Kuwait and
Saudi-Arabia), and Lybia have small popu-
lations; and present oil prices seem likely
to generate large investment surpl uses for
them even after allowing for substantial in-
creases in expenditures for accelerated local
development. On the other hand, Venezuela
and Ecuador, also OPEC members, have al-
ready set a ceiling on production to prolong
their flow of oil revenue, even though they
are "high absorbers" of such income. Other
"high absorbers" (countries which have rela- .:s
tively large populations but limited poten- :::a
tial for oil production growth) such as Iran, 0
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Algeria and Indonesia, are already borrow-
ing against future oil incomes. These coun-
tries have a strong interest in maximizing
prices and oil production output. However,
reserves of some of these countries are al-
ready being reduced rather rapidly, so that
any new additions are more likely to enable
them to maintain production at present
rates rather than to increase it significantly.
New production rates were calculated tak-
ing these factors into account, and were
applied to the two high-growthilow growth
demand scenarios to yield more accurate
projections of the date when world oil
supply capacity fails to meet world oil
demand. For the high-growth scenario,
that day could come as early as 1981 or as
late as 1988. (42) (Recall that using the oil
reserves-to-production maximum the date
originally fell between 1990 and 1997).
For the low-growth scenario, supply cuts
demand by as early as 1983 or as late as
1989 (compared to the original projection
of 1994).
Three things become clear from the con-
clusions drawn by the M.I.T. study. First,
with supply limiting world demand, loss of
production from anyone of the major oil
exporting nations; e.g. Iran, Iraq, Kuwait,
Nigeria, Saudi Arabia or Venezuela, for
whatever reason, would impose an energy
shortage that would cause severe world
economic and political disruptions. The
world's industrial nations will be in intense
competition over finite supplies of oil.
With their very economic survival at stake,
the probability of war, even world war,
would be greatly increased.
Second, though the gap between supply
and demand will open sometime in the
1980's (before 1990), oil supplies will not
just suddenly run dry. The oil that will re-
main in the ground will help maintain re-
serves, and lessen the severity of decline in
production to the extent that suppl ies can
be maintained at or near the levels at which
the gap occurred for some 10 to 30 years
before undergoing a precipitous final de-
cline due to the beginning of actual exhaus-
tion of the world's oil reserves.
Third, and most importantly, the oil im-
porting nations have perhaps only as few as
3 to 5 years or as many as 11 to 15 years
before experienci ng the inevitable econom-
ic shock of having their oil demand forever
I imited by supply. Other sources of energy
must be ready from about 1985-1990 on,
to supply the energy demand growth which
had been previously supplied by oil, if
that shock is to be survived.
Determining the Accuracy of the Projections
Though the M. I. T. report projections are
far more accurate than those made in the
past by other sources, there have been more
optimistic estimates that the entire world's
ultimately recoverable reserves may be as
much as 3 trillion barrels. This would mean
some 2.4 trillion barrels in the non-
Communist world, instead of the 1.6 trillion
used in the study. One basis for the opti-
mistic forecast is the expectation, held by
some, that new discoveries may be larger
than has been assumed, particularly in the
undeveloped countries not yet subject to
intensive oil exploration. The other basis
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60
50
40
30
20
10
NON-OPEC SUPPLY
i
o
1975
Note that after world oil supply fails to meet world oil demand in all four cases, world
oil supply continues along a slowly declining plateau until between the year 2000 and
2010, after which the decline becomes more precipitate, signalling the beginning of
physical exhaustion of the world's oil supplies.
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85
95
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15
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is the hope that major technological break-
throughs in secondary and tertiary produc-
tion methods will make it possible to re-
cover substantially more oil than previously
assumed. Since neither of these possibilities
can be ruled out, the study team took them
into account to develop a third and final
scenario. The total production figure arrived
at based on these optimistic assumptions
(30 billion barrels per year added to re-
serves between 1975-2000) amounted to
less than 10 million barrels in excess of the
more realistic high-growth scenarios. More
significantly, it would still fall some 15
million barrels per day short of projected
demand. Adopting even the most optimis-
tic estimates of additions to reserves would
delay the drop of production below de-
mand for only a few years, to the early
1990's.
How likely is it that the optimists are
right? Not very. Although over 30,000 oil
fields have been discovered in the non-
Communist world, about 75% of all the
remaining oil lies in only a few very large
fields, each of which holds in excess of 500
million barrels of recoverable reserves. (43)
Only 240 such fields have been discovered,
in the past 100 years. Undiscovered re-
serves are thought to be more geographical-
ly dispersed than those already discovered,
and are more likely to be in remote loca-
tions having harsh and costly operating
environments. In the words of the Exxon
report quoted earlier, "very few totally
unexplored areas remain, and none of these
presently appears to have the prospect of
being another Middle East." (44) Both the
Exxon report and the M.I.T. study reach
the same conclusions about the future
rate of discovery:
"On balance, it is thus considered un-
likely that, even with a very active ex-
ploration effort, the average pace of dis-
covery can be accelerated beyond 15
billion barrels per year." (45) (Exxon
World Energy Outlook)
"All in all, it seems unlikely that genu-
inely new discoveries will continue to
be made at even the rate of 15 billion
barrels per year that has been achieved
over the last 5 years." (46) (M.l. T.
Workshop in Alternatz've Energy Studies).
Finally, according to the Exxon report,
future oil supply growth can be expected
to cover only 40% of the total anticipated
growth in demand to the year 2000. (47)
This means that major new discoveries
would be required to meet these growth
projections. Of the total projected world
oil production of 71 million barrels per day
in 1989, (the latest date when supply cuts
future demand), according to the M.I.T.
study 24 mill ion barrels per day have yet
to be discovered, requiring an annual rate
of discovery 60% above the 15 billion bar-
rels per year forecast maximum. (48)
In the Time Left
Although the end of the era of growth in
oil supply is only 11-15 years away at most,
it may be followed by 10 to 30 years of
fairly constant production, provided the
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WORLD'S REMAINING OIL RESERVES
"" PROVEN RESERVES
" TOTAL: 700 BILLION
"" BARRELS
" /'
" /'
" /
" /
" PLUS AN ADDITIONAL 1,000 / /
" . BILLION BARRELS ESTIMATED /
\ UNDISCOVERED RESERVES / /
\ /
\ /
\ I
\ I
\ I
\ I
\ I
\
\ OIL I
NATURAL GAS \ 9 I
1000Ox1012 \ 2.00Ox10 (
CUBIC FEET BARRELS
SAUDI ARABIA 160
OTHER MIDDLE EAST 200
OTHER OPEC 90
MEXICO (EST) 45
NORTH AMERICA 35
OTHER NON-OPEC 70
COMMUNIST AREAS 100
COAL
7.6x1012
METRIC
TONS
Of the total of 700 billion barrels
of the world's remaining oil re-
serves (left) 600 billion are in the
world outside communist areas.
. Note that whereas most of the
remaining recoverable reserves
are in the Middle East, most of
the production, up to 1975, has
been in North America.
SAllP~_Fl~_BIA 23
OTHER MIDDLE EAST 61
OTHER OPEC 55
NORTH AMERICA 133
e
OTHER NON-OPEC 19
COMMUNIST AREAS 50
CUMULATIVE PRODUCTION I
TOTAL: 341 BILLION BARRELS;
/
/'
TAR SAND
OIL
300x109
BARRELS
SHALE OIL
190x109
BARRELS
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ENERGY CONTENT OF THE WORLD'S INITIAL SUPPLY OF
RECOVERABLE FOSSIL FUELS
SOU RCE: Workshop on Alternative Energy Studies
11
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initial shock of having demand limited by
supply does not cause world political and
economic upheaval. These 20 - 45 years
could give governments and consumers
time in which to make the adjustments that
will be necessitated by the real decline in
oil reserves which shall follow. The lead
time presently required to bring a nuclear
power plant from the design stage to ac-
tual operation is 8 to 12 years.(49) The
lead time for a coal-fired power plant is
4 to 6 years. (50) Even if oil is discovered
at greater rates, or if recovery techniques
further improve, the effect would not
obviate the necessity for the oil importing
nations to begin the transition to other
energy sou rces today.
Natural Gas
Although natural gas is a major energy
source for the U.S., contributing approx-
imately 28% of America's energy consump-
tion, (51) it is treated briefly here largely
because the fate of natural gas reserves is
so closely tied to those of petroleum. To-
gether these two fuels combine to supply
74% of the nation's total energy needs. The
two fuels are also found in close geologic
association. I n general, where petroleum is
discovered, large reservoirs of natural gas
are found in the same reservoirs. In fact,
until pipelines to capture this resource be-
gan construction in the early 1930's, nat-
ural gas was regarded as waste product of
oil production and burned off at the well-
head. (52)
Historically, natural gas consumption has
grown at a rate of 5.7% per year between
1960 and 1970. From 1970 to 1974, how-
ever, consumption declined by 1.2%
because declining production caused pro-
hibitions against the use of gas in new
homes and buildings and because industries
and electric utilities could no longer
obtain long-term commitments for new
supplies.(53) U.S. natural gas production
is expected to continue to decline until
1985 and then remain constant for a few
years, until it too undergoes a precipi-
tous fall due to supply exhaustion.(54)
The projected decline in U.S. production
from 19 trillion cubic feet of natural gas
in 1977 to less than 15 trillion cubic feet
in 1990 would result in a large loss in share
of world production from 64% to less than
34%. (55) To satisfy projected levels of
domestic 1990 consumption/demand levels
with domestic production, 51% of U.S.
production will have to come from gas not
yet discovered. (56)
I n order to fi II projected gas demand needs
in the U.S. increasingly large quantities of
pipeline gas and liquified gas will have to
be imported from foreign sources. Project-
ed imports in 1990 are expected to more
than double from the 1975 level, from
4 to 8 trillion cubic feet annually. (57) The
major share of this imported gas is expect-
ed to come from Canada, where production
from the Arctic Islands and Beaufort Sea
areas is projected to total over 6.5 billion
cubic feet per day (58) and from Mexico,
where pipelines from Tobasco and Chiappas
could provide up to 2 billion cubic feet per
day. (59) To supply such imports, major
new faci I ities will have to be constructed
involving substantial capital investments
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and lead times of 4-8 years. The overall
picture for the future of natural gas, how-
ever, is similar to that for petroleum. World
growth in gas supply of 32 billion cubic
feet per day, is dependent on substantial
discoveries. At least 35% of the total anti-
cipated 1990 gas production of 125 billion
cubic feet per day has yet to be discov-
ered. (60)
What The Future Holds
In this section the origins and nature of
the energy crisis which now faces the in-
dustrial nations of the world, and the
United States in particular, have been ex-
amined. From this analysis, and from a
consideration (see Appendix I) of the avail-
able sources of both renewable and nonre-
newable energy to replace petroleum and
natural gas (and to a lesser extent possibly
uranium), a picture of the short-term en-
ergy future begins to emerge. Admittedly
it is a rough, generalized view, clouded with
many largely political and economic vari-
ables the effects of which either cannot be
anticipated or cannot be adequately dis-
cussed within the scope of this plan. None-
theless, out ofth is fog of facts, figures and
extrapolations, certain hard and unavoid-
able truths can be discerned which form
the outlines, at least, of the future we must
tread.
Dominating the imediate foreground is the
. fact that before 1990 (between 1981-1989)
the production of petroleum and natural
gas will not be able to meet world demand
for these two energy resources. The shock
of having demand sharply cut by available
supplies could be severe enough to plunge
the U.S. and the other industrial nations
of the world into a depression worse than
that of the thirties. The Soviet Union, less
affected by such a depression because of its
long pursued policies of economic isola-
tionism, and being fairly rich in indigenous
energy supplies, would find itself suddenly
able to assume the position of world domi-
nance which the United States held for so
long. Depending on the time and methods
chosen to exercise this dominance, the
Soviet Union could well find itself at war
with the U. S. as the U. S. tried to hold on
to its once powerful status.
If war is waged on a small enough scale to
escape escalation to a nuclear apocalypse,
it would place still further energy demands
on the al ready energy short U. S. economy.
Severe war-time policies of rationing would
be appl ied to the consumer and general
economy. When and if the conflicts died
down, the U.S. would find its energy sup-
plies still further depleted. The enforced
energy cut-backs would be likely to remain
in effect for an indefinite period until the
U.S. could slowly build up its energy sup-
plies from new sources.
e
If the U. S. economy is to survive this shock,
if war is to be avoided, then we must begin
now to cut back our overall consumption
of energy in order to achieve lower rates of
growth in energy demand. Concomitantly,
new sources of energy, such as those dis-
cussed in Appendix I, must be developed to
their full potential as rapidly as possible. At
present, coal is the only energy source which
can be developed on a large enough scale
and soon enough to meet the nation's en-
ergy demands once petroleum and natural
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gas supplies begin to fail. Conventional
nuclear fission, even though over the long
run less economical than coal, less versatile
an energy source, and fraught with greater
danger, is the next most readily available
power source. Coal itself is not without
hazard to health and environment, but the
solutions to its worst danger, air pollution,
are well in hand.
Assuming the economy can survive the
immediate supply/demand jolt intact, a
big 'if' then follows. If foreign sources of
oil remain in steady supply, even if fixed
at the highest prices the market will bear,
the oil consuming industrial nations could
have a brief, precarious reprieve of some-
where between 10 and 30 years during
which they must wean themselves away
from petroleum and natural gas before
these resources undergo a final, precipi-
tous decl ine, sometime around 2000-2010,
on their way to eventual depletion. If,
during these few interim years, the world
supply of petroleum is temporarily inter-
rupted for any reason, the consuming na-
tions would be faced with economic di-
saster. Therefore, in whatever time remains,
the U.S. must complete the transition to
other energy sources if economic disaster
is to be avoided. Energy independence
must be achieved not just from imported
petroleum and natural gas, but from all
petroleum and natural gas entirely.
The Coming Capital Crisis
As petroleum gets increasingly difficult to
find and develop, the amount of capital
necessary to produce each barrel of oil
rises. If, in addition, demand continues to
rise, the petroleum industry must generate
progressively more capital. To do so they
must reap larger profits from the consumer
and seek greater tax credits and benefits
from the government. In 1974, in order to
produce about 3.8 million barrels of dom-
estic petroleum, the industry invested about
$1.3 billion in capitai.l61) The Federal
Energy Administration estimates that in
order to increase domestic production to
the necessary 7.3 billion barrels in 1985,
annual capital investments must rise to
$9.1 bill ion in 1980. (62) To produce the
required 70 billion barrels of oil needed
between 1975 and 1985 would require
capital investment to exceed $550 billion,
or 37% of the total U.S. investment capital
available throughout the economy. (63)
In other words, the price of oil will rise
disproportionately more than the increase
in production it must finance. Even though
current earnings of U.S. oil companies are
close to their highest rates in history
(about 15.5% after taxes), nevertheless it
is "inadequate to generate the needed cap-
ital," as one senior vice-president at Exxon
was recently quoted as saying.(64) A Gulf
Oil official confirms this, saying "Unless
the industry can earn a 15- 20% rate of re-
turn. . . it will neither be able to generate
the needed funds internally nor will it
be able to borrow them at attractive
rates." (65) Th is appears to be a wor'd-
wide problem in the petroleum industry.
The electric utility industry seems to be in
no better shape. The costs of power plant
construction have risen at rates far exceed-
ing that of inflation, as have both fossil and
uranium fuel costs. In 1971, a 1000 mega-
watt nuclear power plant cost slightly over 0
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$400 million, this has risen to $1-2 billion
for a plant begun today. (66) Nuclear fuel
costs have risen 500% during the same pe-
riod, from $10 to $50 per pound. The price
of fossil fuels has risen between 200 and
400 percent. The costs of pollution con-
trol devices such as electrostatic precipita-
tors and scrubbers have added over $100
million to each new fossil-fueled power
plant. Yet the demand for electricity con-
tinues to grow at about twice the rate of
demand for energy overall. (67)
Unable to raise their own investment
capital, some private utilities are taking
the unprecedented step of acquiring capi-
ta/ by directly charging their customers for
it. In Missouri, for instance, the Union
Electric Company has approval from the
Public Service Commission to charge the
capital costs of constructing a nuclear
power plant to its present customers, who
will receive no power from this plant
until 1983, if then.(68) Since a utility's
capital is the base on which consumers'
electric rates are computed, the consumers
will be paying the utility a return on capi-
tal which they themselves have furnished.
To raise necessary investment capital to
meet escalating construction costs and
increased electric demand, many utilities
have begun to borrow against their em-
ployee health and pension funds. Accord-
ing to the Bureau of Labor Statistics, the
electric utility industry is expected to de-
mand a greatly inreased share of total
private investment capital, 50% more in
1985 than in 1956-70. (69)
I n the last few years a number of planned
power plants, particularly nuclear plants,
have been cancelled for lack of sufficient
capital in the utility industry.(70) This in
turn has created a capital shortage for the
manufacturers of nuclear power plants, as
has already been documented.(71) The
shortage is so severe, that the world's largest
manufacturer, Westinghouse, has called on
the U. S. government to save the industry
by purchasing the expensive plants. (72)
Thus, if the energy industry's demand for
investment capital continues to grow at its
present and projected rate, it may take up
so much of the available capital as to inter-
fere with the capital requirements of the
entire economy. A New York Stock Ex-
change report estimates that U. S. business
lacks some $650 billion of the approxi-
mately$4700 billion of the total investment
needed over the next ten years. (73) A
Chase Manhattan Bank report estimates
the shortage at $1500 billion out of a total
need of $4100 bill ion. (74)
The proposed solutions to this capital
shortage are to reduce government expen-
ditures, or to increase taxes and subsidize
private industry, while providing increased
corporate investment tax credits, capital
depreciation allowances, and reduced cor-
porate income tax. (75) If this solution too
severly limits the buying power of the con-
sumer, however, industry will be even less
able to generate its own capital. Ultimately,
the consumerltaxpayer will either be able
to bear the economic hardships of supply-
ing the necessary capital, or not. Either
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way the nation may suffer a terrible eco-
nomic depression. One way or another,
large amounts of capital must be generated
in order to develop the new sources of
energy which will be so desperately needed
as the end of this century marks the close
of the era of petroleum and natural gas.
Thus, the coming energy crisis can be seen
as inextricably linked to the future of the
U.S. economy, indeed, to the economy of
theentire industrialized world. The sudden
and drastic rise in oil prices created by
O.P.E.C. in 1973-74 was only a leading
sympton of the far deeper economic crisis
likely to develop when world oil supply
fails to meet world demand. The existing
energy crisis is already making itself felt
in the shortage of capital, in the increasing
rates of inflation, in the wage-price spiral,
in the erosion of productivity and the con-
tinued high rates of unemployment, in in-
creased balance of payment and budgetary
deficits, and in the steady erosion of the
dollar abroad. When the real energy crisis
occurs it may well cause a series of such
changes which will affect the very possi-
bility of economic survival of this and
every other industrial ized nation.
For the purpose of this plan, however, it
must be assumed that the nation will
enter the 21st century having successfully
weathered the energy crisis which now
approaches. But it is not an assumption
that can be taken for granted. Every step
taken between now and the time when a
lasting source of energy has been secured,
every national policy enacted, every local
ordinance passed, must attempt to help
bring that day closer.
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SECTION II: CLEARWATER'S ENERGY FUTURE
18 Clearwater's Present Development Trends
19 Population
20 Housing
22 Income and Employment
23 Industry
24 A Tourist Economy
25 Energy Supply and Demand Trends
25 Gasoline Supply
26 Electricity Supply
27 Natural Gas Supply
. 28 Fuel Oil and L.P. Gas Supply
28 Total Energy Supplies
30 Energy Supply Comparisons
32 Energy Demand Patterns
33 Residential Demand
33 Commercial Demand
34 I ndustrial Demand
34 Public Facilities Demand
35 Transportation Demand
35 The Energy Crisis and the Community
.
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"," SECTION II: CLEARWATER'S ENERGY
...J FUTURE
U
Clearwater's Present Development Trends
Located on the west coast of Florida,
Clearwater has evolved into predominantly
resort/retirement community. The City's
attractions include a warm, sunny climate,
I ife near the water, beaches and other
recreation facilities, relative freedom from
typical urban problems such as pollution,
traffic congestion, crime, and high
taxes. Clearwater's character is significantly
different from both the nation as a whole
and from most other American cities of
similar size. These differences include an
accelerated population growth rate, a large
proportion of population in the 65 and
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older age bracket, and economic reliance
on commercial-retail and tourist trade
rather than on manufacturing or goods-
producing industry. These differences are
TABLE I. LAND
Single Family
Duplex-Medium Density
Multi-Family
Total Residential
Commercial
Industrial
Parks/Pu bl ic
I nstitutional/Semi-publ ic
Streets
Clearwater
( 1-1-76)
30%
5%
7%
42%
13%
0.6%
9%
2%
33%
100%
e
reflected in the way land is used in Clear-
water when compared to the way land is
used in average American cities, as evi-
denced in the table below:
USE COMPAR ISONS
Rand
(Table 1)
Harland
Bartholomew
(Table 3)
31%
4%
2%
37%
3%
10%
6%
11%
33%
100%
e
39%
5%
11%
20%
25%
100%
Source: Clearwater Planning Department; Rand Insitute, Recent Land-Use Trends in Forty-
Eight American Cities; Harland Bartholomew, Land Uses in American Cities.
Population
At present Clearwater's city limits encom-
pass approximately 22 square miles and an
estimated population of 89,120 people.
Clearwater's service and planning area is
significantly larger, encompassing about
31 square miles and 106,724 people. It is
anticipated that the city limits will gradu-
ally expand to include that of the present
service and planning area, so that projec-
tions of future population use the larger
figu re as a 1978 base. With improved health
care and a decreasing birth rate, the average
age of the population of the nation as a
whole is expected to increase. Clearwater
currently has a large segment of its popu-
lation in the older age brackets, and this
proportion can be expected to increase
even more in the future. Population is ex-
pected to increase steadily, reaching
137,171 by 1995,60% of whom (or 82,000)
will be 45 years of age or older. (1) The
table on the following page was derived
using the initial age distribution of the
base population and applying Clearwater's
preferred growth strategy. Projections of
the future become increasingly less certain
as the time span increases, however, so it
must be stressed that factors such as
radical changes in the nation's economic
outlook, for instance, could change both
the rate at which Clearwater's population
grows and the overall distribution of that
population among the various age brackets.
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AGE
0-24
25-44
45-64
65+
TOTALS
TABLE 2. PROJECTED POPULATION
CITY OF CLEARWATER SERVICE AND PLANNING AREA
1978 1980 1985 1990 1995
32,121 34,330 35,515 36,444 37,036
18,250 18,134 17,456 16,624 18,107
25,080 27,145 28,171 29,4 11 31 ,686
31 , 163 34,444 39,247 45,395 50,342
106,724 114,053 120,389 127,874 137,171
SOURCE: City of Clearwater Planning Department and Hammer, Siler, George Associates.H
Housing
The number of households in the City is
expected to reach nearly 60,000 by 1996.
The average number of persons per house-
Year
1975
1980
1985
1990
1995
hold is expected to decrease due to the
influence of retirees and overall trends
t,owards single-person households.
TABLE 3. PROJECTED NUMBER OF HOUSEHOLDS IN
CLEARWATER PLANNING AREA
Number of
Households
43,561
47,325
50,584
54,414
59,125
Average Number
of Persons per Household
2.45
2.41
2.38
2.35
2.32
SOURCE: Hammer, Siler, George Associates and the City of Clearwater Planning
Department.
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The projected housing trends for Clear-
water have been predicted on the assump-
tion of continued local and national
economic growth. The number of new
housing units required to meet expected
population growth to 1995 is shown in
the table below:
TABLE 4. REQUIRED NEW HOUSING UNITS, 1975-1995
Net New
Years Population Units
Chanqe Required
1975-1980 7,329 3,331
1980-1985 6,336 2,880
1985-1990 7,485 3,402
1990-1995 9,297 4,226
TOTALS 30,447 13,839
SOURCE: City of Clearwater Housing Plan, City of Clearwater Planning Department.
While an economic depression brought
about by an energy crisis would damage
the housing industry and stifle new housing
development, it would also inhibit demand
for new housing, lessening the severity of
a housing shortage. With approximately
80% of Clearwater's service and planning
area already developed or committed, it
should be expected that a depression would
bring about the shift from new develop-
ment to redevelopment sooner than would
otherwise have been the case. Large scale
new developments and redevelopment can
be expected to continue, however, until
sometime around 1990. By then Clear-
water's planning area will have fully devel-
oped along the land uses projected on the
following page. During a depression, re-
development would take on far humbler
proportions than wholesale site razing and
rebuilding. Existing housing is likely to be
only repaired and maintained. Neighbor-
hoods would be likely to experience a
period of retrenchment, if not actual
physical decline in some cases.
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21
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HISTORIC AND PROJECTED CLEARWATER LAND USE
(Excluding Vacant Land)
1958 1976 1995
Acres % Acres % Acres %
3,127 41 5,535 42 9,577 46
567 7 1,733 13 1,561 7
413 5 80 0.6 347 2
1,311 17 1,346 11 2,690 13
2,348 30 4,340 33 6,925 32
7,766 100% 13,034 100% 21,100 100%
Use
Residential
Commercial
Industrial
Public/Rec.
Street
TOT ALS
SOURCE: City of Clearwater Housing Plan, City of Clearwater Planning Department.
Income and Employment
On average, Clearwater's per capita income
has in the past been higher than that of
Pinellas Co~nty. However, the gap between
the two has narrowed slightly and should
be expected to continue to do so in the
future. Clearwater's per capita income ex-
ceeded the overall Pinellas County average
by almost 10% in 1970, and by almost 9%
in 1975. As reported in the 1970 census,
Clearwater's median family income of
$8,338 is comparable to that of the overall
average of $8,233 for other Florida cities
whose population is greater than 10,000.
The median income of Clearwater's single
retired persons (widowed or divorced) was
$3,171. however, as compared to this
group's median income of $2,338 in Florida
cities of the same size. This implies that
Clearwater's wage earning families have in-
comes comparable to their peers across the
state but that Clearwater's retired persons
have relatively greater financial resources
than those who live elsewhere. Predictions
of future real income gain or losses become
extremely uncertain as the time span in-
creases.
Throughout most of the country, employ-
ment opportunity tends to generate popu-
lation increases. In Clearwater, as in many
other resort/retirement communities, the
reverse is true: that is, the economy reacts
to its population growth and demographic
makeup. As more people arrive to spend
their retirement years in Clearwater, the
economy expands to meet the specific
needs of these growing markets. Tourists
and retired people are consumers of the re;
tail and services industries, while this same
population mix adds up to a small labor
pool which discourages goods producing
industries from entering Clearwater's econ-
omy. This situation is reflected in the fact
that only one job in six has been related
to the actual production of goods in Clear-
water. This trend is expected to continue
in the future, as indicated in the table
on the following page.
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TABLE 6. CLEARWATER PLANNING AREA EMPLOYMENT FORECASTS
Year
Total Non-Farm
Employment
33,339
39,264
45,044
49,523
56,643
Percentage In
Services
Producing
Goods
Producing
16.5%
16.0%
15.7%
15.5%
15.2%
83.5%
84.0%
84.3%
84.5%
84.8%
1975
1980
1985
1990
1995
SOURCE: Hammer, Siler, George Associates and the City of Clearwater Planning Department.
Industry
At present, less than 1% of the total land
area in Clearwater is used for industrial
purposes, while the average American city
of similar size devotes 10-11% of its land
area to industrial uses. (2) Current land use
plans will encourage I ight industrial growth
to 347 acres by 1995, equall i ng 2% of the
total projected land area of the city. I n the
past, it has been thought that Clearwater's
relative lack of goods production industries
could have dangerous economic effects
over the long run. Yet, the relatively little
growth planned for Clearwater's industrial
sector has largely positive aspects consider-
ing America's energy future.
That 10-11 % of an average city's land area
wh ich is devoted to industrial use is re-
sponsible for 37 -40% of the total energy
consumption throughout the nation. (3)
Greater by 25% than the energy consumed
by the residential and commercial sectors
combined, industry is the largest single
consumer of energy in the nation. I ndus-
try's high labor productivity has been
achieved by correspondingly intense de-
mands on two other important economic
resources: capital and energy. Further, in
the near future, according to the Federal
government's projections, the industrial
sector will experience the largest increases
in national energy consumption.(4) This
means that when and if severe energy con-
servation measures are put into effect, in-
dustrial growth will experience an abrupt
halt. The typical response of the past to
energy shortages and other economic woes,
has been job layoffs. The economic impact
of such moves on the affected local econ-
omy is generally far more crippl ing than
their impact on the economy as a whole.
Thus, because of the relatively small con-
tribution industry makes directly to Clear-
water's economy, Clearwater will be spared
the more marked localized economic and
social effects of widespread industrial jOb
layoffs.
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J" A Tourist Economy
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Clearwater's economy is based on tourism
and commercial-retail industries. The
"tourist season" has gradually expanded
over the years from a few months during
each winter to a nearly continuous stream
of vacationers year round. Further, tourism
contributes heavily to the support of the
commercial-retail industry as well as gener-
ating its own industry.
I n an energy-short future, transportation
will become increasingly expensive. Gaso-
line rationing is a real possibility. Even
fuels for airlines could be rationed. Wide-
spread job layoffs in the northern indus-
trial states due to energy shortages and
cutbacks would resul.t in fewer people
being able to afford vacations. I n short,
fewer and fewer tourists would be coming
to Clearwater. If these events occur, the
tourist sector of Clearwater's economy
would be seriously damaged. The hotel-
motel industry would, of course, be hard-
est hit. Restaurants might also find them-
selves in trouble.
Though Clearwater, like the rest of the
nation, weathered the economic depression
of the 30's intact, it was a rough ride. Be-
cause the depression of the 30's was brought
on by fiscal mismanagement, and not by the
mismanagement of actual energy resources,
however, tourists who could still afford to
do so continued coming to Clearwater even
during the depression's worse years. It is
doubtful that this will be the case if trans-
portation fuels are strictly rationed during
a depression brought on by an energy crisis.
During the last depression Florida experi-
enced a sudden influx of unemployed
workers and their families fleeing from the
cold northern winters because they could
not buy the fuel needed to heat their
homes. Then there was fuel available if one
could pay for it. It seems reasonable that
Florida, like the rest of the "sunbelt"
states, would again experience a large in-
crease in population caused by people
out of work seeking warmth.
Partly because Florida's recreation econ-
omy was hard hit by the depression, partly
because of the large numbers of northern
workers fleeing south, Florida received
massive doses of Federal aid during the
"New Deal" era which softened Florida's
experience of the depression compared to
most states. Add to this the effects of
warm climate and the lack of an industrial
base for its economy and the Florida of
the thirties can be seen to have survived
reasonably better than many states. It is
questionable, however, whether Florida
can expect any preferential treatment of
Federal aid such as it received during the
thirties if the energy crisis plunges the
nation into another depression. The north-
ern and midwestern states must receive
preferential fuel allocations to survive the
killing winters and to put heavy industry
back on its feet. As forewarned in the
National Energy Plan, the recreation (and
tourist) industries will be among the first
to feel the economic effects of an energy
crisis and among the last to receive rei ief.(5)
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",V' Energy Supply and Demand Trends
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What are Clearwater's future energy needs?
Where will the energy come from? How
wi II the energy be used? These are questions
which must be answered before any effec-
tive measures can be taken to mitigate the
severe economic and social damages the
coming energy shortages could otherwise
cause. In 1978, Clearwater's citizens will
consumealmost40 million gallons ofgaso-
line, burned in the engines of their cars and
trucks, and will use nearly 1.7 billion kilo-
watt hours of electricity to cool, heat and
light their homes, stores and offices. To-
gether, these two forms of energy alone ac-
count for nearly 90% of the energy used in
Clearwater, with the remaining consump-
tion met the natural gas, fuel oil and
bottled gas suppl ies. (6)
Gasoline Supply
The total monthly and yearly consumption
Year
1970
1975
1980
1985
1990
of gasoline consumed in Pinellas County,
Florida, has been compiled by the Florida
State Energy Office for the time period from
January 1968 through December 1977. The
National Energy Plan, using data projected
by the Environmental Protection Agency,
indicates that gasol ine consumption will be
increasing at under 3% to the year 1985 and
will increase by about 1% thereafter due to
full implementation of the national EPA
mileage standards for transportation vehi-
cles, and due to the effects of higher gaso-
line prices. (7) Nationally, though total
gasoline consumption will continue to
grow, the per capita use of gasoline will de-
cline in the future as population growth in-
creases at a faster rate than total rate of
gasoline consumption growth. Applying .
this data to the projected population growth
for Pinellas County highlights this trend.
e
TABLE 7. PROJECTED GASOLINE CONSUMPTION FOR PINELLAS COUNTY
Total County Avg. Annual Total Gasoline Avg. Annual Per Capita
Population Increase Consumption (Gal.) Increase Consumption (Gal.)
522,442 194,046,614 371.4
.6.2% 6.2%
685,366 254,518,754 379.8
3.7% 2.9%
811,900 291,169,455 358.6
1.5% 1.5%
872,850 313,007,164 358.6
1.2% 1.0%
926,690 328,657,522 354.7
1.5% 1.0%
999,140 346,841 ,460 347.1
1995
SOURCE: Monthly Florida Motor Gasoline Consumption, 1968 through 1976, State of Florida,
Department of Administration, State Energy Office and The National Energy Plan.
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V' Gasoline consumption for Clearwater can
'" be derived by multiplying the per capita
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consumption rates by Clearwater's total
and projected planning area populations.
TABLE 8. PROJECTED GASOLINE CONSUMPTION FOR CLEARWATER
Total City Planning Avg. Annual Total Gasoline Avg. Annual
Year Area Population Increase Consumption (Gal.) Increase
1975 94,580 35,921,484
4.1% 2.8%
1980 114,053 40,899,406
1.1% 1.1%
1985 120,389 43,171,495
1.2% 1.0%
1990 127,874 45,356,908
1.4% 1.0%
1995 137,171 47,618,863
SOURCE: City of Clearwater Planning Department and the Clearwater Energy Office.
Electricity Supply
All of Clearwater's electric power is sup-
plied by the Florida Power Corporation, an
investor owned, publicly regulated com-
pany which supplies electricity to 32 Florida
counties. On July 5, 1966, Florida Power
Corporation was given an exclusive fran-
chise by the City of Clearwater for the
purpose of supplying electric power to the
City and its citizens for a period of 30 years.
Florida Power Corporation divides its ser-
vice area into 40 districts, of which the
Clearwater District includes the City of
Clearwater, the City of Clearwater Plan-
ning Area, most of the town of Belleair,
most of the City of Dunedin, Belleair
Beach, and a large area of unincorporated
land west of the Clearwater-St. Petersburg
Airport and east of U.S. Highway 19. In
1977, the Clearwater District of Florida
Power Corporation consumed a total of
2,039,435,220 kilowatt hours of electric-
ity.(S)
At an average annual increase of electric
power consumption of slightly more than
6% the electric power consumption for
1978 will be approximately 216 million
kilowatt hours. Since Clearwater's Plan-
ning Area population of 106,724 is ap-
proximately 75% of the total population
of the Clearwater District, Clearwater will
consume approximately 1,669 million kilo-
watt hours of electric power in 1978. As
pointed out by both the Energy Element
of the Florida State Comprehensive Plan
and the Florida Power Corporation, be-
tween 1960 and 1973 electric power con-
sumption in Florida increased at rates which
doubled consumption every decade. (9)
During the 1973-1974 oil crisis the rate of
consumption did not increase at all. Since
then, the rate of consumption has begun to
rise again, and is expected to continue to
rise at similar rates to about 1980, at which
time demand is expected to increase at low-
er rates averaging between 2 and 3% annually
through 1995. Applying these rates to Clear-
water's present consumption yields the fol-
lowing projections, given the projected in-
creases in population.
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",V' TABLE 9.
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PROJECTED ELECTRIC POWER CONSUMPTION FOR CLEARWATER
Total Electric Power
Avg. Annual Consumption Avg. Annual
Increase (Millions of KWH) Increase
1,669
3.4% 4.5%
1,821
1.1% 3.1%
2,107
1.2% 3.4%
2,475
1.4% 2.7%
2,813
Year
1978
1980
1985
Total City Planning
Area Population
1990
106,724
114,053
120,389
127,874
1995 137,171
SOURCE: City of Clearwater Planning Department and Florida Power Corporation.
Natural Gas Supply
resource that in allliklihood will continue
to decline in total availability, increase in
cost, or both.
The Florida State Energy Office states in
their February 1977 report, Forecasts af
Future Supply & Demand of Energy z'n
Florz'da, that total natural gas consumption
has decreased from a peak in 1973 of 319.4
trillion BTU's to 298.4 trillion BTU's in
1975, and predicts that total consumption
will drop to 208.5 trillion BTU's by
1985. (10) This decline in total consump-
tion is being experienced because of supply
shortages, but is affecting electrical utilities
almost exclusively. Of primary importance
to Clearwater is the fact that residential
and commercial usage is climbing, and is
expected to continue increasing through
1985. Clearwater needs to be prepared to
handle increasing demands for service while
carefully managing a utility based on a
Presently natural gas suppl ies about 9% of
the total energy consumed in Clearwater.
The Clearwater Gas District will provide
about 1,032millioncubic feet of gas to its
consumers in 1978. The percentage of
energy supplied to Clearwater by natural
gas is expected to remain at 9% to about
1985 or 90, or around the time national
supplies of natural gas will begin to limit
demand. Depending on supply availability,
the rate of growth in natural gas consump-
tion should continue at around 2-4% to
this time, with very minimal or no-growth
occurring afterwards to 1990 and beyond,
at least until new sources of gaseous fuels
become available on an economic scale. (11)
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TABLE 10. PROJECTED NATURAL GAS CONSUMPTION FOR CLEARWATER
Year
1978
1980
1985
1990
Total City Planning
Area Population
Total Natural Gas
Avg. Annual Consumption Avg. Annual
Increase (Millions of Cubic Feet) Increase
1,032
3.4% 3.6%
1,107
1.1% 2.2%
1,231
1.2% 1.5%
1,321
1.4% .7%
1,365
106,724 .
114,053
120,389
127,874
1995 137,171
SOURCE: Clearwater Planning Department, Department of Utilities and the Clearwater
Energy Office.
Fuel Oil and L.P. Gas Supply
Total Energy Supplies
Fuel oil and bottled gas supply less than 2%
of Clearwater's energy needs. Fuel oil is
used mainly for space heating in homes
which have oil burning furnaces; bottled
gas is used mainly for water heating and
cooking in mobile homes, trailers, and in
older houses and buildings in Clearwater.
Industrial use also accounts for a small
portion of fuel oil and bottled gas consump-
tion. Because most newer mobile homes
are all electric, and because industrial use
is limited to specific applications, it is un-
likely that fuel oil and bottled gas consump-
will grow significantly. Fuel oil and bottled
gas are rarely used in new urban construc-
tion. During the planning horizon it may
be expected that use of these fuels will
stabilize and, ultimately, decrease in pro-
portion to other energy supplies as older
mobile homes are replaced by all-electric
units.
By converting each of Clearwater's energy
sources to a common measurement of
energy, such as British Thermal Units, a
meaningful total of consumed energy is
obtained. The British Thermal Unit, or
BTU, is a standard unit of energy which
equals the amount of energy required to
raise the temperature of one pound of water
one degree Fahrenheit. For example, it
takes approximately 300 BTU's to boil one
quart of tap water from an initial tempera-
ture of 620 F. One quart of water weighs
two pounds. The difference between 620 F.
and 2120 F. is 1500 F., so two pounds x
1500 F. = 300 BTU's. Clearwater's present
and projected energy suppl ies when con-
verted to BTU's are presented on the fol-
lowing page.
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",V' TABLE 11. PROJECTED ENERGY SUPPLIES CLEARWATER (BILLION BTU'S)
...J Year Gasoline Electricity Natural Gas Fuel Oil & LPG Total
U
197 4,879 5,696 1,064 213 11,853
1980 5,112 6,214 1,141 221 12,688
1985 5,396 7,192 1,269 233 14,090
1990 5,670 8,446 1,362 238 15,716
1995 5,952 9,600 1 ,408 238 17,198
Total
Growth
1978-95 22% 68% 32% 11% 45%
SOURCE: City of Clearwater Planning Department.
Because each energy source will be con-
sumed at different rates determined by
availability of supply, cost, population
growth, and changing energy use trends,
the proportion of each source to the total
will change over time, as indicated by the
following table:
TABLE 12.
PROJECTED PROPORTIONS OF ENERGY SUPPLIES TO TOTAL ENERGY SUPPLY
Year 1978 1980 1985 1990 1995
Gasoline 41% 40% 38% 36% 35%
Electricity 48% 49% 51% 54% 56%
Natural Gas 9% 9% 9% 9% 8%
Fuel Oil & LPG 2% 2% 2%(or less) 1% 1 % (or less)
Total 100% 100% 100% 100% 100%
SOURCE: City of Clearwater Planning Department.
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/qV' Energy Supply Comparisons
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To compare Clearwater's energy supplies
with those of Florida, the nation, and the
world, however, requires breaking the
supplies into their respective energy
sources. Gasoline, for instance, is a refined
oil product, as are fuel oil and liquified
petroleum gas. Electricity can be broken
down into the various fuels used to gener-
ate electricity, such as oil, natural gas,
nuclear power and coal. At present, Florida
Power's fuel mix is 46% oil, 26% nuclear
power, 18% coal and 10% natural gas. (12)
This mix will change in the near future,
with plans to phase out natural gas entirely
by 1980. By the mid 1980's the percentage
of oil in the fuel mix will be substantiqlly re-
duced due to the addition of two 640 mega-
watt coal-fired generating plants. After
1985 increased reliance on either coal or
nuclear power is expected to further reduce
dependence on oil. Coal seems the more
likely bet, due to the large costs and many
uncertainties surrounding the nuclear power
industry, and because oil-fired plants can be
converted to burn coal. The cost of such
conversion is expensive, but even so it is less
than the cost of new construction either of
coal or nuclear power plants. I n addition, the
cost of pollution control is expected to
have dropped dramatically by 1980-1985.
e TABLE 13. PROJECTED FLORIDA POWER FUEL MIX
Year 1976 1978 1980 1985 1990. 1995
Gas 12% 10% 0% 0% 0% 0%
Coal 0% 18% 27% 42% 60% ?
Nuclear 0% 26% 26% 21% 18% ?
Oil 88% 46% 47% 37% 22% ?
Total 100% 100% 100% 100% 100%
SOURCE: Florida Power Corporation
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'" Thus, Clearwater's present energy supply
...J broken down by fuel source can be com-
U
Oil
Gas
Nuclear
Coal
Other (Hydro,
Geo, Solar)
Total
pared with the rest of Florida, the U. S.
and the world in the following table:
TABLE 14. ENERGY SOURCE COMPARISON
Clearwater Florida
65% 72%
14% 16%
12% 5%
9% 7%
100%
100%
United States World
46% 53%
28% 19%
3% 2%
19% 19%
4% 7%
100% 100%
SOURCE: City of Clearwater Planning Department; Florida State Energy Office;
U.S. Bureau of Mines, Department of th~ Interior; Exxon Corporation.
e
Projections for Clearwater's energy source
mix to 1990 have been derived in the table
below:
TABLE 15. PROJECTED ENERGY SOURCE MIX
Year
Oil
Gas
Nuclear
Coal
Other
Total
1978 1980 1985
65% 65% 59%
14% 9% 9%
12% 13% 11%
9% 13% 21%
FOR CLEARWATER
1990 1995
49% ?
9% ?
10% ?
32% ?
?
100%
100%
100%
100%
SOURCE: City of Clearwater Planning Department.
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",V' Energy Demand Patterns
...J Just as Clearwater's land use and energy
U source patterns differ from those of the
state and nation as a whole, the patterns
of energy use within the city differ as well.
According to surveys made by the Clear-
water Energy Office the following sectors
of Clearwater's economy will use the fol-
lowing percentages of the total energy
consumed in 1978.
TABLE 16. ENERGY DEMAND IN CLEARWATER
Residential
Commercial
Industrial
Public Facilities
Transportation
SOURCE: Clearwater Energy Office.
These percentages can be compared to
those developed for Florida and the
United States in the following table:
35%
20%
2%
2%
41%
TABLE 17. ENERGY USE COMPARISON
Residential
Commercial
Industrial
Public Facilities & Other
Transportation
Clearwater
35%
20%
2%
2%
41%
Total
100%
Florida
23%
19%
14%
6%
38%
100%
United States
11%
18%
40%
31%
100%
SOURCE: Florida State Energy Office; U. S. Bureau of Mines, Department of the
Interior.
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J" Given Clearwater's population and land
...J use growth strategies now in effect, these
U
Residential Demand
e
percentages can be expected to change
along the following lines in the future.
TABLE 18. RESIDENTIAL DEMAND
1978 1980 1985 1990 1995
- -
35%
36%
38%1
40%
42%
SOURCE: City of Clearwater Planning Department.
The number of new housing units required
to meet expected population growth to
1995 will be 13,839. Land used for resi-
dential purposes will increase from 5,474
acres in 1978 to 9,706 acres in 1995, an
overall increase of 77%. This substantial
Commercial Demand
growth rate, coupled with an actual annual
growth in energy consumption in the aver-
age household of about 2% will contribute
to the increased percentage of energy con-
sumed by the residential sector.
e
1978
TABLE 19. COMMERCIAL DEMAND
1995
20%
1980
20%
1985
20%
1990
20%
19%
SOURCE: City of Clearwater Planning Department.
The percentage of energy consumed by
the commercial sector is expected to re-
main stable through 1995 largely because
the decreasing percentage of land used for
commercial purposes, 13% in 1978, 7% in
1995, means that the total acreage devoted
to commercial uses wi" remai n rough Iy the
same from 1,733 acres in 1978 to 1,961
acres in 1995. This trend is primarily the
result of deliberate land use management
policies adopted by Clearwater to counter
the overdevelopment which presently exists
in the commercial sector, and to free mar-
ket economics which naturally limit the
amount of commercial activity to the buy-
ing power of the consumer community.
Growth in the commercial sector's energy
use will be limited, therefore, to present
trends of about 2% per year, which account
for increased energy consumption by the
industry as a whole, on a national level.
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",V' Industrial Demand
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1978
TABLE 20. INDUSTRIAL DEMAND
1980 1985 1990
1995
2%
2%
2%
2%
2%
SOURCE: City of Clearwater Planning Department.
Although Clearwater's land use plans call
for an increase of over 400% in the total
amount of land to be developed for indus-
trial purposes, (from 80 acres in 1978 to
347 in 1995) this will still account for only
about 2% of the total land area of the City
in 1995. Li kewise, the industrial sector
Public Facilities Demand
e
will experience the greatest growth in
energy consumption in Clearwater, but
since the overall energy consumption of
the City as a whole will also grow, the pro-
portion of energy used by the industrial
sector will remain small by comparison.
TABLE 21. PUBLIC FACI L1TI ES DEMAND
1978 1980 1 985 1990 1995
2%
2%
SOURCE: City of Clearwater Planning Department.
Li ke the industrial sector, because the
public facilities sector of Clearwater's
energy economy is presently quite small,
even substantial actual growth in this sec-
tor will be offset by the proportional
growth of Clearwater's total energy con-
sumption. Thus, although public services,
such as police and fire protection and
e
2%
2%
2%
water, sewage and sol id waste disposal fa-
cilities, will all grow to accommodate the
city's increased population and greater
land area, the energy needed to operate
these services will remain small compared
to the total amount of energy used within
the City.
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",V' Transportation Demand
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TABLE 22. TRANSPORTATION DEMAND
1978 1980 1985 1990 1995
41%
40%
SOURCE: City of Clearwater Planning Department.
As explained earlier, even though the actual
number of gallons of gasol ine consumed in
Clearwater will increase, the overall growth
(22%) will be less than that of the popula-
tion as a whole (28%). Due to the more
rapidly increasing amounts of energy con-
sumed in the other sectors of the energy
38%
36%
35%
economy, the proportion of energy used in
the transportation sector will be declining
in the future.
The sum effects of these trends on future
energy use in Clearwater can be shown in
terms of actual energy use, below:
TABLE 23. PROJECTED CLEARWATER ENERGY USE (Sl LLlON STU'S)
Year Residential Commercial Industrial Public T ransportati on Total tit
1978 4,160 2,400 169 246 4,879 11,853
1980 4,627 2,513 178 258 5,112 12,688
1985 5,385 2,780 245 284 5,396 14,090
1990 6,351 3,038 317 340 5,670 15,716
1995 7,238 3,242 370 396 5,952 1 7,1 98
Total
Growth
1978-95 74% 35% 119% 61% 22% 45%
SOURCE: City of Clearwater Planning Department.
The Energy Crisis and the Community
The preceding energy supply and demand
projections have been made using the pres-
ent population growth and economic de-
velopment strategies. These strategies are
a combination of present trends and goals
for the future which mayor may not be
successfully realized. In the past, for in-
stance, Clearwater's population has grown
at higher rates than shown for the future.
As Clearwater reaches full development,
the population growth rate will naturally
begin to slow. The extent of full develop-
s
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SUPPLY
CLEARWATER ENERGY SUPPLY AND DEMAND 1978
e
DEMAND
SUPPLY
PROJECTED CLEARWATER ENERGY SUPPLY AND DEMAND 1995
DEMAND
tit
SOURCE: Clearwater Planning Department
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ment will be circumscribed by the imple-
mentation of density and land use goals.
These are the kinds of growth management
efforts being made in fast-growing com-
munities across the nation, attempting to
allow healthy growth while at the same
time attempting to limit the deletorious
effects of over-growth. Thus, the energy
supply and demand projections given are
made for a future Clearwater developed
along present trends and goals and not for
a city facing a nationwide energy crisis in
the latter part of the 1980's or early 1990's.
Unfortunately, at this time there is no way
to make accurate energy projections in the
face of this future. Even if the precise
effects of an energy crisis could be known
and the effects en Clearwater's future
energy supply and demand determined; the
question arises, what can Clearwater do to
affect its own energy future? Can the City
institute a comprehensive energy conserva-
tion and management program which will
mitigate the effects of energy shortages in
the future?
There are basically two good answers to
this question; First, if Clearwater's energy
conservation and management program are
undertaken in concert with programs of
similar intent implemented by communi-
ties throughout the nation, and by the state
and federal governments as well, then an
energy crisis might be successfully avoided.
If Clearwater and other communities
throughout the nation do not institute
energy conservation programs, and expect
the federal government alone to solve the
energy problem, then it is equally likely
that an energy crisis will be inevitable. For-
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tunately, Clearwater need not fear that it
is acting to no purpose in developing and
implementing an effective energy conserva-
tion and management program since many
other cities have also made the real izations
above and have begun to design and imple-
ment energy conservation programs of
their own; cities ranging in size from Los
Angeles, California to Ames, Iowa, and
ranging geographically from Portland,
Oregon to Wilton, Maine. In all, over 150
cities across the country are working to
develop and implement energy conservation
and management programs.(13)
Secondly, if a severe energy shortage does
occur, if, that is, national and local energy
conservation measures prove inadequate,
the national severity of such a crisis will,
nonetheless, be considerably lessened by
these combined individual efforts. In addi-
tion, the economic and social shock of
having to conserve energy still further
will be far less than would occur if no
prior energy conservation measures have
been in effect. The City and its citizens
should realize, however, that there is no
guarantee that meaningful energy con-
servation and management efforts will be
rewarded by freedom from the effects
of an energy crisis depression. Further,
since supplies of energy are likely to be
dictated on a national pOlicy level, manda-
tory cuts in energy supplies are likely to
be made across the board, affecting all com-
munities more or less equally. Energy con-
serving communities may find their energy
supplies curtailed just as much as commu-
nities where no special efforts have been
made to conserve energy.
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SECTION III: ENERGY MANAGEMENT IN CLEARWATER
39 Clearwater's Existing Energy Program
.
39 Phase I, City Municipal Services Energy Conservation Program
40 Street Lighting
47 Phase II, Achieving Citywide Conservation Goals
48 Public Education and Awareness
49 Phase III, Areas of Future Energy Planning
51 Future Energy Management and Planning
51 Goals and Objectives
55
56
57
Policy Recommendations for Implementation
Project Evaluation
Policies
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V' SECTION III: ENERGY MANAGEMENT
/Jj IN CLEARWATER
...J
U Clearwater's Existing Energy Program
I n June, 1977, the City of Clearwater estab-
lished an Energy Office under the director
of the Central Services Department. The
Energy Office is currently staffed by an
Energy Officer, with authorization for
one energy analyst. The Energy Office
developed a Comprehensive Energy Man-
agement Program aimed at reducing the
city's energy consumption by 25%. The
program consists of three phases. First an
"immediate action" phase, during which all
phases of city governmental operations are
analyzed from the standpoint of their
energy conservation potential and large
scale energy conservation measures are
under-
taken. Even though this phase has yet to
be completed, through the energy conser-
vation measures thus far implemented the
City government saved a total of 4.6
million kilowatt hours of electricity
in 1977, yielding a total monetary savings
of approximately $179,224.
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The second phase of the Comprehensive
Energy Conservation Program hopes to
carry the energy conservation efforts to
Clearwater's citizens to achieve the short-
range goal of a 25% energy savings for the
city as a whole. This phase as originally
developed included three basic approach-
es: a home energy auditing program, a
commercial energy auditing program
and a public education and awareness
program.
The third phase of the city-wide energy
conservation program hopes to carry the
conservation efforts into the future and
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includes developing new building codes,
zoning and land use regulations which will
encourage energy efficiency and develop-
ing contingency plans to help the city
su rvive the hardsh ips created by a n energy
crisis. Also included in this phase are stu-
dies researching the feasibility and effects
of various alternative energy sources
available for the City to develop as well
as other long range conservation tech-
niques which might be available.
Phase I, Clearwater Municipal Services
Energy Conservation Program
In developing Clearwater's energy conser-
vation program conservation techniques
were appl ied first to city government be-
fore approaching the residential and com-
mercial sectors of the community. This
procedure proved that a 25% reduction in
energy consumption was a realistic goal,
and demonstrated to citizens that their lo-
cal government was taking steps to conserve
energy and set an example for the rest of
the community. Detailed energy audits
were performed on municipal buildings
which revealed a host of energy ineffi-
ciencies. Retrofitting problems included
poor insulation levels, lack of weather
stripping, excessive heat gains through
roofs and windows, inefficient air condi-
tioning and heating systems and excessive
operation of these systems. Electrical pro-
blems were discovered, such as excessive
lighting levels, excessive use of security
lights and inefficient street lighting. Nat-
ural gas problems were identified, such as ~
the excessive use of natural gas for air ;::,
conditioning and water heating, the ex- 0
cessive use of pilot lights, and the uncer- {f
tainty of present gas supplies. City vehicle ~
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and traffic problems included the excessive
use of air conditioning, excessive idling
time, poor gas mileage due to inadequate
maintenance, unnecessarily inefficient rout-
ing of sanitation trucks, and poorly syn-
chronized traffic lights.
A three phase program was developed to
conserve energy with i n the city government.
The objective of phase one is to reduce by
25% the consumption of energy by city
government without compromising safety,
health or governmental efficiency. The sec-
ond phase will provide a program to main-
that efficiency level once it is achieved. To
insure the success of phase two, a program
will be designed to notify the Energy Office
of any major changes in energy consump-
tion by City buildings and equipment; by
using such techniques as monthly energy
reports, unscheduled inspections, and by
monitoring patterns of employee energy
consumption. The third phase will set en-
ergy efficiency criteria which must be met
by all future public buildings, equipment
and activities. The energy savings potential
of carrying out phase one is great, as the
following table of some of the completed
and proposed municipal building energy
efficiency measures shows.!')
TABLE 24. EXAMPLES OF PHASE I ENERGY SAVINGS
One-Time $ Yearly $ % Energy
Cost Energy Savings Reduction
City Hall $ 2,550.00 $20,532.00 35.7%
City Hall Annex 21,970.00 21,206.00 36%
Martin Luther
King Center 350.00 2,790.00 22.9%
Total $24,870.00 $55,561.00 31.5% (Avg.)
SOURCE: Clearwater Energy Office
Street Lighting
Clearwater's existing street lighting system
consists of 9,450 Mercury Vapor lumi-
naires. 206 High Pressure luminaires, 75
incandescent luminaires and 3 Quartz lu-
minaires. For the sake of simplicity the
75 incandescent and 3 Quartz luminaires
were not included in the attached analysis
tit
but the cost of changing these fixtures was
considered in the estimated budget for a
new system. The total number of luminaires
used in the existing system is 9,656, of
which 7,725 are owned by Florida Power
and leased to the City at an annual charge
of $178,687.80. The City owns 1,931 lu-
minaires at an estimated owning cost of
$53,094.86 (See Note). Clearwater also
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leases from Florida Power Corp. 2,712
wood poles and 305 concrete poles for
$29,898.00 annually. This brings the total
cost of leasing and owning the existing
street lighting system to $261,680.66 per
year.
required to offset in-house cost. A total
owning and maintaining cost for the exist-
ing system is $311,814.86.
The estimated value of a new system equal
to our existing one is $1,684,829.70. With
an annual return of $231,782.66 on a
$1,684,829.70 capital investment, the an-
nual rate of return is 13%%, well over the
amount allowed by the P.S.C.
The maintenance on the existing system is
provided by both F.P.C. and the City with
F.P.C. maintaining 9,256 luminaires at an
. annual cost of $46,065.00 and the City
maintaining 400 luminaires at an annual
cost of $4,069.20 (See Note). This is a to-
tal yearly maintenance cost of $50,134.20.
The amount paid to F.P.C. annually by
the City for rental and maintenance is
$254,650.80 plus an additional $57,164.06
Estimated cost for installing a new system,
including the necessary buy-backs from
F.P.C., would give the City complete own-
ership and enable the City to provide its
own maintenance.
High Pressure Sodium System:
Luminaires and all hardware (less Arms)
Labor to make change
Trucks to service system (2)
3,015 Poles (Buy back from F.P.C.)
7,725 Luminaire Arms (Buy back from F.P.C.)
83 High Pressure Sodium Luminaires (Buy back from F.P.C.)
Total Estimated Cost
$1,060,840.80
340,200.00
90,000.00
158,475.00
73,001.25
14,684.36
$1,737,201.41
Low Pressure Sodium System:
Luminaires and all hardware (less Arms)
Labor to make change
Trucks to service system (2)
3,015 Poles (Buy back from F.P.C.)
7,725 Luminaire Arms (Buy back from F.P.C.)
83 High Pressure Sodium Luminaires (Buy back from F.P.C.)
Total Estimated Cost
$ 985,023.39
340,200.00
90,000.00
158,475.00
73,001.25
14,684.36
$1,661,385.00
(Note: These figures are based on the rental and maz'ntenance rates charged by F.P.G.)
Although the above figures indicate that
the concept of the City of Clearwater own-
ing and maintaining its own street lighting
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system is a cost effective one, it is not the
only important point that the attached
analysis reveals.
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The use of Sodium lighting will reduce the
energy consumption of Clearwater's street
I ighting system by 33% to 64%, at the same
time increasing the quantity of I ight over the
entire system. Clearwater presently con-
sumes 9,305,020 KWH per year. With High
Pressure Sodium luminaires, use would be
6,212,120 KWH per year, a reduction of
33%. The Low Pressure Sodium luminaires
would consume 3,319,268 KWH per year,
or a reduction of 64%. At the present elec-
trical rate this would amount to an energy
savings of $136,513.00 for H.P.S. and
$264,211.00 for L.P.S. per year. The
analysis shows the City is now paying a to-
tal of $733,559.80 per year for street lights.
The breakdown of the money the City
now spends for street lighting per year is
as follows, based on 4,200 hours per year:
Electrical Energy (Paid to F.P.C.)
Rental of Equipment (Paid to F.P.C.)
Depreciation of Equipment (Paid to City)
Maintenance (Paid to F.P.C.)
Maintenance (Paid to City)
Total Expense to City
The cost of owning and operating a High
Pressure Sodium Street Lighting system
per year will be as follows:
Energy Cost
Maintenance Cost
Loan Payment
Sinking Fund
Total
Additional Cash Flow of
$450,316.00
208,225.80
24,883.80
46,065.00
4,069.20
$733,559.80
$274,209.97
129,061.14
209,211.11
28,000.00
$640,482.22
$ 93,077.58
The cost of owning and operating a Low
Pressure Sodium Lighting system per year
will be as follows:
Energy Cost
Maintenance Cost
Loan Payment
Sinking Fund
Total
Additional Cash Flow of
$146,512.48
111,566.43
200,080.59
26,000.00
$484,159.50
$249,400.30
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BOTTOM LINE FIGURES
High Pressure Sodium - Net Value to City in 1998:
Cash Saved $2,838,865.60
Capital Gain 1,469,693.00
Total $4,308,558.60
Low Pressure Sodium
Cash Saved
Capital Gain
- Net Value to City in 1998:
$7,646,224.30
1,364,715.00
Total $8,010,939.30
(Note: All data presented zn thzs sectz'on was gathered by the Clearwater
Energy Offz'ce.) .
Based on an annual increase in energy cost
of 5% a year, the City will be paying no
more dollars for energy in the year 2010
than they are paying today with no addi-
tional tax dollars needed to set up the sys-
tem. The City can finance this retrofitting
program within the existing budget. The
necessary capital could be obtained by
means of a 15-year loan at 8%% interest.
In the case of High Pressure Sodium Sys-
tem the yearly installment for principal and
interest would be $209,211.11. The pay-
ment for Low Pressure Sodium would be
$200,080.59. These payments are included
in the owning and operating cost as indi-
cated on the previous page.
A sinking fund for the High Pressure Sod-
ium System of $28,000.00 per year at 8.5%
yield for 20 years is $1 ,46Fl,693.00. This
will provide the replacement cost of
$1,4 15, 724.00 for a new system. A sink-
ing fund for the Low Pressure Sodium
System of $26,000.00 per year at 8.5%
yield for 20 years is $1,364,715.00. This
will provide the replacement cost of
$1,339,907.00 for a new system. If the
loan payment and the sinking fund contri-
bution were paid on a monthly basis, it
would reduce the amount of these pay-
ments by 2.38% or add to the cash flow
approximately $5,000.00 per year.
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...J as follows:
U Mercury Vapor (Existing System)
Cost
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$50,134.20 per year
High Pressure Sodium System Yearly Maintenance:
Labor $ 62,000.00
Material 46,261.14
Truck Rental 10,800.00
Total $129,061.14
(Note: It is estz'mated that F.P.C. would charge $169,643.40 per
year maz'ntenance for this system.)
Low Pressure Sodium System Yearly Maintenance:
Labor
Material
Truck Rental
Total
$ 62,000.00
38,766.43
10,800.00
$111,566.43
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(Note: No F.P.C. mazntenance cost z'nformation avaz'lable for Low
Pressure Sodz'um.)
There are three problems that will have to
be addressed before either of the proposed
systems can become a reality. First, it will
be necessary to request a hearing with the
Public Service Commission to adjust the
number of hours per year the power com-
pany is allowed to charge for unmetered
lights. At present the P.S.C. is allowing
4200 hours per year. The actual time be-
tween the reduction of natural light to one-
foot candle to the increase of natural light
to one-foot candle (night hours) is 3965
hours. Allowing for cloudy mornings or
intense stormy conditions, which might
trigger the photo-electric cells, it is felt
that a 4000 hours per year of burning time
would be a more accurate estimate. This is
substantiated by the estimated burning
time of street lights used in Washington,
D. C. and Chicago, III., both of which are
4000 hours per year. These two cities are
located at a much greater latitude than
Clearwater and, therefore, would have
more hours of darkness. The second point
that should be addressed to the P.S.C. is
the request to require a credit on non-
operating lights. This can be established on
a percentage of the number of units installed.
The third item that should be covered is re-
quiring an equitable charge for rental and
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maintenance on sodium-type luminaires.
Thiswill only be needed if the power com-
pany wants to make a contract.to furnish
the sodium system at a price that the City
can real ize a substantial savings over the
present system.
The question of disposing of existing lumi-
naires owned by the City can be solved by
offering them for sale to other municipali-
ties or private consumers. The proceeds
should bring approximately $75,000.00.
This could be set aside for a contingency
fund for covering any~hing over book value
that the power company might claim it has
invested in the remainder of the existing
units it owns.
The advantages of the proposed Sodium
systems are:
1. Reduction in energy consumption
Clearwater will save from 3,092,900 to
5,985,752 Kilowatt Hours per year, de-
pending on which sodium system now
used.
2. Reduction in total yearly cost of system
The reduction in the monies now being
paid for street I ighting would be
$93,077.58 or $249,400.30 per year,
depending upon which sodium system
was adopted.
3. Reduction of crime
The system's lighting level will be in-
creased by approximately 40%. A study
conducted by the University of Michigan
showed a direct relationship in the re-
duction of crime with an increase in the
street lighting level.
4. Ownership of the system
Under the proposed plan, the City would
be able to purchase the new system by ob-
taining a loan with the money saved from
the existing budget. It could amortize
the loan in 15 years plus provide a sink-
ing fund which at the end of 20 years
(the life ex pecta ncy of the system) wou I d
replace the system with no new loans or
taxes required. As should be noted in
item No.2, it will also give the City a
substantial cash flow from the start.
5. Flexibility of adding, reducing or updat-
ing the system without paying a premium
to F,P.C.
By owning the system, Clearwater would
be free to add or substract I ight without
penalty. The City would be able to stay
abreast of new methods and equipment.
6. To help maintain the national energy
conservation effort
In 1977, the City of Clearwater was
named as one of the top ten cities in the
nation for its efforts in energy conserva-
tion. This would be one more way to
demonstrate that Clearwater is a progres-
sive, growing city and to attract new in-
dustries to Clearwater.
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There have been objections raised against
sodium type lighting. Some are valid and
some are not. The objections are as follows:
1. Color of light:
The color of sodium lighting is yellow.
The low pressure sodium is sl ightly more
yellow than high pressure sodium. A
su rvey conducted by the State of III i no is
Department of Transportation, on a part
of the Stevenson Expressway, which
uses low pressure sodium indicates that,
over time, driver acceptance of the yel-
low-cast of sodium lighting is no worse
than that of the blue-green cast of mer-
cury vapor lighting. In Clearwater, the
acceptance of the yellow light has been
very good, as indicated by the City's
own installation on Cleveland Street
and U.S. Highway 19.
2. Glare
Glare with sodium vapor is less than with
Mercury valor light, especially in incle-
ment weather. This is also indicated in
the Stevenson Expressway Survey by a
86% to 10% ratio.
3. Color rendition
Color rendition is slightly reduced under
sodium light; however, there appears to
be no difficulty in distinguishing the
basic colors. Again the reader is referred
to the Stevenson Survey No.8.
4. Danger (possible fire hazard)
Statements have been made that low
pressure sodium I ights are dangerous due
to the large amounts of sodium used in
the lamp. It is true that when a low
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pressure sodium bulb is destroyed that
the sodium in the bulb should be de-
activated by bringing it into contact with
water. Care must be taken, as this results
in a violent reaction, but one that can be
easily controlled if it is done in small a-
mounts. This is not a consideration with
high pressure sodium lamps as there is
very little sodium used in its manufac-
ture.
5. Destruction of plant life
There has been a theory raised that so-
dium light is harmful to plant life. This
has been disproved by Dr. John W.
Andresen, Professor of Urban Forestry,
University of Toronto, Ontario. His tests
and studies were conducted in Chicago,
Cleveland and Milwaukee.
6. High maintenance cost
It is true that sodium lamps are more
costly than mercury vapor lamps. The
lamp life of the lower wattage high pres-
sure sodium lamps are 16% less than
mercury vapor lamps. The life of low
pressure sodium lamps are 25% less
than mercury vapor. The increased main-
tenance cost amounts to 9% of the total
yearly operating cost. This is offset by
an average saving of 48% in total system
cost over mercury vapor lamps.
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The change to a sodium street lighting sys-
tem is cost effective. It will, over the next
20 years, completely amortize its initial
cost, provide for continued replacement
and growth, and supply the City with
$7,646,224 of additional money without
increasing the present budget. It will mod-
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ernize and increase Clearwater's lighting
system so it will be one of the nation's
best. It will put Clearwater in line for
possible federal funding. The percentage
of such funding will have a similar effect
on the calculations in th is report as regards
to initial cash outlay, time of amortiza-
tion and etc.
Phase II - Achieving Citywide Conserva-
tion Goals
I n the first quarter of 1978, the Energy
Office initiated an energy advisory and
auditing service for the citizens of Clear-
water. At the request of the homeowner,
an energy auditor made a visit to the home
and conducted a detailed survey. The
survey involved physical inspection of the
dwelling to look for energy waste and an
interview with the homeowner to deter-
mine energy consumption habits. (2)
Each auditor was trained to understand
the problems of energy conservation
and to instruct and advise the home-
owner in all phases of home energy
conservation. Each home audit took
about two to three hours and at the
height of the program, requests for home
energy audits were booked two to three
weeks in advance.
When a home audit was completed the
auditor made energy conservation sugges-
tions which are economical and effective
techniques to reduce the homeowner's
energy use by as much as 25-30%. The
home energy audit recommended such
proven energy conservation measures as:
the addition of insulation to floor, wall or
roof spaces,
the addition of window shades, or solar
film, awnings, blinds, or drapes,
the maintenance of air conditioning and
duct systems, with regular changes of
air conditioning filters,
the elimination of purely decorative light-
ing,
use of low wattage bulbs in all areas ex-
cept those requiring high visual acuity
such as the work bench, kitchens, or
bathrooms,
the replacement of pilot lights on gas
appliances with automatic electric
ignition systems,
the addition of caulking or weather strip-
ping around doors, windows, and foun-
dations,
time clocking appl iances such as hot water
heaters and air conditioners,
closing off air conditioned rooms from the
rest of the house when not occupied,
the use of dishwashers and washing mach-
ines for full loads only,
setting the water heater thermostat to pro-
vide water no hotter than the hand will
tolerate,
turning the air conditioning thermostat to
78 in the summer, the heating thermo-
stat to 68 in the winter.
During the life of the program, about 750
homes were audited, and the Energy Office
was receiving about 5 additional requests
for audits each day. Then, in late 1978
the U.S. Congress mandated the States to
work with utilities to develop home energy
auditing programs, and the Public Service
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Commission designated the Florida Power
Corporation as the official auditing agency
for its service region. As a consequence the
Florida Power Corporation has undertaken
this task with the aid of its own energy
auditors and a computer program designed
to determine the results of its audits. The
Florida Power Corporation offers a home
energy audit to anyone who requests it
and charges a nominal fee for the audit.
After the audit has been completed the
Florida Power Corporation, based on its
computer analysis, determines the cost
and savings potential to the homeowner
for various kinds of energy conservation
techn iques.
Public Education and Awareness
RealiziRg that the reduction of Clearwater's
total energy consumption is dependent on
the efforts of all citizens, the second part of
phase two involves the development of vari-
ous public education and awareness pro-
grams. The news media are being used on
a small scale to help convince the public
that there is an energy crisis and that some-
thing can be done aobut it. The Energy
Office also conducts lectures and seminars
on an invitatiqn basis to schools and civic
groups throughout the city. An "Energy
Hot Line" has been established to answer
citizen's questions and to receive energy
conservation suggestions. The information
developed has been put on a series of
casette tapes covering the following topics:
insulation, air conditioning, heating, wea-
ther stripping, home appliances, lighting,
automobile operating and assessing utility
bills. The taped message covering the caller's
area of interest is played by an operator.
At the end of the tape the operator comes
back on the line to ask if there are further
questions. If the caller requires further
information, the call will be transferred to
the Energy Officer or one of his trained
staff members. Indications are that the
more heavily this service is advertised the
more heavily it will be used.
In addition to establishing an energy hot-
line, Clearwater's Energy Office has put to-
gether and distributed energy conservation
pamphlets and information flyers to the
public. Within the City government the
Energy Office has distributed posters to
promote energy conserving habits such as
using stairs instead of elevators and turn-
ing off lights not being used. The Energy
Office also sponsored an"Energy Contest"
among City employees to encourage people
to think of ways to save energy on the job.
It
Another method of encouraging publ ic par-
ticipation in energy conservation would
be the establihsment of a Citizen's Energy
Conservation Committee which would
consist of community leaders and citizens
from various wal ks of I ife. The citizen's
committee could be composed of mer-
chants, professional people, businessmen,
retirees, labor representatives and others.
The individual members and interest re-
presented would bring a wide variety of
expertise to the committee. The committee
would act as liason between the city's
energy conservation programs and the re-
spective organizations and interests in the
Community. The committee could submit .=s
energy conservation suggestions to the City, 5
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help develop effective programs and cam-
paigns, and serve as an excellent sounding
board for the effectiveness of proposed
energy conservation ideas and pol icies. Be-
cause the community leaders represented
on the committee would have a personal
and professional stake in seeing energy
conservation measures work, they would
add an extra dimension of effectiveness to
any program undertaken with the commit-
tee's stamp of approval.
The establishment of energy conservation
instrucition in school cirricula is a neces-
sary part of any long range conservation
effort. Energy study programs should be
geared for each age group, with the overall
aim of preparing students for a world in
which energy is no longer plentiful and
cheap. Such programs are already in exist-
ence elsewhere in the nation. (4) Rather
than spend time and money to develop
from scratch an energy cirricula for Clear-
water's schools, advantage should be taken
of such programs, which would then only
need to be tailored to Clearwater's specific
location and energy sitution. Denver,
Colorado, for instance, has one of th na-
tions's most advanced programs. Educators
there started from scratch to write text-
books and develop class activities with the
assistance to the Colorado Office of Energy
Conservation. The program currently in-
volves six schools in Jefferson County.
Other energy education programs have
been established at schools in Los Angeles,
Chicago, Brooklyn, and at Englewood, New
Jersey. In addition, the U.S. Department
of Energy has developed free teaching aids
which are distributed to schools on request.
Long range energy conservation will be
achieved only if future generations are
taught more conservative energy consump-
tion habits than those of today.
Phase III, Areas of Future Energy Planning
The third phase of Clearwater's Energy
Management Program developed by the
Energy Office involves roughly three areas
of future energy planning. First, new build-
ing codes and zoning and land use regula-
tions need to be developed to set building
and land use energy conservation standards
which encourage all new development with-
in the City to employ energy conserving
construction designs. The Energy Office
will cooperate with other Federal, State
and local agencies in developing these codes,
and is currently drafting a proposed model
energy conservation code to be submitted
to the Pinellas County Council of Building
Officials for their approval. The Energy
Office also participated in the Solar Energy
Workshop sponsored by the U.S. Depart-
ment of Energy to establ ish codes and reg-
ulations governing solar energy systems
applications and installations.
Second, feasibility studies on the commu-
nity development of alternate sources of
energy need to be done to determine
whether or not it is feasible for the City of
Clearwater to develop new resources of
energy on the local level. The Energy Office
conducted initial feasibility studies for a
concept to utilize the energy potential of
solid waste in the treatment of sewage at
the Marshall Street Sewage Treatment Fa-
cility. Although the initial study indicated
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the concept would be both economical and
practical, it was discovered that since a
countywide resource recovery program is
mandated by a State Act, a strictly local
solution cannot be implemented at this
time. The Energy Office is also exploring
the possibility of the use of solar energy to
supplement energy use at the following
municipal facilities: Fire Station No.1,
the McMullen Tennis Complex, the Ross
Norton Pool, the Morningside Pool, the
Holt Avenue Pool and the Martin Luther
King Center. Further study and research
is needed to determine' the savings which
could be realized in hot water and space
heating for these facilities. The future
role of more widespread appl ication of
solar energy in Clearwater needs to be
studied as solar research develops new and
more economical technologies.
Thirdly, future energy emergency pro-
grams need to be developed in cooperation
with Clearwater's current energy suppliers,
and in cooperation with Clearwater's di-
saster preparedness planners. Questions of
allotment priorities for fuels such as gaso-
line and natural gas need to be determined
before another energy crisis arises. Manda-
tory rationing procedures, and priorities
for selective interruption of gas and elec-
tricity supplies need to be worked out long
in advance to avoid citywide blackouts,
and to provide for the equitable and order-
ly distribution of scarce fuels during an
energy crisis. It is possible, indeed, it is to
be hoped, that such contingency plans will
never have to be put into effect. Neverthe-
less, should an energy crisis of severe di-
mension arise, the City's governmental
leaders should be prepared to protect the
safety and welfare of Clearwater's citizens.
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U Goals and Objectives
In the first half of this section, Clearwater's
recent energy conservation programs were
reviewed. The comprehensive three phase
plan of the Energy Office is ambitious,
especially given the lack of personnel and
funding available to the Energy Office. Yet,
as has been seen, the potential for energy
and dollar savings through such conserva-
tion programs, both to the City govern-
ment and to Clearwater's citizens, is quite
large. I n I ight of the potential magn itude
of such an energy crisis as has been docu-
mented in this report, and in light of the
City of Clearwater's economic vulnerability
to such a crisis, also documented in this
report, it would seem that a greater commit-
ment of funds and personnel is more than
justified.
COMMUNITY
GOALS AND OBJECTIVES
Environmental Resources
Goal: To preserve the natural amenities
both of privately and publically owned
lands, consistent with private property
rights and the provision of equal housing
and economic opportunities.
Objective: Retain, to the maximum extent
legally permissible, shorelines, wetlands,
vegetation, wildlife, streams and lakes, in
their natural state.
e
The Energy Office must be given perma-
nent status and strong fiscal and adminis-
trative support if the goals and objectives
which follow are to be realized. This is
the single most important recommendation
contained in this plan. The Energy Office
must be expanded to include additional
highly qualified personnel who will be cru-
cial to the effectiveness of the Energy
Office and to the success of the City's
energy conservation pol icies. Therefore,
approval, adoption, and implementation of
the following Energy Goals and Objectives
is recommended.
The overall Community Goals and Ob-
jectives which follow on the left are presen-
ted in the Comprehensive Land Use Plan
Element for Clearwater, and have been
adopted. The Energy Goals and Objectives
on the right correspond to the Community
Goals and Objectives, and are consistent
with them.
ENERGY
GOALS AND OBJECTIVES
Environmental Resources
Goal: To uti I ize Clearwater's natural re-
source potential to yield alternative
sources of environmentally clean energy.
Objective: To encourage widespread public
and private exploitation of solar energy,
thereby lessening the community's depen-
dence on imported and nonrenewable en-
ergy sources, and thereby lessening the
amount of air and other environmental
pollution resulting from the use of such
nonrenewable energy sources.
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COMMUNITY
GOALS AND OBJECTIVES
Economic Development
Goal: To provide a full range of economic
opportunities and activities within the
City of Clearwater.
Objective: Expand industrial and profes-
sional opportunities within the City, while
retaining natural amenities to prevent ero-
sion of the tourist base.
Housing
Goal: To provide for a full range of choices
in housing for persons of all income
groups.
Objective: To provide the means to main-
tain the existing housing stock, while at the
same time allowing maximum choices of
density ranges and site design configura-
tions for new development.
Redevelopment
Goal: To provide for the logical, orderly
re-use of land upon which economically
viable structures no longer exist.
Objective: To encourage inner-city rede-
velopment efforts consistent with the Plan
for Downtown Clearwater.
tit
ENERGY
GOALS AND OBJECTIVES
Economic Development
Goal: To ensure adequate energy supplies
with which to maintain the economic
health of the City of Clearwater.
Objective: To encourage energy conserva-
tion measures by the commercial, indus-
trial and professional sectors of the econ-
omy, thereby saving money and lessening
the impact of imported and non-renewable
energy supply interruptions on Clear-
water's economy.
Housing
Goal: To lower the per capita level of
household energy consumption without
lowering the presently attainable quality
of life in Clearwater.
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Objective: To encourage measurable energy
conservation in the home by providing
technical advice and fiscal encouragement
to Clearwater's citizens, thereby lessening
the impact of imported and nonrenewable
energy supply interruptions on the qual ity
of life.
Development
Goal: To ensure all future development
Clearwater is designed to conserve the
maximum amount of energy economical-
ly feasible.
Objective: To encourage the energy effi-
cient design and construction of all future
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tit
COMMUNITY
GOALS AND OBJECTIVES
Transportation
Goal: To provide for efficient inter- and
intra-city movement, consistent with fiscal
and environmental constraints.
Objective: To expand thoroughfare capac-
ity and to provide for alternatives to the
private automobile.
Public Service and Facilities
Goal: To meet the health, safety and wel-
fare needs of the citizens of Clearwater in
a timely and cost.effective fashion.
Objective: To provide the existing level of
services ranges where indicated, within the
City throughout the period of the plan
horizon.
ENERGY
GOALS AND OBJECTIVES
Development
(continued) buildings in Clearwater by de-
veloping and enforcing energy efficiency
building standards, thereby conserving en-
ergy and lessening the impact of imported
and nonrenewable energy supply interrup-
tions on the community as a whole.
Transportation
Goal: To provide Clearwater's citizens with
alternatives to the private automobile, and
to effectively reduce overall transportation
fuel consumption in the City of Clearwater.
Objective: To ensure adequate modes of
transportation are available to Clearwater's
citizens in a future of fuel supply interrup-
tions, and to encourage and enforce trans-
portation fuel conservation measures by
any lawfully available means in order to
mitigate the effects of chronic nonrenew-
able fuel shortages as suppl ies are depleted.
Public Service and Facilities
Goal: To reduce the City government's
consumption of energy without compris-
ing the safety, health, or efficienty of
public services and facilities.
Objective: To provide the City of Clear-
water's private citizens and private enter-
prise with a model of effective energy con-
servation practices in government, con- ~
serving energy in order to save money and ;;:,
to mitigate the impact of nonrenewable 0
energy supply interruptions on the quality If
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COMMUNITY
GOALS AND OBJECTIVES
Management
Goal: To provide for continued fiscal
stability in the operations of City govern-
ment.
Objective: To provide for systematic
maintenance and improvement of the City's
physical plant, and for increased efficiency
in governmental operations.
Plan Implementation
Goal: To adopt a set of ordinances regu-
lating land development which will allow
the plan objectives to be met and which
will permit development to proceed in an
orderly and timely fashion.
Objective: To minimize bureaucratic de-
lays of private development proposals by
establishing regulations which are easily
interpreted without sacrificing the achieve-
ment of qual itative objectives.
ENERGY
GOALS AND OBJECTIVES
Management
Goal: To conserve energy at all levels of
City government.
Objective: To maintain and improve the
City's physical plant for maximum con-
servation of energy, and to establish more
energy efficient governmental operations,
thereby saving money and reinforcing the
fiscal stability of City government.
Plan Implementation
Goal: To approve and adopt the Energy
Element of Clearwater's Comprehensive
Plan, and establish and enlarge the role of
the Clearwater Energy Office by giving it
permanent status and adequate funding
within the City's government.
Objective: To enable the Energy Office,
working in close cooperation with other
governmental agencies and departments,
and with the private sector, to carry out
the comprehensive goals and objectives of
the Energy Element, according to the
pol icy recommendations for implementa-
tion contained herein.
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...J tation
U
Once consent on the goals and objectives
formulated in this comprehensive energy
policy plan has been achieved, specific pro-
jects and policies for achieving these goals
and objectives can be developed. The pol-
icies and projects implemented under this
plan should be directly appl icable and their
implementation should result in quantifi-
able reductions or changes in the way en-
ergy is used in the community at large and
in City operations. Therefore, the follow-
ing project implementation guidelines are
recommended for approval and adoption.
Implementation Feasibility Studies (I FS)
e
The City Commission should require an
Implementation Feasibility Study (IFS)
for each major energy conservation or
alternative energy prQj~c_tproposed. The
implementation Feasibility Study should
include:
1. A technical review and evaluation of the
various alternative methods available
for achieving the energy goals of the pro-
posed project.
2. An economic evaluation of the cost of
implementing each alternative method,
including payback periods and life-
cycle cost analysis.
3. An economic and political examination
of alternative methods of financing
available to implement the proposed
project.
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4. A recommendation of a specific method
of implementing the project and a rec-
ommendation of a specific method of
financing the project.
5. A detailed, quantitative estimate of the
amount and type of energy to be saved
or replaced upon successful implemen-
tation of the project, and a calculation
of the monetary savings (if any) which
would accrue therefrom.
Upon submission of the I FS, the City Com-
mission should determine whether or not
the project is feasible, and should at this
time decide whether or not the project
should be developed. Upon approval of
the I FS, a Project Development Plan shall
be submitted to the City Manager and will
include the following plan elements:
1. A Project Management Plan
which shall include a list of the differ-
ent management, technical, and clerical
personnel needed to implement the pro-
ject, an implementation time table from
project design to completion, an esti-
mated project budget, an organizational
outline detailing the delegation of de-
partmental and personnel responsibil i-
ties and duties.
2. A Project Coordination Plan
which shall detail the assistance and ap-
proval required by the various city gov-
ernmental departments and offices, by
local, county, regional, state, and fed-
eral agencies, and by any private organi-
zations or corporations, in order to
successfully implement the project. The
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plan should I ist the type of assistance
or approval needed from each organiza-
tion, and should include a project partici-
pation timetable indicating when each
organization should be brought into the
project.
3. A Project Impact Analysis
which shall consider the broad-range in-
fluence of the project's success on various
sectors of the community, such as the
environment, the economy, the tax base,
etc., not otherwise directly affected by
the project. Included in this analysis of
both the positive and possible negative
effects of the project should be a dis-
cussion of methods of countering any
possible negative effects, and an attempt
to balance both positive and negative
effects, to determine the net impact of
the project on the rest of the commu-
nity as a whole.
4. A Public Information Program
which should be designed to gain the
maximum amount of recognition and
support from the various sectors of the
community, both private and public,
with specific concentration on those
sectors most directly affected by the
project. The program should outline a
schedule of information release and pro-
motion activity, should sketch the type
of advertising and media methods to be
used, and should develop an overall bud-
get for the campaign.
Only after all four PDP elements have been
submitted should final approval of the pro-
e.
ject be given, funds be granted, positions
created, etc.
Project Evaluation
The energy goals and objectives of this
plan call for reduction of existing energy
consumption levels or for the replacement
of existing nonrenewable energy sources.
The projects and policies developed to
achieve these goals must necessarily be
directly applicable to the energy problems
they address, and the results therefore,
must necessarily be quantifiable: measure-
able in terms of kilowatt hours of electri-
city, cubic feet of gas, or gallons of gaso-
I ine conserved, or in terms of dollars saved.
The methods to be used to evaluate the de-
gree of project success then, shall be stan-
dard quantitative methods of bookkeeping
and accounting, making project evaluation
a fairly straightforward matter.
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In addition, the stringent implementation
guidelines established by the policy recom-
mendations for implementation will help
insure each project is successfully carried
out. The Implementation Feasibility Study
and the Project Development Plan devel-
oped for a project are permanent records
of intent and responsibility to which all in-
volved may be held accountable, and from
which all future projects may be developed
to avoid any of the weaknesses or to over-
come the problems that occur in earl ier
projects. This allows the overall energy
program to be a self-correcting process, .
and will enhance the effectiveness of each
new project.
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Policies Applicable to
Local Energy Goals
Policy:
Consider the adoption of a solar build-
ing code which would specify mini-
mum standards for the manufacture,
installation, and performance of pas-
sive and active solar energy collection
systems. Such a code is currently
under development by the U.S. Code
Congress, and should be used as a
model for Clearwater's when it be-
comes available.
What follows are a series of policies
applicable to effect the recommended
energy goals and objectives contained
in this plan. With the plan's approval
and adequate funding for the Energy
Office, these pol icies shall be research-
ed and submitted for implementation
approval under the I FS format des-
cribed earlier, and, upon approval,
shall be implemented using the Pro-
ject Development Plan framework
as a gu ide.
Policy:
Seek to eliminate or amend restric-
tive subdivision covenants that prohib-
it such energy saving practices as the
use of outdoor clotheslines. Also to
be amended are those clauses in cove-
nants and deed restricions that restrict,
directly or indirectly; by height or
roofl i ne or other restrictions, the
construction and installation of wind
and solar energy collection devices.
It may be possible to suspend these
restrictions simply by ordinance, or it
may require more effort. The case law
is developing in favor of solar access,
for instance; see Kray v. Old Orchard
Assoc. (Civil Action No. C-209453,
Los Angeles Superior Court). Certain-
ly, such restrictions should be disal-
lowed from all proposed covenants,
and a review process might be estab-
lished to this end.
Solar Resource Development
Policy:
Develop specific solar energy sections
for city codes and ordinances that
encourage the private builder and de-
veloper, as well as homeowners and
businesses, to util ize solar energy to
its fullest economic potential. Clear-
water is located in an area of the
United States which receives more
than 1,000 BTU's of solar energy
per square foot per hour even in
January (over 2,200 BTU's per
square foot per hour in June), making
solar energy Clearwater's most abun-
dant untapped energy source.
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Economic Development
Policy:
Establ ish a regular forum for discussion
of proposed energy conservation mea-
sures by creating an Energy Conserva-
tion Board comprised of representa-
tives from the City's largest individual
employers, representatives of the
Chamber of Commerce, small business
organ izations, and the Clearwater
Energy Office.
Policy:
Consider establishing a voluntary, trial
program to determine the economic
impact and efficacy of conserving
energy by means of moderating out-
door I ighti ng practices. Such a program
should be designed and implemented
with input from and participation by
the Energy Conservation Board.
Existing Development
Policy:
Consider the creation and funding of
a Community Development Corpora-
tion or similar nonprofit mechanism
to administer a program to retrofit
existing residential structures in the
community with increased thermal
insulation and other energy conserva-
tion devices, through the creation of
a low-interest, home improvement
loan fund, through subcontracting the
installation of insulation and other de-
vices, through a tax rebate program or
other incentive means. Such a program
should focus particularly, but not ex-
clusively, on retrofitting substandard
or low income housing in coordina-
tion with the City's Community
Development Department.
Policy:
Consider adopting an ordinance that
would require retrofitting structures
with insulation and weather-stripping
to meet current standards of energy
efficiency prior to the resale of single
or multi-family structures.
Policy:
Expand the City's street tree pro-
gram to provide shade trees along all
public road right-of-ways and on all
publ ic properties in order to reduce
the amount of direct solar heat-gain
by structures and paved surfaces, and
to reduce near-surface ambient air
temperatures, thereby enhancing the
efficiency of mechanical air-condition-
ing.
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New Development
Policy:
Consider adopting alternative zoning
techniques for existing single-family
residential zoning districts that would
encourage the construction of energy
efficient townhouse, cluster, or other
common-wall, multi-family residential
housrng types that combine lefestyles
similar to traditional single-family
detached housing with enhanced ener-
gyefficiency.
Policy:
Consider adopting an amendment to
the zoning ordinance that would
guarantee solar access to all pro-
perties. In order to minimize solar
heat-gain, this ordinance should specify
that, where feasible, on-site location
of solar access shou Id be detached
from the roof or walls of a building
thereby allowing the building itself
to rema i n in shade.
Policy:
Continue the enforcement of the en-
ergy efficiency building and construc-
tion standards presently adopted in
the Southern Standard Building Code,
and, through ordinance, allow the use
of innovative building materials and
construction techniques, not now
covered in the code but which, if
applied, would result in the conser-
vation of energy.
Policy:
Consider amending the building code
to require the use of light colored,
reflective roof surfaces on all new
residential and co"mmercial building
types in order to reduce solar heat-
gain.
Policy:
Consider adopting an amendment to
the subdivision ordinance specifying
that newly platted lots be designed in
such a way as to minimize the number
of buildings whose longest axes are
oriented east-west within a deviation
-of specified range, or whose longest
elevations face south, thus again
minimizing solar heat-gain by present-
ing less area to direct east-west sun
exposure.
Policy:
Consider amending the landscaping
ordinance to include landscaping re-
quirements for residential and com-
mercial structures that would require
shade trees to be planted along the
eastern and western sun exposures
of new structures to reduce the a-
mount of direct solar heat-gain.
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Policy:
Consider amending interior residential
collector street width standards to re-
quire the design of narrower collector
streets in order to reduce the area of
paved surfaces, thereby lowering near-
surface ambient air temperatures.
Policy:
Consider encouraging the use of archi-
tectural shading devices such as deep
eaves, covered porches, trell ises, and
screen walls, and the use of insulation
devices such as earth berm walls and
earth-covered roofs via a building-
design review process wh ich cou Id
include incentive/trade-offs in zoning,
site plan, landscaping or density
requirements.
Transportation
Policy:
Implement and fund the Clearwater
Bi keway Plan. The Bi keway plan out-
lines a 35 mile network of bicycle
paths and lanes designed to encourage
bicycling as an .alternative means of
transportation. The City Commission
adopted this plan in November
of 1980.
Policy:
Amend the off-street parking require-
ments of the zoning code to require
that bicycle parking spaces and bi-
cycle racks or other means explicitly
designed to enable bicycles to be
locked and secured from theft be pro-
vided.
Policy:
Produce and implement a plan to
institute more energy saving traffic
control systems, techniques, and sys-
tem maintenance procedures.
Policy:
Actively encourage large employers in
the city to develop their own employee
car or vanpoo.1 programs or to parti-
cipate in a citywide car and vanpool
information network to be co-spon-
sored by the City, at meetings of the
Energy Conservation Board, by the
coordinated public relations efforts
of the City and its Energy Office
(City Commission awards to parti-
cipating businesses, for instance), and
by the encouragement and adoption
of employee flex-time policies to bet-
ter accomodate scheduling needs of
carpooling employees.
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Policy :
Encourage the use of pub I ic transporta-
tion (buses) by encouraging employers
to adopt flex-time policies toward
employees who use public transporta-
tion, by example (the City should
adopt such a policy), by effective
publ ic relations efforts, and at meet-
ings of the Energy Conservation
Board.
Policy:
In addition to the policy above, the
City might consider offering incen-
tives to City employees who use
publ ic transportation as their means
of commuting to and from work
by offering to subsidize a portion
or all of the cost to the employee.
Information/Education
Policy:
Expand and continue the public edu-
cation and awareness efforts under-
taken by the Clearwater Energy Office.
The Energy Office should initiate
discussions with the Pinellas County
School Board to offer an in-school
student assembly energy conservation
presentation to Clearwater area
schools, and to develop and intro-
duce energy conservation instruction
in the publ ic school curricula.
Policy:
Budget adequate funds annually to in-
form the publ ic of new, enacted
federal, state, and local legislation
designed to encourage greater energy
conservation. (For instance, in 1980
the Florida Legislature exempted from
the 4% state sales tax all new or re-
placement residential central air-con-
ditioning systems with a seasonal
energy efficiency rating greater than
10, and heat pumps with a SEE R
rating higher than 8.2).
Policy:
I nstitute a neighborhood, association,
and community level workshop pro-
gram to be administered by the
Energy Office, at wh ich home-
owners would be taught energy
conservation techniques that could
be applied to their homes.
Policy:
I mplement a workshop program to
assist local architects, mechanical en-
gineers, and manufacturers of solar
equipment in the design and appli-
cation of both passive and active solar
collector systems.
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Public Facilities
major source of substitute fuel to the
community at large, sewerage treat-
ment plants throughout the United
States now use methane gas generated
on site as fuel for plant operation, or
compressed, as fuel to operate city
vehicles.
Policy:
Pursue the implementation of the
energy conservation projects and
initiatives already begun by the
Energy Office, such as the conver-
sion of the existing mercury vapor
street lighting system to high-pres-
sure sodium vapor lights, and the
installation of solar water heaters
at all fire stations, municipal pools
and other municipal facil ities.
Policy:
Policy:
Research the cost effectiveness of de-
veloping a solar powered biomass
program to efficiently produce ethanol
(alcohol) fuel in sufficient quantity to
operate all city vehicles on gasohol.
I ncorporate the developement and
demonstration of alternative energy
technologies into the design and
construction of future City capital
improvement projects, wherever feas-
ible.
Policy:
Policy:
Consider the use of alcohol, methane,
liquified petroleum gas, or electricity
to power city-owned, non-emergency
vehicles, and consider the adoption
by the police department of smaller,
more economical patrol vehicles. Base
vehicle choice heavily on life-cycle
fuel cost savings expectations.
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Research the cost effectiveness of pro-
ducing and using methane gas, as a by-
product of sewage treatment, to
augment natural gas supplies in the
future. While the amount of energy
thus made available to the City from
methane gas production would not
be large enough to be considered a
Policy:
Research the cost-effectiveness of de-
veloping solar collection technologies
to be used in sludge-drying applica-
tions.
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Policy:
Policy:
Derdge and maintain Dunedin Pass to
I ntracoastal Waterway depth stan-
dards. Reopening this pass will aid in
the conservation of energy by reduc-
ing the number of bridge openings
both at the Memorial Causeway and
at the Sand Key bridge.
Adopt such legislative measures as are
necessary to accomplish energy conser-
vation pol icies that cannot be achieved
by voluntary measures.
Policy:
Policy:
Continue to engage and participate in
the formulation of federal, state,
regional, and county eliergy conserva-
tion codes and regulation. By so doing
not only is the City afforded the oppor-
tunity to make valuable technical and
practical input to the regulatory pro-
cess, but the City acquires the advan-
tage of a lead agency in staying abreast
of the current regulatory climate.
Retrofit the City Hall Annex environ-
mental control system to meet the
requirements of the present interior
configuration of the building.
Management/Administration
Policy:
Policy :
Review all existing City codes and or-
dinances to identify and amend areas
where they may unreasonably con-
strain energy conservation practices,
or may otherwise contribute to the
inefficient use of energy.
Consider requesting the State Legis-
lature and/or the Public Service Com-
mission to grant the City special
taxing or other regulatory powers to
lower consumption of electrical energy
by the residential and commercial sec-
tors of the City.
Policy:
Systematically reevaluate and amend
all adopted elements of the City of
Clearwater's Comprehensive Plan to
be consistent with the energy con-
servation goals and objectives of this
plan.
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Policy:
Policy:
Continue to agressively seek out and
secure all public and private grants for
which the City may be elegible, for
the purpose of funding energy con-
servation projects. Seek also to parti-
cipate in federal or corporate alterna-
tive energy technology demonstration
programs.
Keep apprised of local energyconser-
vation efforts and techniques being
implemented elsewhere in the state
and' nation, and review such tech-
niques for their possible application
to Clearwater.
Policy:
Policy:
Develop future energy emergency con-
tingency plans in cooperation with
Clearwater's current energy suppliers,
with Clearwater's disaster prepared-
ness and emergency services planners.
Coordinate City energy conservation
efforts with appropriate federal, state,
regional, and county agencies such as
the Pinellas Opportunity Council,
which administers a weatherization
grant program of low-income families,
the Florida Public Service Commission,
which is responsible for implementing
natural gas and electricity shortage
contingency plans at the state level,
and the Department of Housing and
Urban Development, which as of this
date, has been authoized $500 million
for solar energy subsidies over the next
four years.
Additional policies which warrant
further study can be found in Appen-
dix IV: Local Energy Conservation
Implementation Measures on pages
119-138 of this plan.
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APPENDICES
66 Appendix I: The Search for Solutions
96 Appendix II: Data from Phase I of the Clearwater Energy Management Program
101 Appendix III: Clearwater's Residential Energy Audit Program
119 Appendix IV: Local Energy Conservation Implementation Measures
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APPENDIX I: THE SEARCH FOR SOLUTIONS
URANIUM
67
Electricity from Uranium
68 The Friendly Atom
68 The Risk of Explosion
70 A "Uranium Crisis"?
70 Atomic Money Problems
72 A New "Breed" of Nuclear Power Plants?
75 COAL
76 Economics vs. Health
78 Air Pollution
79 Transportation
81 Coal's Future Role
. 83 NEW ENERGY
"'" 83 Nonrenewable Sources: Shale-Oil
84 Tar Sands
84 Tight Gas
84 Synthetic Fuels from Coal
86 Geothermal Power
86 Renewable Sources: Geothermal Power
87 Hydroelectricity
88 Solar Energy
90 Bio-organic Energy
92 Ocean Thermal Energy
92 Wind Energy
93 Slow-Breeder Fission
93 Nuclear Fusion
.
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URANIUM
When uranium is considered as an alternative to petroleum, it must be remembered that there
is one essential use for which petroleum is as yet irreplaceable: transportation. Over half the
total U.S. petroleum consumption (54%) is used to power nearly all our transportation
vehicles: automobiles, buses, trucks, airplanes, freighters, diesel locomotives. The petro-
chemical industry, which manufactures petroleum-derived products such as plastics, chemical
fertilizers, pesticides, etc., consumes an additional 7%. The remaining 35% of total U. S. petro-
leum consumption is burned to generate electricity.(1) In 1975, 33% of all the electricity
generated in the U.S. was produced by burning oil (21%) and natural gas (12%).(2)
If the U.S. government can be said to have had any policy for solving the nation's long-term
energy crisis, it is that we will be saved by nuclear power. In 1953, President Eisenhower pre-
sented his "Atoms for Peace" program at the United Nations, which, he proposed, would
"devise methods whereby this fissionable material (based on military stocks of uranium)
would be allocated to serve the peaceful pursuits of mankind," and would "provide abundant
energy in the power-starved areas of the world." (3) Ever since then nuclear power has been
touted by the government and its contract industries as the cheapest, safest, cleanest, most
abundant and efficient way to produce electricity. One quarter of a century and tens of bil-
lions of dollars later, the 67 nuclear power plants presently in operation account for only
12% of all electricity generated in the U. S., or about 3% of the total national energy de-
mand. (4) By 1981, according to the National Energy Plan, an additional 70 nuclear power
plants, already planned or under construction, could be "on line" and supplying as much as
20% of the nation's electricity. (5) By the year 2000, nuclear power plants will be counted on
to provide between 30 and 40 percent of the nation's electricity. (6)
Electricity From Uranium
In any electric power plant, including a nuclear power plant, the basic task to which energy
is applied is to boil water to produce steam to drive turbines which generate electricity. A
nuclear power plant gets the heat needed to boil water from the splitting, or fission, of
Uranium-235 atoms. Unlike non-radioactive elements, Uranium-235 will split when struck by
a subatomic particle called a neutron. The resulting two halves in this instance do not equal
the whole, however, because a slight amount of the matter of the atom is converted to energy
by the collision, and some neutrons are also lost. The neutrons given off collide with other
Uranium-235 atoms, and a chain reation is set off which can loose huge amounts of energy
very quickly. In an atomic bomb this chain reaction is encouraged to "run wild," and the
sudden release of energy causes a large explosion; in a nuclear reactor this chain reaction is
carefully controlled so that the energy is released slowly, over a few years.
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Although Uranium-235 is present in many ores, it is usually present only in very dilute
amount, (amounts too small to initiate a chain reaction). The Uranium-235 content of high-
grade uranium ore is only seven tenths of one percent. The remainder consists of Uranium-
238, and a trace of Uranium-234. Unlike U-235, Uranium-238 atoms are not split by neutrons,
but capture them, and are thus useless for the generation of atomic power. Uranium-235 must
be discovered, mined, shipped and purified (enriched) and shaped into "fuel rods," before it
can be used to generate a chain reaction in a nuclear reactor.
The Friendly Atom
Water boiling at 2120 F is not hot enough to run a steam turbine at its maximum generating
efficiency. To reach maximum efficiency requires steam in the temperature range of 1000-
20000 F. The energy generated by nuclear fission is in the range of one million degrees Fahr-
enheit, so that, aside from electricity, a nuclear power plant's biggest product is waste heat. (7)
There is another kind of waste generated by nuclear power plant, however. It is the waste left
when the U-235 fuel in the reactor core is spent and no longer gives off enough free neutrons
to sustain a chain reaction. The spent fuel, and the material used to control the chain reaction
(usually Boron) is highly radioactive. How radioactive? The radiation wastes from a power
plant capable of supplying the electrical needs of an entire city, if released into the environ-
ment, would be sufficient to kill 100 times the city's population.l8) In bul k, this radioactive
waste does not amount to much. The head of the Federal Energy Administration, Frank Zarb,
stated that "A single aspirin tablet has the same volume as the waste produced in generating
7,000 kilowatt-hours, which is about one person's share of the country's electric consumption
for an entire year." (9) This radioactive aspirin is sufficiently toxic to kill 1 00 people, how-
ever. The radioactive wastes from a nuclear power plant remain deadly for a very long time.
To keep these wastes from doing irreparable damage, they will need to be isolated from people
and the environment for about 250,000 years.(10) That is approximately twenty-five times
longer than the entire history of human civilization on the planet earth. At present, no accept-
able disposal technique for nuclear waste has been found. As a result temporary storage facil ities
have become heavily overloaded. Temporary storage facilities are provided next to each reactor
so that the spent fuel can be safely stored while its initially intense radioactivity decays some-
what. Without a permanent or long term waste disposal system, these temporary facilities are
used to hold spent fuel indefinitely. There are enough facilities for about 930 metric tons of
spent fuel. A recent survey shows that storage space for all but 50 metric tons of fuel is now
occupied. (11)
The Risk of Explosion
While nuclear reactors, because of their design, cannot trigger a nuclear blast like that of a S
nuclear bomb, the possibility of a low-grade reactor explosion resulting from a runaway chain 0
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J" -reaction remains. (12) Nuclear reactions are so fast that to avoid a runaway chain reaction, an
...J excessive rate must be corrected within one tenth of a second.(13) Understandably, the con-
U trois and safety systems designed into a nuclear power plant are highly elaborate. A complex
system is provided for cooling down the reactor core should the normal water-circulating sys-
tem fail. There are sophisticated warning systems and equipment redundancy to reduce the
risk of the reactor core starting a runaway reaction or overheating, which is called a core melt-
down. The reactor core would literally melt through the steel alloy reactor vessel, and the
molten core would then burn through the concrete containment building and into the en-
vironment where it would release massive amounts of radioactive material. The possibility of
a reactor explosion occurs if the reactor core melts only partially and globs of molten
Uranium 235 coagulate into a large mass. If the combined mass equals or exceeds what is
called critical mass, a low grade reactor explosion, which could rupture the concrete contain-
ment building and spew clouds of invisible radioactive vapor into the air, could result. Since
this type of explosion is not the same as an atomic-bomb explosion it is known, variously, as
a melt-down/crash-down, a super-prompt critical, a nuclear excursion, or even more euphe-
mistically, as a disassembly.
A report prepared by Brookhaven National Laboratory for the Atomic Energy Commission
in 1964, when the average reactor size was only 180 megawatts and not over 500 megawatts
as it is today, concluded that a "credible" large-scale nuclear accident might kill 45,000 people,
injure 570,000 more and cause over a hundred billion dollars of property damage. (14)The
AEC withheld this report fur nearly a decade until a Reactor Safety Study report could be
commissioned. (15) Two and one half years and three million dollars later, in 1974, the 13
volume "Rasmussen" report, as it has come to be called, estimated that the risk of dying from
a nuclear-reactor accident is one in 300 million.(16) The report met with severe scientific
criticism. One group, organized by the Union of Concerned Scientists, concluded from a de-
tailed critique of the report's methodology that a nuclear-reactor accident killing 50,000
people has a one in 100,000 chance of happening (roughlV the same per person per year odds
of dying in an airplane accident. (17)
Nothing in life is without risk, of course. By contrast with the small but certain accidents
associated with the coal industry, for instance, nuclear reactors face us with low probabilities
of very large disasters. Hence, the possibility of a large scale nuclear reactor accident looms
much more dramatically in people's minds than the steady flow of mine accidents or emphy-
sema deaths due to coal. With this difference: only coal miners are affected by the hazards of
the coal industry. In the case of a nuclear disaster, however, hundreds of thousands of citizens
face death or injury who, except for being consumers of nuclear generated electricity, have
nothing to do with the nuclear power industry. As statisticians have pointed out, even smail
probabilities mount as time goes on, so that, even though the probabil ity of failure in anyone
reactor at any given moment is low, given enough time and enough reactors, the accident will
occur.
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The present nuclear power industry is completely dependent on theavailibility of Uranium-235.
As mentioned earlier, Uranium-235 is found in extremely small quantities in mined uranium
ore. Like fossil fuels, Uranium-235 is a finite resource. According to the Energy Research and
Development Administration, the U.S. has about 700,000 tons of uranium oxide obtainable
at a cost of up to $90 per pound. Beyond that ERDA estimates probable reserves at 1.8 million
tons, including known reserves. Total speculative reserves of 3.7 million tons were counted on
by ERDA to supply America's nuclear power industry beyond the year 2000.(18) Uranium
geologists working for the National Academy of Sciences, attempting to document these esti-
mates, concluded that the chances are 97% that uranium reserves will fall far short of the 3.7
million ton estimates, and recommended that it would be prudent to count on no more than
1.8 million tons. (19) Even that amount, the report suggests, will be hard to find, develop and
produce in time to meet the nation's future nuclear needs.
If present plans for nuclear power development are carried out, the amount of uranium ore
needed to run the industry would be 2.5 million tons by the year 2000.(20) A more recent
ERDA report on the nuclear fuel cycle confirms this picture, conceding that there are insuffi-
cient known or projected supplies of uranium ore to support projected growth of the nuclear
power industry beyond 1990-1995.(21) A 12-17 year national supply of uranium ore is not
reassuring especially since economically available supplies of petroleum and natural gas will
be constrained before 1990.(22) The United States would then find itself in the position of
being dependent on foreign supplies of uranium ore, just as it now finds itself dependent
on foreign supplies of oil and natural gas, with equally serious political and economic results.
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Atomic Money Problems
The entire nuclear power program was based from its inception on the promise of providing a
cheap, almost inexhaustible source of energy. As it turned out, uranium is neither inexhaustible,
nor cheap. Until the 1973 oil embargo, uranium ore sold at $8-10 per pound. By 1976, it had
hit $50 per pound.(23) Power companies were persuaded to purchase nuclear power plants
rather than fossil-fueled plants by offers from the reactor manufacturers of guaranteed suppl ies
of uranium fuel at contractually set prices. However, the price of uranium has risen so sharply
in the last five years, that these obligations cannot be met except at great financial loss to the
reactor manufacturers. As a result, Westinghouse, one of the two largest reactor manufacturers
in the world, has abrogated its contracts to supply fuel to the companies that ordered its
reactors.(24) I n addition to escalating fuel supply costs, manufacturers consistently made
construction estimates which later proved far too low. For reactors placed in operation in
1971, the average expected cost was $128 per kilowatt of generating capacity, but the actual
cost was $261 per kilowatt, a 110% increase. Six years later, for reactors supposed to be in
operation in 1977, the expected cost was $183/kw, and the actual cost $490/kw, an increase 0
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/II COST OF BUILDING A 1,000 MEGAWATT L1GHT-WATER-REACTOR POWER PLANT
..J
U 1,200
1,000
INTEREST
DURING
CONSTRUCTION
200
COST ESCALATION
DURING
CONSTRUCTION
(INFLATION)
en SOO
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0
C
u.. 600
0
en
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0
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CONTINGENCY FUND
INDIRECT CONSTRUC-
TION COSTS
COSTS OF POLLUTION
CONTROL AND
SAFETY DEVICES
DIRECT
CONSTRUCTION
COSTS
o
MARCH
1967
JUNE
1969
JANUARY
1971
JUNE
1971
JANUARY
1973
JUNE
1974
JANUARY START OF PROJECT
1976
LATE
1972
MID.
1975
JANUARY
1978
MID.
1978
JANUARY JANUARY
1981 1983
MID.
1986
COMMERCIAL
OPERATION
SOU RCE: Energy Research and Development Administration (Revised for 1976)
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",V' of 167%. (25) These prices are quoted in fixed 1973 dollars, so that inflation is not involved:
...J these are "real" cost increases.
U
e.
"The nuclear industry is geared to sell 30 large nuclear plants a year," Bertram Wolfe, general
manager of nuclear operations for General Electric's nuclear engineering group, is quoted as
saying in a Business Week article titled A Persistent Shortage of Reactor Orders, "right now,
we're selling about one a year."(26) John J. Taylor, vice-president and general manager for
Westinghouse's Light Water Reactor Division is quoted in the same article. "Two years is the
most the industry can live on its back orders. . . . and the industry has had two absolutely
no-growth years. Lead times of 10-12 years for plant construction mean that if nuclear power
is to maintain a strong role through the 80's, orders must be placed now." (27) Yet Donald C.
Cook, retiring chairman of American Electric Power Company, Inc., says that in his company's
system the cost of generating electricity using nuclear power, when compared to burning coal,
"comes out about a stand-off."(28) Coal-fired plants can be "on line" in half the time as
nuclear plants, saving as much as $100 million dollars a year in interest payments alone~29)
If capital costs per kilowatt of generating capacity of nuclear and coal-fired plants continue
to rise at the rates of increase each has exhibited since 1965, and if it is assumed, based on
present trends, that the uninflated prices of uranium and coal will continue to rise annually at
rates of 5 and 4% respectively, nuclear power plants will become more costly to operate than
coal-fired plants in one to three years (1980-1982).(30) Thus, faced with rapid depletion of
national uranium reserves, rising fuel and capital costs, and the increasing economic compet-
itiveness of coal-fired power plants, it seems clear that the nuclear power industry cannot be
long sustained based on current technology alone.
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A New "Breed" of Nuclear Power Plants?
Where does this leave the great hope that nuclear power will lead us out of the desert of de-
pleted fossil-fuels and into a future world of abundant energy for all? Until recently this hope
was transferred to a new type of reactor known as the "breeder" reactor. Considerably more
complex than conventional I ightwater reactors, the "breeder" is so called because it is designed
to actually produce more fuel than it consumes. How? Recall that 99% of the uranium con-
tent of uranium-ore is composed of the nonfissionable isotope called Uranium-238, which
absorbs neutrons rather than being split by them. Combine enough neutrons with an atom of
Uranium-238 and U-238 is converted to a new element; Plutonium-239. Now, Plutonium-239,
like U-235, is fissionable. That is, colliding with a neutron, it splits and releases energy and
stray neutrons. The breeder reactor uses these stray neutrons to maintain the chain reaction
and to create new Plutonium-239 by combining them with U-238 atoms. The breeder reactor
can thus produce about three new Plutonium-239 atoms for every two Plutonium atoms that
are split and used as fuel.
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The breeder idea has been called the closest anyone will ever come to inventing perpetual
motion. Yet the prospect of a plutonium-based, all-breeder nuclear power industry raises at
least three points of grave consideration. First, Plutonium-239 is many thousands of times
more toxic than Uranium, it is widely regarded as the most dangerous of all the radioactive
elements.(31) It has been estimated that an all-breeder nuclear power program would event-
ually require 130 million pounds of plutonium. (32) If only one ten millionth (130 Ibs.) of
this material were to escape into the environment as it was carried through the intricate steps
of refinement, enrichment, fission and recycling, 78,000 cases of cancer could result. (33) Since
Plutonium-239 remains deadly for 24,000 years,(34) this risk would be confronted by the
U. S. population for many generations.
Secondly, like a conventional light-water, uranium-fueled reactor, a breeder reactor can suffer
a "melt-down" including the possibility of a melt-down/crash-down explosion. But the breed-
er can explode in yet a third way in which a uranium-fueled lightwater reactor cannot. Because
the breeder generates fast moving neutrons, rather than slow moving neutrons, as do conven-
tional reactors, a neutron-slowing medium such as water cannot be used. Instead, in order to
transfer the heat produced in a breeder, the reactor core must be bathed in molten sodium
metal, which is pumped through a heat-transfer system that eventually generates steam. Even
at ordinary temperatures, sodium metal reacts violently with two very common substances:
water and oxygen. A thimble-sized fragment accidently dropped into a chemistry lab drain
will cause an explosion capable of shattering a steel drain-pipe. I n a breeder reactor the sodium
metal is molten, circulating at a temperature of 1,1500 F. The slightest leak that brought it
into contact with the air, or with the water used to make steam, could cause an explosion
that could rupture the reactor vessel itself.
In January, 1974, the U.S.S. R.'s breeder reactor BN-350, the largest breeder power plant in
the world, located at the town of Sevchenko on the shore of the Caspian Sea, blew up when
its liquid sodium coolant escaped into the surrounding atmosphere. The plant had been in
operation for less than one year. U.S. intelligence reports characterized the explosion as
"large," but the extent of damage has not been made publ ic information. (35) Eight years
before the Sevchenko accident, the United States barely escaped a similar accident. In
October, 1966, a far smaller liquid-sodium fast breeder reactor, located 30 miles outside
Detroit, Michigan, suffered a blockage in its molten sodium coolant system. The reactor core
started to melt down. Fortunately the reactor was shut down in time to avoid a disaster.
Had a total meltdown occurred, the molten core would have cracked the steel jacket sepa-
rating the liquid sodium from the generating steam and a serious explosion would have re-
sulted, which, according to a prior study, would have resulted in 133,000 deaths and $10
billion in property damage. (36) As it was, the accident caused the $130 million reactor
(which had yet to achieve full operation) to be permanently shut down.
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U Thirdly, unlike Uranium-235, Plutonium-239 can be used to build an atomic bomb.
Dr. Theodore Taylor, a former designer of nuclear weapons, has shown that small amounts of
plutonium "diverted" from the breeder-economy could be fashioned into an atomic bomb by
one person working with material available from a hardware store and an ordinary laboratory
supply-house. (37) If just one ten millionth (130 Ibs.) of the plutonium circulating in a breeder-
economy were diverted, it would be enough for terrorists to build thirteen bombs, each
capable of destroying a medium-sized city. Millions of people could be "held hostage," and
local, state and Federal governments could be blackmailed into meeting appalling political
and monetary demands. The Federal government has acknowledge that such a plutonium-
based nuclear power system would require heavily armed forces to guard the enrichment
plants, the power plants, the reprocessing plants, and the transport vehicles against outside
attacks, and elaborate internal and domestic espionage networks to keep someone on the in"
side from stealing such "bomb-grade" material.
In mid-1975, President Ford demoted the U. S. breeder program from its role of demonstrating
commercial feasibility to strictly one of research. At that time completion cost estimates for
the Clinch River, Tennessee, demonstration breeder had risen fr'om $700 million at its incep-
tion to more than $1.7 billion. (38) In late 1977, President Carter put an indefinite halt to the
Clinch River program. Costs had by then escalated to $2.1 billion, with costs projected to run
as high as $10.7 billion before it reached completion in 1985. (39) Both presidents bal ked at
more than just the runaway costs; the risks accompanying the plutonium fast-breeder were
judged unacceptable.
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COAL
In 1870, coal supplied about 20% of America's energy needs. By 1910, coal had become our
most important energy source, supplying 80% of the nation's total energy needs. Yet, with the
discovery and development of petroleum and natural gas, coal was gradually replaced by these
cleaner, less cumbersome fuels, until today coal's share of the energy supply budget has again
shrunk to about 20%. (40) Coal once powered America's major forms of freight and passenger
transportation in the past. Coal was once the only energy source available to fuel a burgeoning
electric utility industry. And before the advent of electricity, coal was routinely gasified to
supply fuel for the "gaslight" era. Coal yields less energy by weight than either petroleum or
natural gas. Coal burns less cleanly and efficiently than petroleum or natural gas. Coal is cost-
lier and more cumbersome to transport than petroleum or natural gas. Nonetheless, known
reserves of coal are about ten times larger, measured by energy content alone, than petroleum
and natural gas combined. Geologists are generally agreed that accessible coal deposits, both
in the U.S. and worldwide, would last between 400-600 years at the present rate of use. (41)
There is, therefore, no short-term "coal crisis" facing us. The U.S. exports rather than imports
coal. (42)
u. S. COAL RESERVES
KNOWN U. S. COAL RESERVES = 396 BILLION METRIC TONS
MAP SOURCE: National Coal Association, Reserves Data: World Energy
Conference Survey of Energy Resources, 1974
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Like nuclear power, however, coal cannot now be economically used to directly fuel transpor-
tation vehicles, which today account for nearly 33% of total energy consumption.(43) Be-
cause power plants generate electricity most efficiently using steam heated to about 20000 F.,
and because coal burns most efficiently at about 30000 F., coal's best and most efficient use
is to generate electricity. Today, coal is the nation's most important generator of electricity,
contributing about 35% of the total electric output, with petroleum and natural gas combined
producing about 33%.(44) U.S. electric power consumption grew at an average annual rate
of slightly below 7% between 1960 and 1975, doubling every ten years. (45) Given known
U. S. coal reserves, even if America's demand for electricity continued to double every decade,
coal could supply 100% of our electric power needs for the next 60-80 years. Coal could thus
completely replace petroleum, natural gas and uranium as a generator of electricity and could
sustain new expansion of electric power use in sectors of the economy such as rail transporta-
tion and residential and industrial space heating and cooling, relieving the energy burden now
. carried by petroleum, natural gas and uranium still further. Thus, coal could readily become
the key fuel to insuring a smooth transition to the renewable energy sources of the future.
Recognizing this, both Presidents Ford and Carter have pursued executive policies which man-
date industries and utilities to convert from petroleum and natural gas to coal where technol-
ogically feasible.
Economics vs. Health
e
Finding coal is not a very difficult problem. Most of it lies at fairly shallow depths ranging
from under 100 feet to about 5,000 feet below ground surface. Inexpensive test drilling can
readily locate and determine the size and type of coal beds. Present global estimates for
the amount of coal accessible from such known deposits are about 16.8 trillion tons. (46) Not
all coal is of the same quality, however. Coal exists in several forms, in descending order of
heat content: anthracite (hard), bituminous (soft), and lignite and other lower energy coals.
By contrast with petroleum and natural gas, further expansion of coal production can be car-
ried out without significant reduction in the productivity of invested capital, simply by ex-
tending operations into new areas that have about the same capital requirements as the older
ones. (47)
Some coal is found at depths requiring underground excavation, causing great working hazard.
In 1972,181 miners were killed in underground mining accidents. (48) As of 1973, compen-
satory payments to miners suffering from "black lung" amounted to $1 billion, and the sum
is expected to reach $8 billion by 1980. (49) In addition, intensive harm to the local surface
environment is caused by mine tailings known as slag heaps. These huge piles of waste are
heaped up at a rate of 100 million tons a year. (50) Spontaneous or natural combustion turns
these mountains of waste into slow-burning fires that cannot be extinguished, becoming a
continuous source of air pollution for years. I n Pennsylvania there are more than 200 such
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111 smouldering refuse banks. (51) More widespread environmental damage caused by under-
::t ground mining occurs when the ground above the mines begins to subside.
U Land undermined by underground mines exceeds 7 million acres, with 2 million acres already
suffering subsidence, and another million acres expected to subside before the year 2000. (52)
Subsidence can occur as long as 50 years after a mine has been worked. Total damage to both
natural and man-made surface features is estimated in the billions of dollars, a cost that is
rarely figured into the economics of coal production. (53) Other coal beds lie close enough to
the surface that they can be mined by stripping away the overlying layers of soil and scooping
out the coal with huge power shovels and bulldozers.
The major hazard of strip mining is not bourne by the miners, but rather by the environment.
Over 200 million acres of land in the U. S. has been laid to waste by strip mining, leaving gap-
ing, crater-like scars in the earth that can only be reclaimed at cost between $1,000-$8,000
per acre. (54) About two-thirds of the known U. S. coal reserves are at depths requiring under-
ground mining, with the remaining one-third accessible to strip mining.(55)
Federal health care and compensatory payments now amount to nearly $2 per ton of coal, a
cost that is paid by the taxpayer and not by the coal companies.(56) Underground coal min-
ing is inherently hazardous, yet vast safety improvements can be made. Implementation of
the Coal Mine Health and Safety Law has been slow, but some progress has been made. The
level of coal dust in mines has been substantially reduced, lessening the risk of black lung. Re-
search programs are underway to develop safer mining methods, and future mines are likely
to be made both safer and more efficient by the widespread introduction of automated mining
machines and improved ventilation techniques. For instance, the "Iongwall" method now
used in Western Europe, recovers about 85% of the coal in place (as opposed to about 50%
for "continuous" mining as practiced in America) and is inherently much safer for the miners.
The "Iongwall" method provides an artificial roof support for the miner and then automati-
cally collapses the roof to obtain more complete recovery. By contrast "continuous" mining
merely claws out the easiest obtainable coal leaving enough, hopefully, to support the natural
roof above. Thus, the "Iongwall" method offers a way to improve both the efficiency and
safety of deep mining operations.(57)
It has been estimated that proper reclamation of strip mined land would add about $1 per
ton to the cost of stripmined coal which presently sells for about $20-25 per ton. (58) Suc-
cessful examples of reclamation can be seen in Pennsylvania and Europe. Yet mountainous
topography and lack of rainfall in the U.S. western states, where strip mining is most wide-
spread, makes reclaiming the land extremely difficult. Present state reclamation laws are
poorly enforced, and "new" federal legislation has been stalled for years. Strip mining, as it is
now practiced, is far more economical than underground mining. Mine safety is not a problem,
and a worker can strip mine 100 to 150 tons of coal per day against less than 10 tons per day
in an underground mine.(59)
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All fossil fuels have a common fault: when burned they pollute the air. The Environmental
Protection Agency estimates the cost of air pollution to health, vegetation and property at
more than $16 billion annually, or over $75 a year for each person in the U.S.(60) Gasoline
is the worst pollutant in terms of volume. Coal and oil burning electric power plants are the
next greatest source of air pollution. As utility companies comply with Federal mandates to
convert oil burning plants to coal, the burden of the pollution problem switches increasingly
to coal.
Sulpher dioxide has been identified as the worst poison emitted by power plants. All coal con-
tains sulpher in some percentage (sulpher content above 3% is considered "high"), which is
oxidized into sulpher dioxide when burned. S02 can cause irritation of the lung tissues, in-
creasing the likelihood of lung cancer, as well as interfering with the lungs' protective mech-
anisms that help to reduce the effects of dust particles and other pollutants. Sulpher dioxide
reacts under sunlight with ozone to produce effects more harmful than either compound
alone. In addition, very high S02 and particulate pollution in combination can be deadly.
Just such a combination caused the high death rates in London during the 1952 temperature
inversion. (61) Coal also produces fine ash particles when burned. Depending on size and
composition, these particulates can cause many detrimental effects on nose, sinus, throat and
lung tissues. Particulates on the respiratory lining impairs breathing, and in higher concentration
can destroy tissue and cause cancer. Susceptible patients, those with asthma, bronchitis and
emphysema, will show increased symptoms of these diseases at pollution levels of two-tenths
of a part per million or greater. (62)
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If irreparable harm to health and environment is to be avoided, the problem of air pollution
must be solved. Already the Environmental Protection Agency has required all coal-fired
power plants to construct electrostatic stack-precipitators which filter out virtually all but
the most microscopic particulates. Eliminating S02 discharges involves more difficult and
more expensive technology, however. Government regulations require the S02 emissions be
under 0.3% to 0.5% from coal-fired power plants. (63) This effectively prevents the use of
most of the nation's eastern coal reserves. Presently approved E.P.A. technology for S02 re-
moval requires scrubbers, so called because the S02 is washed out in chemical and water solu-
tion. Scrubbers add as much as $200 million to the cost of a coal fired plant and have proved
only about 60% effective. (64) In addition, a typical scrubber uses about 6,000 tons of lime
each year and produces a calcium sulphate sludge which must be disposed of in huge landfills.
Other S02 removal technologies such as various stack gas removal techniques, are either un-
proven or hampered by similar economic or technical drawbacks. (65) Scrubbers are an ex-
pensive and inefficient solution to the problem of S02 removal. However, it seems certain
that new technology becoming available today which could permanently solve the S02
problem both cheaply and effectively will begin widespread introduction by or before 1980.
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According to the Bureau of Mines, by 1980 coal from the western states of Colorado, Montana,
New Mexico, North Dakota, Utah and Wyoming, nearly all of it strip-mined, will account for
about 40% of U.S. coal production. (66) Because western coal is low in sulpher content, some
eastern utility companies are bringing the coal from the Rockies in order to comply with air
quality standards. Burlington Northern and Union Pacific lines delivered over 500,000 tons
of Western coal to power companies threatened with shortages during the deep mine strike of
1978. (67)
Another method of transporting coal is by slurry pipeline. Using this technique, coal is pul-
verized and mixed with water at the mine site and then "flushed" or pumped through a pipe-
line to a power station, where the coal is separated from the water (usually by centrifuge) and
burned. Coal slurry pipelines are not a new technology. The first coal slurry pipeline was
operating in London in 1914. Presently there is only one slurry system in operation in the
U. S., the 273-mile Black Mesa pipeline, which for the past eight years has been transporting
coal from a mine in Northern Arizona to the huge Four Corners generating plant in southern
Nevada. The slurry pipeline system does not drain away usable water from the already arid
West, but uses brackish water which is unfit for either human consumption or agriculture.
Slurry pipeline systems have two major advantages over more conventional rail transportation:
they are more reliable (the Black Mesa pipeline, for example, has been out of action for less
than 1% of its time in service) and they are more economical than rail transportation. The
average cost is estimated at about one-third that of rail delivery. (68) At least five slurry pipe-
lines are now on the drawing boards, which, if built as scheduled, could be pumping coal to
electric power plants supplying major U. S. cities by the 1980's. (69)
Rail transport is most suited for local requirements (short to medium haul) and for low to
moderate quantities, or where maximum flexibility is required. Coal slurry pipelines are most
economical for high-volume, long-distance requirements created by giant 5-10 gigawatt
power plants or by regional coal distribution depots.
COAL TRANSPORTATION REQUIREMENTS TO THE YEAR 2000
1,400 UNIT TRAINS
3,200 CONVENTIONAL TRAINS
500 BARGES
9,400 TRUCKS
9 SLURRY PIPELINES (25 million tons/year)
TOTAL CAPITAL REQUIREMENTS FOR COAL
TRANSPORTATION TO THE YEAR 2000
$86 BI LlION
SOURCE: M.I.T. Workshop in Alternative Energy Studies.
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CUMMULATIVE CAPITAL REQUIREMENTS
FOR INCREASED U. S. COAL PRODUCTION
(1975 U.S. DOLLARS)
Coal Mine Requirements To The Year 2000
350 Eastern Underground Mines
102 Eastern Surface Mines
232 Western Surface Mines
8 Western Underground Mines
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Production Capacity (Year 2000)
2 Million Metric Tons/Year
5 Million Metric Tons/Year
6 Million Metric Tons/Year
1 Million Metric Tons/Year
Total capital requirements for coal mining operations to the year 2000
SOURCE: See Below
$32 BILLION
THE CAPACITY OF U. S. COAL PRODUCTION TO REPLACE OIL AND NATURAL GAS
~ REMAINING PRO
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PRODUCTION LEVELS ....... ~ _
FALL AS NUCLEAR FUSION,
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EASTERN S~RFACE WESllERN U~DERGJOUND I
1975 80 85 90 95 2000 05 10 15 20 25 30 35
Note that production levels can be increased to replace U. S. energy demand for petroleum and
natural gas given the time period involved and an assumed SOlo annual growth rate in coal produc-
tion. The capital requirements are large but not insurmountable, given past levels of U.S. economic
growth. Any delays in the early stages of development, however, will make it more difficult,if not
impossible, to achieve the necessary levels of coal production.
SOU RCE: Bechtel Energy Supply Planning Model, Bechtel Corporation for the Workshop in
Alternative Ener Studies 1977.
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Coal's Future Role
1978
(FUTURE ENERGY SOURCES)
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To fill the energy gap for the next 10-40 years during the transition from nonrenewable
energy sources, new coal mines will be needed. There are billions of tons of coal in Southern
Illinois, Ohio, Western Kentucky and surrounding areas. The strippable coal reserves in the
Illinois Basin are especially promising as a secure, large-scale source of energy available for
quick exploitation. Expanded coal production in the Illinois Basin alone could be used to
convert most electric power plants and industrial furnaces that now burn oil and natural gas.
Further, it is both economically and technically feasible to reclaim these fairly level lands
which receive good rainfall. The coal in these areas is reasonably close to the country's
major population and industrial centers, as well, minimizing the additional capital costs of
expanded rail transportation or slurry pipeline construction. Illinois coal is high in energy
content, but also high in sulphur. Therefore, an effective and economical solution to the S02
problem must be "on line" if the immense energy reserves of the Illinois Basin are to be S
tapped. By contrast, strippable Western coal is low in energy content but also low in sulphur 0
content. Burning it would cause less S02 pollution if the introduction of an effective and ~
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(HIST0RICAL ENERGY SOURCES) (FUTURE ENERGY SOURCES)
SOURCE Historical data from the Flow of "Energy in an Industrial Society," p. 85, in Energy
FO R BOTH and Power, Scientific American, 1971. Projections based on Workshop on Alternative
GRAPHS: Energy Studies data.
economical S02 removal system is delayed. Since Western coal is 500 to 1000 miles from the
country's population and industrial centers, however, capital investment in coal transport
systems would have to be substantial.
To maintain coal's future place as the dominant energy source during the transition period to
renewable fuels, however, will require a much expanded deep mining coal industry. Given
labor peace in the industry, coal production could be increased by 26% without opening any
new mines.l70) Nonetheless, new mines, requiring lead times of four years or more, will have
to be opened. This will require a greatly expanded labor force to work the mines. Labor for
deep mining has always been scarce and undertrained. The problems of labor shortage and
unrest must be solved. Coal is not just another energy source: at present it is the only abundant S
energy source immediately available and applicable on a scale large enough to insure this na- 0
tion's economic well-being during the transition to the renewable energy sources of the future. /.f
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NEW ENERGY
Because the potential energy sources of the future are many, the more promising of each can
be given only summary treatment in this chapter. The potential energy yield of each source,
as well as its end-use application, and the technical and economic feasibility of developing
each source can only be touched upon. Research in many of these fields is undergoing sudden
expansion. New developments and breakthroughs in each technology occur almost daily. The
energy of the future includes both nonrenewable and renewable sources. The non-renewable
sources include fossil fuels locked up in different forms than presently exploited petroleum
and natural gas, and synthetic fuels which can be derived from coal. Renewable energy
sources include new ways of tapping the power of the atom, and of harnessing energy from
the sun in its various terrestrial forms.
Nonrenewable Sources: Shale-Oil
The United States has about 125 billion barrels of recoverable oil locked up in shale-rock
deposits located primarily in Colorado, Utah and Wyoming. (71) This is approximately two-
thirds of the world's known reserves of shale-oil. The oil, known as kerogen, is trapped in a
solid-gelatinous form as an integral part of the shale-rock, and thus cannot be pumped from
the ground like ordinary petroleum deposits. Existing technology for extracting the oil from
the shale involves strip mining the rock and subjecting it to high heat of 800-10000 F. to
evaporate the oil out. If oil prices remain high, as they are likely to, a few plants based on sur-
face mining may be commercially feasible by the 1980's. Several pilot scale plants based on
surface mining may be commercially feasible by the 1980's. 'Both the U. S. government and
private corporations have financed extensive studies on the design and operation of large scale
facilities. The potential for surface mining is limited, however. Peak production is unlikely to
exceed 1 - 2 mill ion barrels per day after 1985 (about 8% of projected demand for that year). (72)
Chronic water shortages in the arid western states where shale-oil deposits are located, and
waste-disposal problems may restrict the development of large scale operations even further
because large amounts of water (about 160 gallons per barrel of oil) are required to extract
the oil and because the muck that results has a substantially larger volume than the original
rock and seems good for absolutely nothing. (73) Since even the highest grade shale-oil
deposits yield only one barrel of oil for every 1.5 tons of shale, a one million barrel a day
shale-oil industry would generate about 600 million tons of rock/sludge per year. (74)
Techniques for extracting the oil from the shale in the ground appear to be the only hope for
a larger shale-oil industry. One process being researched involves lighting a fire in the shale
formation that would burn underground, thus separating the oil from the shale. Researchers
for the University of Michigan announced another technique using microwaves to heat the oil
in the ground to a fluid state which would allow it to be pumped through conventional wells.
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The technique, though successful in the laboratory, may consume more electrical energy to
generate the powerful microwaves than can be produced from the oil thus extracted on a
commercial basis.
Tar Sands
Techniques for extracting oil from bituminous tar sands are now well advanced. The Great
Canadian Oil Sands Project has been producing oil since the early 1970's, with present pro-
duction levels of 65,000 barrels per day. Four more plants either have been started or planned
to yield a total output of 500,000 barrels per day, even though the project has yet to break
even financially.(75) Canada has the world's largest known deposits of tar sands, located in
. Alberta. Estimates place the extent of the Alberta reserves at 350-400 million recoverable
barrels of oil. (76) The tar sand is a water-oil-sand mixture containing about 10% oil by
weight. The sands, found only 50 feet below ground, are easily accessible to strip mining. The
U.S., however, probably has less than 8-20 million barrels of recoverable oil from tar sand
fields, located mainly in Utah.(77) Thus, for the U.S., tar sands are at best a minor source of
potential energy, and exploitation is likely to be slow. The benefit to the U.S. from expanded
Canadian production will at best be indirect, and should not be depended upon to supply any
major portion of future U.S. energy supplies.
Tight Gas
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While there are large known volumes of natural gas in the ground in the U.S. (some 600 tril-
I ion cubic feet), (78) the rock formations in which the natural gas is found are too dense to
permit extraction by conventional well drilling methods. One possible method for recovery is
to use small, low-yield underground nuclear explosions to open large cavities and create thou-
sands of fractures through which the natural gas can flow to be recovered. In 1970, project
"Gas Buggy" used a 20 kiloton nuclear blast in dense gas bearing rock in New Mexico. During
the first two years wells drilled around the blast site yielded about 300 million cubic feet of
gas.(79) Despite the technical success of the experiment, however, there are grave dangers
inherent in applying nuclear stimulations, as the technique is called, to large-scale commercial
gas recovery operations. The number of nuclear blasts required for commercially feasible pro-
duction would be on the order of 240-300 detonations per year. Since the location of tight
gas formations is in mountainous, earthquake-prone sections of the country such as Colorado,
the possibility of triggering major earthquakes is a definite risk.
Synthetic Fuels From Coal
Conversion of coal, and other fossil and organic fuels, to gas and oil is an established technol-
ogy. In 1900, most large U. S. cities were supplied with gas derived from coal gasification
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plants or "gas houses" as they were called. Today, coal is gasified to produce coke-oven gas
for the steel industry. The largest coal gasification plant in operation in the world today is in
South Africa, and produces a variety of I iqu id and gaseous fuels from low-grade I ignite coal. (SO)
The gas produced from current coal conversion technologies has fairly low energy content
about 1/6 that of natural gas or gas produced from petroleum conversion. The simplest gasi-
fication process involves incomplete combustion of coal with air and steam. If oxygen is used
instead of air the energy content doubles to about 1/3 that of natural gas. Another process,
called "pyrolysis," involves heating coal in an oxygen free atmosphere, which produces a still
higher grade of gas with about 1/2 the energy of natural gas. (S1)
. By-products from gasification of coal can also be used as a fuel. Hydrogen, a key chemical
constituent of the gas, can be stripped and burned directly as a fuel. Other by-products, such
as carbon monoxide and hydrogen, can be combined to form methane as well as synthetic
natural gas.(S2) Both methane and synthetic natural gas can be converted to liquid methyl-
fuels, which, in turn can be synthesized into gasoline using a method recently developed by
Mobil Oil Corporation.
Techniques for the direct conversion of coal to liquid fuel are currently under development
with the hope that someday such synthetic oils will be able to supplement available supplies
of natural petroleum. These processes, called direct liquifaction because they bypass the in-
termediary gasification step, involve the hydrogenation of coal under high pressure, yielding a
heavy liquid fuel very similar to crude oil. The Federal government is currently co-funding a
small, 600 ton per day, coal to oil pilot conversion facility in Kentucky, and has succeeded in
budgeting $527 million in fiscal year 1978 for all phases of coal conversion research and de-
velopment. (S3) Low energy coal gasification plants to be built in Minnesota and Pennsylvania
have selected for government and private industry cost-sharing demonstration programs, (84)
and the Carter Administration has been pursuing an accelerated research and development
program to develop a high-energy coal gasification process which could one day supplement
waning gas supplies.(a5)
Nonetheless, the cost of synthetic fuels from coal have been estimated as high as $26 per
barrel, well above the present hig~est price of crude oil at $13-$15 per barrel. (S6) Thus,
coal conversion is economically feasible only if the price of the product it must compete
with, natural crude oil, is very high. Coal conversion, like shale-oil production, would also
make heavy demands on the water resources of the Western States where most of the coal to
be mined for conversion is located. Coal conversion to liquid gas fuels would require between
150-600 gallons of water per barrel of synthetic oil or per 5000 cubic feet of gas produced.lS7)
Huge amounts of capital will be needed to initiate the development of the completely new
conversion industry, amounts of capital which private industry alone cannot be expected to
generate.
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In the present state of technological development, exploitable geothermal resources consist
of steam or hot water contained in permeable rock at a depth which can be reached by con-
ventional well-drilling techniques. A geothermal field which yields only steam at the well-head
is said to be a "dry steam" field. A field which yields hot water alone, or a "flashing" mixture
of steam and hot water, is called a "wet steam" field. In the U.S. the first geothermal power
plant began at a dry steam field at The Geysers near San Francisco. (88) The ultimate electri-
cal generation capacity of this field has been estimated at more than 1000 megawatts (the
typical size of new large scale coal and nuclear plants). The total installed capacity at The
Geysers has been 400 megawatts since 1973, with plans to increase capacity to 900 MW in
1978. (89) The cost of producing electricity from geothermal steam at The Geysers plant was
about $0.0053 per kilowatt in 1970. By comparison, the cost of generating electricity from a
California oil-fired plant of similar capacity nearby was twice that at $0.0124 per kilowatt,
even before the price of crude oil quadrupled on the world market. (90) Thus, electricity
generated from dry-steam geothermal power is more than just competitive with fossil-fuels.
At present, the U. S. has no "wet steam" geothermal plants, though EI Salvador, New Zealand,
Japan, Mexico, and the Soviet Union have shown such plants to be technically and commer-
cially feasible producing electricity at costs ranging between $0.005-$0.015 per kilowatt. (91)
tit
Total potential power generation from geothermal energy using present technology is small,
however, estimated at below 10,000 megawatts. (92) Further, even if fully developed, this re-
source has an estimated life of only 25 years given existing technology. Few geothermal
sources are near centers of population or industry, necessitating the construction of long
transmission lines. Because fossil-fuels have been a cheap and easily transported commodity,
besides being adaptable to practically all uses of heat and power, there has been little incentive
to develop the fixed and inconvenient (by comparison) sources of geothermal energy.
Renewable Sources: Geothermal Power
Although existing technology for the commercial exploitation of geothermal energy limits
utilization of the earth's heat energy to a very few fields of high temperature rock naturally
permeated with water, lower temperature rock reservoirs comprise the great majority of
water-based geothermal fields. Huge areas of the world are known to exist where such moder-
ately hot waters (1500-3000 F.) are found in relatively shallow wells in great abundance. At
such low temperatures steam will not be produced from such wells, rendering conventional
steam turbines inapplicable. Production of electricity from such waters is practicable, however,
using a vapor cycle turbine. The vapor cycle turbine uses a heat exchanger fluid with a very
low boiling point, such as propane or iso-butane, in a closed loop system. At temperatures of
1500-2500 F. these fluids flash into vapor which drives a specially designed turbine, the prin-
ciple and design of which is much like a conventional steam turbine.(93)
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Most of the heated rock beneath the earth's surface is devoid of water. There are areas cover-
ing hundreds of square miles in the U.S. alone under which lie heated rock formations at
temperatures between 6000-12000 F. located at relatively shallow drilling depths of less than
two miles. In fact, in most areas of the U. S. the average rock temperature at depths reachable
by today's drilling techniques (25,000 ft.) is upwards of 3000 F. If techniques were developed
to extract the recoverable energy from dry, hot rocks, the total electric energy needs of the
United States could be met from this one source, even at the present rate of growth, for over
50,000 years. (94) Unlike the technology needed to develop nuclear fussion, the technology
capable of capturing this immense source of energy is already in our grasp, involving only new
applications of existing technology.
Extracting heat energy from dry, hot rocks would be possible by drilling holes into the rock
mass and creating cracks and cavities by anyone of methods already used in conjunction with
. oil and gas well stimulation. Blasting with conventional or nuclear explosives would create
openings in the rock. Surface water would then be pumped into the cavities through one drill-
hole, and extracted from another as high temperature water or low temperature steam. As the
heated water or steam came to the surface it would be passed through a heat exchanger to
power a steam turbine. (95)
Far cleaner than fossil-fuel plants, far safer than nuclear fission plants, geothermal energy de-
veloped to produce electricity will pose almost no risk to health and environment. Scientists
have calculated that if the world's future electric power demands were met by geothermal
energy alone, it would take approximately 41 million years to reduce the temperature of the
earth's interior by one degree Fahrenheit, even at the present rates of growth of electric de-
mand. (96) If and when the cost of generating electricity reaches about $0.05 per kilowatt
(1975 dollars), geothermal energy on a scale to yield hundreds of thousands of megawatts for
centuries to come will become economically available for development. (97)
Hydroelectricity
Hydroelectric power utilizes an indirect form of solar energy. The energy that drives the huge
turbines at a hydroelectric power station is generated by water falling from a height. The
water is raised there by solar radiation evaporating moisture from the ground or the sea. The
flow of water that drives the hydroelectric turbines is the collective result of this moisture
condensing as rain or snow and falling over a large watershed which, like a huge funnel, col-
lects the water into the artificial lake created by a dam to give the power plant a steady supply
of water under high pressure. The hydroelectric plant at Hoover Dam, for example, which has
a generating capacity 1,345 megawatts, achieves this output with a flow of 4.2 trillion gallons
of water per year collected into Lake Mead by about 168,000 square miles of watershed. (98)
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The Federal Power Commission estimates that the total hydroelectric power potential in the
U. S. is about 150,000 megawatts of which about 33,000 megawatts are already installed and
providing roughly 5% of our electric power needs. (99) Though the ultimate capacity for
hydroelectric power in the U.S. in finite, it is a perpetually renewable source of power. An-
other advantage of hydroelectric power is that it is nearly without hazard to health. Also,
hydroelectric power is an extremely energy efficient method of generating electricity, having
an efficiency of about 90%, compared to only 40% for fossil-fuel plants, and even less for
nuclear power plants. (100)
While the cost of building large scale hydroelectric dams is very expensive (several billions of
dollars for a 1000-3000 megawatt plant), new hydroelectric dams on a smaller scale could be
installed at less cost than fossil fuel or nuclear plants of equivalent size. (101) Many of these
sites are small, but could generate anywhere between 5-50 megawatts, and are located near
major power demand centers currently dependent on imported oil. Installation of additional
generating capacity at existing hydroelectric facilities could also contribute to the nation's
generating capacity. Combined, these methods of hydroelectric power expansion could add as
much as 14,000 megawatts to our electrical supply at capital costs well within the budget of
public and private utility industries. (102) To develop the remainder of the nation's hydro-
electric potential, however, would require enormous investments that cannot be realistically
financed by the utility industry alone. Oil, gas, and coal lobbies, fearing expanded hydroelec-
tric power would undercut profits, and well-meaning environmentalists fearing the loss of
wilderness areas flooded by artificial lakes, have stalled recent hydroelectric projects in
Congress and the courts.
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Solar Energy
Like the rainfall needed to drive hydroelectric turbines, solar radiation falls widely diffused
upon the surface of the earth. The difference is that, while rainfall is naturally collected by
gravity-fed watersheds, solar energy must be collected by artificial means if it is to be harnessed
directly. An example of this occurs when a pocket magnifying glass is used to collect enough
solar energy to set paper or wood on fire. All that is required to deliver solar energy at any
desired temperature is to gather and concentrate it from a sufficiently large area. The huge
parabolic mirror of the French solar furnace in the Pyrenees will gather enough solar energy
to melt tungsten (at a temperature of 6,0000 F.l.
Proposals for collecting and concentrating solar energy for the large scale production of elec-
tricity have evolved along three lines. The first process would involve the use of large arrays
of photovoltaic cells of the type now used to convert sunl ight directly to electricity to power
satellites. Until recently, these cells, which have an efficiency of about 10%, cost about $250
per watt, or about 500 times as much as electricity from a conventional fossil-fuel plant. The
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cost has since been lowered, through mass manufacturing techniques, to about $13 per
watt. (103) Just last year workers at RCA laboratories and at the Institute of Energy Conver-
sion succeeded in developing a low-cost solar cell which should lower the cost to about
$1.00-$2.00 per watt. (104) At this rate it won't be long before the cost of generating elec-
tricity with solar cells becomes competitive with the per watt cost of constructing a new
nuclear power plant, at $.050 per watt. (105)
This use of solar cells for large scale generation has taken on a new twist recently which is
linked to an effort to greatly expand the U.S. space program. This scheme would involve the
construction of hugh arrays of photovoltaic cells in geosynchronous orbit over the earth,
some 22,000 miles in space. In space, it is argued, solar radiation is both more intense and
more constant. The satellites would be in full sunlight about 99% of the time. The electricity
generated by the satellite would be converted to microwaves and beamed to 35 mile square
receiving stations on earth to be reconverted to electricity. To provide all of the U. S. electric
power supply from these satellites would be the largest single industrial project ever under-
taken in history. Each satellite would weigh as much as 100,000 metric tons, and would have
to be constructed in space in low orbit and later moved to geosynchronous altitude. The cost
of providing the total U.S. electrical supply this way has been estimated at $100 billion and
would not provide any power before the year 2000. (106) Even so, a growing number of
private corporations, such as aerospace companies, other institutions and individuals are taking
serious interest in the scheme. One bill now before Congress seeks $200 million in research
funds over the next five years.
The second process involves utilizing the hothouse effect by means of selective coatings on
pipes carrying a mixture of sodium and potassium raised by solar energy to a temperature of
10000 F., hot enough to drive conventional steam turbines. During the night, heat could be
stored in natural or artificial salt formations, thus providing a reliable, continuous source of
energy. A desert area of 115 square miles in Southern California or Arizona could produce
one million megawatts of electricity, almost three times the total present annual U.S. electric
power capacity. Present cost estimates indicate such a power plant could generate electricity
of between $0.02-$0.05 per kilowatt, or two to five times the cost of generating electricity
at a nuclear power plant. (107)
The third process involves setting up an array of curved mirrors, motorized to track the sun,
which focuses sunlight onto an energy absorber atop a central tower. Temperatures of
10000-20000 F. can be achieved. Presently, 10 megawatt solar tower near Barstow, California,
is being tested for the Department of Energy by McDonnell-Douglas and Rockwell Inter-
national. (10S) To supply the entire present U. S. output of electric power using generators of
the central-tower design, it has been estimated that about 780 square miles of collectors would
be needed. (109) This represents about three-tenths of one percent of the land area presently
used for farming in the U.S. and a miniscule percentage of the total land area.
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_The most favorable sites for the development of such large scale solar power plants are desert
areas not more than 350 north of the equator, such as large portions of southwestern United
States. These areas receive some 3000-4000 hours of direct sunlight per year. The amount of
incoming solar energy, when averaged over 365 twenty-four hour days, amounts to a mean
power density of 145 watts per square meter. (110)
In 1973 a distinguished group of science and engineering experts, assisted by an equally dis-
tinguished list of 56 consultants under the aegis of the then Atomic Energy Commission,
issued an appendix to a study titled liThe Nation's Energy Future" The appendix, titled
"So/arSubpane/ (IX)" describes in meticulous detail what it would cost in research expenditures
to develop various types of solar energy systems, and how much each would contribute to the
national energy supply. If the various solar systems were developed according to the subpanel 's
recommendations in "an accelerated orderly program having a high probability of success,"
. for a cost of about $1 billion, they could contribute a total of 21% of the nation's electrical
demand by the year 2000. The subpanel proposed a step by step schedule for the development
of solar power from photovoltaic cells which would "result in the production of economically
competitive electrical power (at a cost of $0.001 per kilowatt hour) by the year 1990." (111)
At the projected rate of implementation suggested by the subpanel this one solar technology
would contribute more than 7% of the projected U. S. electric power capacity by the year
2000. (112) To reach this goal, the subpanel proposed research expenditures of about $250
million. The Department of Energy currently has a total of $400 million dollars to fund all
types of new energy research and development. This is likely to increase by tens of millions
of dollars each year as the seriousness of the nation's energy situation becomes apparent.
Even so, solar energy is just one promising area of research, so it is unlikely that large scale
solar energy development will take place as rapidly as many solar experts hope.
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Sio-Organic Energy
Solar energy sustains all living organisms on earth. Every living plant derives the power it
needs to carry on its I ife processes by di rect conversion of solar energy through photosynthesis.
Organic matter or vegetation, agricultural products, wood, wood wastes, animal wastes and
municipal sewerage, all represent stored energy derived directly or indirectly from the sun. A
good example of bio-organic power comes from the sugar cane industry. The cut cane is
crushed with water, the washing water is evaporated to extract the sugar and the cellulose
waste is burned in boilers, providing steam to run the evaporators. Excess steam can be used
to generate electricity. The cane can also be fermented to produce combustible alcohol and
used as a fuel. In 1978, Brazil was meeting about 10% of the I iquid fuel requirements for its
most populous state of Rio de Janeiro from the alcohol produced in its one fermentation
plant. (113) At present the U. S. has more than 200 million acres of uncultivated land suitable
for growing crops.(114) Sugar cane is grown in the U.S., but sweet sorghum, a cereal that
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can be fermented to alcohol with comparable yields, can be grown on the same land as corn
and soybeans. 100 million acres used to grow sorghum as an energy crop could generate 280
million barrels of combustible alcohol to replace over 10% of present U. S. crude oil consump-
tion. (115)
Forests are another means of capturing solar energy, one which contains more energy by
weight than sorghum or sugar cane. Forests once formed the principal source of energy for
the U.S., when wood was burned directly as a fuel, until about 1850. Today, commercial
forests for the construction and paper industries cover about 23% of the land area of the
United States. (116) It has been calculated that if between 5 and 20% of the existing com-
. mercial forests were operated as "energy plantations" the renewable crop of trees could be
converted to provide 1.8 to 2.0 billion barrels of combustible alcohol fuel per year. (117) Pre-
sently a 1,000 acre pilot energy plantation on the Savannah River in South Carolina is being
funded by the Department of Energy to farm trees for the production of combustible alcohol
fuels. Scientists at Princeton University calculate that, using intensive management techniques,
as few as 48 square miles of forest could supply enough fuel to operate a 150 megawatt pow-
er plant. (118)
Combustible alcohols (or methyl-fuel) derived either by fermentation or pyrolysis of bio-
organic material could be the ideal replacement for gasoline in the future. In fact, methyl-
fuel is a superior fuel to gasoline in many respects. Methyl-fuel can be made from either
fossil fuels or bio-organic fuels. Methyl-fuel is easily stored in conventional tanks, can be
shipped in conventional tank cars. tank trucks, tankers, oil and chemical pipelines. Methyl-
fuel can be added to gasoline, in proportions of up to 15%, without requiring modification to
internal combustion engines. In addition to prolonging supplies of gasoline, the mixture re-
sults in improved fuel economy, lower exhaust temperatures, low pollution emissions, and
in improved performance to that of unmixed gasoline. Existing internal combustion engines
can easily be converted to use pure methyl-fuel. The conversion is estimated to cost about
$100 per vehicle if done on a per unit basis, less if mass produced at the factory. Even greater
performance and economy could be achieved if the engine were designed specifically for
methyl-fuel. (119)
Since the 1920's methyl-fuel has been synthesized chemically mainly for non-fuel purposes.
In 1973, ten billion gallons of methyl-fuel were manufactured in the U.S. (this is about 1%
of the present U.S. gasoline production) and sold at an average price of $0.18 per gallon. (120)
For the next few decades, however, it would appear that low-energy coal will be the most
economically attractive candidate for methyl-fuel production rather than bio-organic energy
sources. It is estimated that the cost of making methyl-fuel from low energy coal would be
about $0.085 per gallon for a plant capable of producing 20,000 metric tons per day. (121)
If lignite is used, the resulting ash would contain 0.4% uranium, equivalent in uranium con-
tent to commercially mined uranium-ore. (122)
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Due to the absorption of sunlight by the upper layers of the oceans, large amounts of solar
energy are absorbed in the subtropical and equatorial regions of the oceans. One resulting
current of warm water, the Gulf Stream, flows northward along the eastern coast of Florida.
A cold, arctic counter-current flows southward beneath it. In some locations, like 30 miles
off the coast of Miami, the warm and cold streams are separated by density layers about 2000
feet in depth. The temperature difference between these two currents maintains a constant
range between 350 and 450 F.(123)
The potential energy inherent in this temperature differential could be tapped using a simple
technology which involves suspending a vertical pipe of large diameter from the surface to a
2000 foot depth in the sea to tap the cold water source. Using a low temperature, vapor cycle
turbine with propane as a heat exchange fluid, such a unit could generate 100 megawatts of
energy at an estimated capital cost of $100 million.(124) A proposed collection grid of 100
megawatt plants, moored at one mile intervals along the length and breadth of the Gulf Stream
off Florida's coast could, theoretically, supply enough electricity to meet all the projected
U. S. electric power needs of the year 1990.(125)
Because of the low temperature differentials involved, these plants would operate at extremely
low efficiencies or 10% or less. The location of the Gulf Stream is noted for its hurricanes,
making the safety and reliability of such floating power stations dubious. Further, the extrac-
tion of large amounts of radiant heat energy from the Gulf Stream could have drastic meteor-
ological effects on the climates of the United Kingdom and the countries of northern Europe,
which depend upon the warmth of the Gulf Stream to moderate the icy climate which would
otherwise prevail in those latitudes. For these reasons, the large scale utilization of ocean
thermal energy requires much more careful study. Because other new energy sources seem so
much more promising, it seems unlikely that ocean thermal technology will be developed in
the near future, if at all.(126)
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Wind Energy
Although it has been widely used for at least 2000 years, wind energy is not highly attractive
as a continuous source of power because wind is such a variable force. Wind is really an indi-
rect form of solar energy created by the uneven heating of the earth's surface by the sun. In
1973, the National Science Foundation and the National Aeronautics and Space Administra-
tion held a major workshop on wind energy. Since then there have been many serious pro-
posals to utilize wind energy on a large scale. In competition with a conventional 1000 mega-
watt power plant, large windmills, in the range of 500-2000 kilowatts each, would fill the
countryside with hundreds of high towers. (127) The proposed "Great Plains Networks,"
envisions 15,000 towers, each 850 feet high, each supporting twenty wind machines. (128)
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Wind machines in the 500-2000 kilowatt size have been built and operated in the U.S., France,
Germany, Denmark, Hungary and elsewhere. Yet the problem of how to supply power when
the wind has died remains crucial to the ultimate implementation of large scale wind power
proposals. Further, for large scale wind units, the economics of competition with conventional
power plants have yet to be proven. (129)
Though it is not likely that wind power will be developed ona scale to generate any significant
amount of electrical energy in time to alleviate the coming energy shortage, it does seem likely
that small windmills will again be economically utilized on a scale greater than that of the turn
of the century, when 100,000 or more were in use in America alone. (130) Even now, a pro-
gram for the mass production of fully automatic windmill p,lectric plants in. a range of sizes
up to 25-50 kilowatts could adequately serve a great many users, who are now largely served
by gasol ine or oil generator plants. Present federally subsidized research and development
programs emphasize wind power plants smaller than 100 kilowatts. (131) Yet the total con-
tribution of these plants will be unlikely to approach even 1% of the U.S. energy load within
the next generation or beyond.
Slow- Breeder Fission
Though President Carter has halted the Clinch River breeder project indefinitely, he has auth-
orized some $450 million for further breeder research. One program, which shows promise, is
being conducted using the conventional, lightwater uranium-fueled reactor at Shipping Port,
Pennsylvania. (132) There fuel rods using a mix of Uranium-233 and Thorium, a cheap and
abundant resource, have replaced the usual U-235 fuel rods. The thorium absorbs excess neu-
trons generated by the U-233, and, in the process, is transmuted into more U-233, thus creat-
ing more fuel.
Scientists estimate that supplementing uranium fuel supplies with uranium created from
thorium could extend uranium energy supplies from the presently estimated 30-40 years, to
about 600 years. (133) A conventional lightwater reactor, using U-233 fuel, could be con-
verted to a U-233-thorium- U-233 slow breeder simply, at low capital costs, and within a few
months. In addition the slow-breeder uses ordinary water instead of the highly volatile liquid
sodium for a coolant, it does not produce plutonium, and involves the application of no un-
tried technological breakthroughs.
Nuclear Fusion
The sun itself is really a gigantic, self-sustained nuclear fusion reactor. So far, the hydrogen
bomb is the only technology available to duplicate the complex fusion reation which powers
the sun. Safely harnessing this immense power source involves solving three exceedingly dif- S
ficult problems:initiating the fusion reaction, containing the reaction, and sustaining it. At 0
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present the only way to trigger nuclear fusion is with an atomic bomb, clearly an awkward
method if the nuclear reactor itself is to remain intact. Further, no known metals or combina-
tion of metal alloys can contain the temperatures required to sustain nuclear fusion, some-
where between 100 million and 1 billion degrees Celsius, without themselves vaporizing into
that fourth state of matter known as plasma, where the atoms themselves are broken into
their constituent parts.
Hydrogen fusion takes place when atoms of hydrogen are fused together to produce helium.
Energy is produced as a by-product. The hydrogen fuel to be used in controlled fusion
reactions is deuterium and tritium, two forms of water having extra hydrogen atoms. While
tritium is radioactive, it is far less dangerous than either uranium of plutonium, and has a far
shorter half life, only twelve and a half years vs. 250,000 and 24,600 years for uranium and
plutonium respectively. Deuterium, on the other hand, is non-radioactive. Both deuterium
and tritium exist in dilute form in sea-water. The supply of deuterium-tritium would be suffi-
cient to meet the world's total energy needs for between 10 and 100 billion years, even at
present rates at energy growth.
Two techniques for creating controlled fusion reaction are presently being pursued. The first
involves artifically recreating a sort of miniature "sun" using an electromagnetic field to heat
and contain the plasma fuel. To be commercially feasible, huge electromagnetic fusion re-
actors would have to be built, approaching generating capacities of 5,000 megawatts apiece
before they would yield more energy than they would consume. (134) The second technique
involves focusing powerful laser beams on tiny deuterium-tritium "ice" pellets. The principle
advantage of laser beam fusion over electromagnetic fusion is that a laser beam is a far more
simply and safely controllable source. The tiny fuel pellet is dropped into a vacuum chamber
and ignited by a powerful pulse of laser I ight. The pellet is compressed to tremendous densities
and becomes so hot that fusion takes place and the pellet vaporizes into plasma. What actually
occurs is a miniature hydrogen-bomb explosion. The process is repeated with a steady stream
of fuel pellets and a pulsating laser beam. Each explosion is separate from the next, there is
no chain reaction which must be sustained, and the reactor can be easily shut down or started
up simply by switching off the laser or stopping the flow of pellets. If laser fusion proves
successful, the problem of scale is also solved. To generate electricity on a large scale, say
1,000 megawatts, would require 10 vacuum chambers burning 100 pellets per second. The
high capital costs of long transmission lines could be avoided since laser fusion power plants
could be built to generate electricity at the county or municipal level. Meeting increases in
population or power demand would be a simple matter of adding the required vacuum cham-
ber units. Even more exciting, however, is the possibility that laser reactors can be scaled
down further, to provide power for ships, even trains.
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U Sometime in late 1979, or early 1980, the $25 million laser fusion project called Shiva at the
University of California's Lawrence Livermore Laboratory will, hopefully, achieve the magic
break even point when the energy output generated from a test firing equals the energy needed
to power its lasers. (135) The achievement will represent the combined efforts of over 100
corporations over the past four years, and the skills of the 375 members of the Livermore
team. The next step will be called Nova, which if successful, will be the final experimental
fusion facility before the jump to full-scale working fusion reactors. If all goes well, the first
laser fusion reactors could be generating power as early as 1995-2000, and, within 25 years
after this date, could be well on the way to supplying the major portion of the U.S. electr:ic
power needs. After that, our energy future would be secure for millenia to come.
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APPENDIX II: DATA FROM PHASE I OF THE
CLEARWATER ENERGY MANAGEMENT PROGRAM
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DATA FROM PHASE I OF THE
CLEARWATER ENERGY MANAGEMENT PROGRAM
City Hall (Completed)
1. Air conditioning system controls modified and system put on time clock.
Results - (Actual)
Energy Reduction - 920 KW Per Day
Cost - $350.00
Savings - 335,800 KW per year of $13,062.62
2. Lighting Reduction: Corridor lighting reduced and several banks or lights recircuited.
Results - (Actual)
Energy Reduction - 20 KW Per Day
Cost - $50.00
Savings - 5000 KW per year of $194.50
City Hall (Started but not completed)
1. Replacing existing gas steam boiler (due to have a major overhaul) with a 600,000 BTU
gas water boiler.
Results - (Estimated)
Cost - $2,000.00
Savings - $6,650.00
2. Reduction in office lighting and time clocking decorative and parking lot lights.
Results - (Estimated)
Energy Reduction - 44 KW Per Day
Cost - $150.00
Savings - 16,060 KW per year of $624.73
Total Reduction - 35.7%
City Hall Annex (Completed)
1. Reduction in light levels in halls, restrooms and storage areas.
Results - (Actual)
Energy Saved - 50 KW Per Day
Cost $50.00
Savings. 12,500 KW per year of $486.25
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City Hall Annex (Started but not completed)
1. Retrofitting and time clocking the air conditioning and heating system.
Results - (Estimated)
Energy Saved - 1200 KW Per Day
Cost - $5,000.00
Saving - 23,257 KW per year of $904.69
Total Reduction - 35.1%
Recommendations for City Hall Annex
1. Reduce outside air to recommended F.E.A. requirements. By actual measurement out-
side air is being introduced into the system at 6211 cubic feet per minute. This is more
than 3Y:2 times the amount needed. Reducing outside air to recommended F.E.A. require-
ments results in a savings of 4478.5 cubic feet per minute. This works out to an annual
savings of 43,435 kilowatts, or $1737.40. The cost of renovation is estimated at $160.
2. Reduce lighting level to 30 FC in general work areas and 10 FC in halls, file rooms, rest-
rooms and etc. (Where the degree of visual acuity requires a higher light level, the addi-
tional foot candles are to be provided by desk lamps to conform to the recommended
F.E.A. lighting standards). This would result in a net savings of 32,305 KW/year or a
dollar saving of $1,292.20 per year. This reduction in lighting would also reduce the air
condition load by 6407 Ton/year for a dollar saving of $256.28 per year. The cost of addi-
tional lighting for 75 stations at $25 per station would be $1875.00 for future fixtures.
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3. Retrofit the chilled water - AC System
Retrofitting the chilled water - AC System would increase the efficienty by an estimated
30%, or would reduce the full load running time by 525 hours/year for a savings of 78,750
KW/year or $3150 per year. The greater efficiency would also eliminate the need for any
additional air conditioning equipment. The approximate cost to retrofit AC is $3200.00
4. After retrofitting the air conditioning system install a time clock with a setting from
6 a.m. to 6 p.m. with a manual 6-hour override for night time activities. This would result
in a saving of an estimated 277,920 KW/year of $11,116.00 per year. The cost of the
clock and installation would be approximately $350.00.
5. Block off air conditioning to restrooms, and add outside air intakes to supply the exhaust
fans. Approximately 120,000 cu. ft. of conditioned air per hour is currently being wasted.
Installation of exhaust fans would yield a savings of 63,000 KW/year or $2,520.00 per
year. The approximate cost to complete is $350.00.
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Coat the roof with a white or reflective material. Coating the roof will reduce the solar
load by 30% yielding a savings of 28,698 KW/year of $1,148.00 per year. Items#l and
#4 will also reduce cost of 246 full load heating hours per year by an estimated 12,578
KW/year of $503.00. Implementation of the above recommendations would result in a
total energy savings to the City of 484,581 KW/year. At current electric power rates
this would yield a dollar savings of $19,383.00 per year. Anticipated increased energy
costs in the immediate future shows a potential for even greater monetary savings.
Martin Luther King Center
Modify the control system on the air conditioning and heating equipment to prevent simul-
taneous operation of both. This also simplified the system for easier maintenance as well as
for greater reliability.
Energy Saving - (Actual) 196 KW Per Day
Cost - $350.00
Savings - 71,722 KWH per year of $2,790.00
Total Reduction - 22.9%
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Police Department
Extensive time and energy was exerted in the complete balancing of existing air conditioning
units. Air distribution and temperature problems were rectified by installation of new duct
work in the emergency communication center. New thermostats, changes in fan speeds,
cleaning and balancing solved the temperature problems existing in the detective bureau and
Chief of Police Office. These changes make the unit run smoother and more efficiently, there-
fore, using less power. Energy saving modifications will be made as soon as existing air units
are running properly. This will insure normal operations of the Police Department.
Library
A new compressor was added to the new~ ibrary making the system run more efficiently and
eliminating the possibility of future breakdowns. A time clock was added to shut off the air
conditioning when the library is not in use. This has reduced the power consumption of the
library by 7732 KW or $300/month. This savings will be much greater during the cooling
season. Changes in lighting levels near windows are currently being experimented with by
placing them on photo electric cells. This was done to approximately 80 40-watt incandescant
tubes when lighting requirements exceeded recommended levels established by the Illuminating
Engineering Society and American Standards Institute, and saved 5760 KW/year or $233.48
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'" per year. Additional recommendations were made to add 6" of insulation with an R factor of
U..,J 30 above the first floor ceiling in the new section, to provide mechanical ventilation for the
second floor, to be controlled by a thermostat, and to reduce the outside air to 600 CFM
with a humidity rise shut off.
Memorial Civic Center
Recommendations were made upon mathematical calculations and observation. Light levels
will be reduced resulting in a considerable saving of $7200/year or 18,552 KW/year.
McMullen Booth Tennis Complex
A redesign of existing duct work was completed to provide the center with adequate air con-
ditioning and air distribution. In the future this would make this system work more efficiently.
Suggestions were also made for lighting reduction and provisions made for time clocking the
water heater resulting in a substantial savings in wasted energy.
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APPENDIX III; CLEARWATER'S RESIDENTIAL ENERGY AUDIT PROGRAM
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CLEARWATER
RESIDENTIAL POWER PIE
Water Heaters
23.9%
Air Conditioning
32.8%
SOURCE: Clearwater Energy Office
Television
Freezers
0.5% Washers
0.4% Dishwashers
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",V' HOME ENERGY AUDIT
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U Basic Data and Assumptions Made.
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I. The Power Pie was developed from national averages of energy used for each energy
consuming entity. The Power Pie was then adjusted to fit the Bay Area's climactic
conditions.
II. Based on estimates from private and governmental agencies, the concensus revealed
that the average home wasted 25% of the total energy consumed.
III. An arbritrary value of 750 Energy points was establ ished for the average home. A value
of 1000 Energy points was assigned to a home which theoretically would waste no
energy. 500 points will represent a home with the poorest possible energy efficiency.
This then gives 250 Energy points which the average homeowner could save if he or
she adopted all the practices and suggestions for making their homes more energy
efficient as indicated by the audit.
IV. The percentage representing each part of the Power Pie was then multiplied by 250 to
determine how many energy points could be saved in each of the parts.
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V. When the savings point value for each wedge was established, all factors contributing to
its efficiency or inefficiency were weighed against the whole and a number was calculated
for each factor with the total of the factor numbers equaling the savings point value.
VI. The factors were then listed and a zero (0) was assigned for an average condition with a
Positive (+) number for a better than average condition and a Minus (-) number for a
less than average condition..
VII. Totaling the points and adding or subtracting them from 750 will give energy point
value for the given home. The difference between the home point value and 1000 will
be the potential savings. Each Energy point then has a monetary value of 0.1 % of the
Energy Dollar.
VIII. This audit will not only pin point the areas where the homeowner can save energy but
will also tell how much he or she can possibly save in dollars. Knowing this, decisions
can be made by the homeowner on the economics of making the modifications or
changes indicated.
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CLEARWATER RESIDENTIAL ENERGY AUDIT FORM
ENERGY AUDIT
NAME:
ADDRESS:
PREPARED BY:
PHONE:
TYPE:
STRUCTURE DATA
OTHER SPECIFY
DATE:
FRAME
CBS
'Re<:ommended
ROOM ! Lumen~ per sq. it.
I
I
; Overhead Wall
...,...---
Loving Rm i 50 100
Dining Rm 40 80
Kitchen 80 160
e FamIly _~m.._1 50 100
SedRm 1 i 40 80
s..dRm 2 40 80
SedRm 3 40 80
~dRm 4 40 80
BathRm f 80 120
BathRm 2 60 120
Hallway 20 40
Other
Other
Other
PERIMETER IIN FEETl:
R-VALUE OF ROOF.CEILlNG SYSTEM:
HEAT GAIN CALCULATIONS (COOLING):
HEAT LOSS CALCULATIONS (HEATING):
EQUIPMENT CAPACITY: COOLING
BTU/HR HEATING
LIGHTING ANALYSIS
Room
SQ.Ft.
WattS per
SQ. It.
Lumens per
SQ. ft.
Incan~cant LamP. Lumens = Wans x 20
FI~ore~ent Lamp. Lumens = Wans x 65
1. Ceiling Insulation:
2.
3. Window Shading:
4. Root lAlor:
5. Usage Doon:
6.
7. Filter lAndit,on:
a Duct In.ulation:
9. Anic Ventilation:
over R22=+30,
BTU/HR
BTU/HR
BTU/H R
Recom- I i Value per R
mended. Measured' 6 ~ Number
Foot : Foot : of Rooms
Cendles 0 Candles I
25
20
40
25
20
20
20
20
30
30
10
TOTAL POINTS'
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IQV' CLEARWATER RESIDENTIAL ENERGY AUDIT FORM
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U HEATING: VALUE 18 POINTS
10 Filter lAndition:
11.
12.
13. ~s Ignition:
14
LIGHTING: VALUE 18 POINTS
16. Proper Level;
17. Decorat've Outdoor Lights:
18. Fluorescent Ughting (roomsl;
19, Off. 'n unoccupied rooms: I
20. Natural Light when poss,bia:
Two or mar. = +2
TELEVISION: VALUE 6 POINTS
21. TV without audience:
22 Instant on Television
23. lAndenser:
24. Ooor Sea';
25.
26.
27. Usage :
REFRIGERATOR: VALUE 18 POINTS
Clean = +6 I
28. Usage: ! 3 lead!
DISHWASHER: VALUE 1 POINT
.1. 12 loads = 0 II load = + 1 I
RANGE: VALUE 18 POINTS
29. Door Fit:
30.
31.
32. Gas lAmbustion:
33. Selt Clean Ov.n:
34. Miaowave Oven
WTAC PO'." 1-
TOTAL POINTS
TOTAL POINTS
TOTAL POINTS
TOTAL POINTS
TOTAL POINTS
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I
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CLEARWATER RESIDENTIAL ENERGY AUDIT FORM
FREEZER: VALUE 8 POINTS
35. Door Seal:
, Poor = .2, ; Good = +2
-L-
I
I
36. Frost: : Heavy = .2, i Avt'rage = 0 Automatic Defrost: + 2
--'-----r .
37. Usage: : Heavy = . 2, : Av~rage = O. Light = + 21
38. lAnaenser: I Dirty = .2, I Average: 01 Clean = +21
39. Locat,on: Poor = . a.
TOTAL POINTS
WATER HEATER: VALUE 58 POINTS
. I
, I
Average: 0 'Good =.8 I
. Standard Outslde:.6 : Standard InSide ~ 0 Added Insuiatlon: +6
40. InsulatIon, Heater:
41., I nSulatlOn. Pipes:
i No: ,10: Y..= +101
I 0 0' ~ I
160 : -, 0, 140 = 0,1120 = + 10
4 2. Temp. Setting:
4:;. Time Clock or Manual:
44. Us.1ge: ; Heavy: ,6, i Average = 0,: lIght-
G... lAmbustion: i Poor: -4,! Good = +4 j
45.
48.
47. Pilot:
Auto. Ignition - +8
SO. Solar System: i With reserve tank: +58 Absorber on existing system = +28
TOTAL POINTS
WASHING MACHINE: VALUE I.POINT
51. Wash Full Loads: tNo~1 Yes = +1 I
TOTAL POINTS
DRYER: VALUE 10 POINTS
52. Dry Full Loads:
53.
54. Filter:
55. Sath Fan:
TOTAL POINTS
OTH E R EN E RGY USE RS : 12 + By Items Checked
: Excessive Use z -
+ Exce..ive Use =
56.
TOTAL POINTS
57. Disposal:
58. Plug In Appliance.:
I Required Use = +
59. Pumps: Required Use ~ + Exceui.. Use
60. Mi5c.:
ReqUIred Use : + Excessive Use
TOTAL POINTS FOR HOME
TOTAL POINTS AVERAGE HOME
MAXIMUM POINTS AVAILABLE
COMMENTS
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IQV' AUDIT DESCRIPTION
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U Equipment capacity - Manufactures stated capacity
R. Value of Roof Ceiling = R - Value refers to the measure of a materials ability to retard
heat flow. It's the R-Value that's important, not the number of inches.
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Heat Gain Calculations (Cooling)
No attic Insulation
Perimeter (in feet) x 235 = BTU/HR
4" Attic Insulation = (R=16)
Perimeter (in feet) x 152 = BTU/HR
8" Attic Insulation (R=26)
Perimeter (in feet) x 134 = BTU/HR
Heat Loss Calculation (Heating)
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No Attic Insulation
Perimeter (in feet) x 200 = BTU/HR
4" Attic Insulation
Perimeter (in feet) x 133 = BTU/H R
8" Attic Insulation
Perimeter (in feet) x 77 = BTU/HR
If multi-story, work same equation for each floor as for single story and multiply the answer
by 0.75.
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U Column 1 -
Column 2-
Column 3-
Column 4 -
Column 5-
Column 6-
Lighting Analysis
Refers to the type of room being lighted.
Refers to the lumens per square foot of two types of lighting:
A.) Overhead lighting
S.) Wall lighting - ex, lamps, wall fixtures
Is the square footage of rooms under analysis.
Is the calculated wattage per square foot of I ighting for that room.
Multiply the watts per square foot from Column 4 by 20 for
incandescents and by 65 for fluorescent to arrive at the lumens
per sq. ft.
Refers to the recommended foot candles for that specific room.
Column 7 - Measured Foot Candles are the readings taken by a light meter.
Column 8 - Value per Room = (6) -:- Number of Rooms.
This column refers to the point values given for meeting the
required lumens per square foot. The point total is arrived at by
dividing the maximum allowable points (6) by the number of
rooms under analysis and adding these figures for the point total.
A positive value is efficient I ighting. A negative value is ineffi-
cient lighting.
The inefficiency and efficiency of the lights is determined by
comparing the required foot candle measurements,
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AUDIT DESCRIPTION
1.
Ceiling Insulation - R-22 is the average for an 8" of insulation; recommended level is
R-26.
Mobile Homes or Frame Construction:
.
None R - 11 R - 19 R - 22 over R - 22
-24 0 -6 -16 -20
Wall and Floor Insulation:
None R - 11 R - 19 R - 22 over R - 22
-8 0 +4 +6 +10
2. Recommended temperature level is 760 - 780 F.
3. Window shading consists of solar film, awnings, trees, blinds and drapes.
4. Roof color - Light is white or beige; Medium is tan or light gray; Dark is brown, black,
dark green, etc.
5, Open doors 6 or less times per person for I ight usage; 7 - 10 times per person for
medium usage; over 10 times per person for heavy usage.
6, Obstructions which restricts air flow such as dirt, leaves, shrubbery, etc.
7. A filter with light penetration is clean; a filter with slight discoloration is average; a
filter with visible dirt is restricted.
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8. Measure if possible and check condition as to the tightness of joints. Fiberglass duct
is an average rating.
9. Check for adequate cross ventilation in attic.
10. A filter with light penetration is clean; a filter with slight discoloration is average; a
filter with visible dirt is restricted.
11. Recommended temperature level is 680 F.
12. If serviced within one year assume good combustion.
13. Check for auto ignition.
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U 14. Score applicable system.
Point average from front page.
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16.
17.
18.
19.
20.
21.
22.
23.
24.
e 25.
26.
27.
28.
29.
30.
31.
32.
33.
34.
35.
36.
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AUDIT DESCRIPTION
Decorative lighting consists of gas lamps, shrubbery or fountain illumination, etc.
Check for fluorescent light fixtures.
Self-explanatory.
Utilize sunlight when possible.
Self-explanatory.
Instant-On TV uses 40 watts per hour when connected but not operating.
Condensor - average is visible dust; dirty is matted lint or build-up of dirt.
Check for adequate tension on paper pulled through gasket when door is closed.
Make sure food is stored away from air inlets.
Heavy frost is 1/8" or over; Average is less than 1 /8"; Full point value is given for
automatic defrost.
Usage based on number and habits of people using the refrigerator.
Self-explanatory.
Check gasket and level of Range,
Self-explanatory.
Make maximum use of oven size resulting in minimum time of operation.
Look for auto ignition.
Extent of use of self-cleaning oven.
Self-explanatory.
Check for adequate tension on paper pulled through gasket when door is closed.
Heavy frost is 1/8" or over; Average is less than 1 /8"; Full points value is given for
automatic defrost.
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AUDIT DESCRIPTION
37.
Usage based on number of people and their habits.
38, Condensor - Average is visible dust; Dirty is matted lint or built-up of dirt.
39. Location; poor - farthest from usage area; average - within the house; good - central
to hot water demands.
40. Standard outside - garage without insulation; Standard inside - in house without insula-
tion; Added insulation with any water heater +6.
41. . Self-explanatory.
42. Self-explanatory,
43. Self-explanatory,
44. Depends on the number and habits of people.
45. Self-explanatory.
47. Check for auto ignition.
48-56. Self-explanatory.
57. Excessive use of disposal refers to grinding small units of waste instead of collected
waste.
58. Coffee-maker; Stereo; Radio.
59. Swimming pool or sprinkler pump.
60. Items such as electric typewriter; calculator; fish tank lights; electric blankets; portable
fans.
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IQV' ENERGY AUDITOR TRAINING PROGRAM
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U I. BACKGROUND
A Discuss function of office
B. Objectives of office - include phases
C, Current accomplishments
D. Auditors part in program
E. Type of work auditor will be performing
F. Importance of job, their role in strengthening program, accuracy in their job
G. Public's attitude and beliefs
II. Energy
A Definition - Types - Measurement (Metric, SN)
B. Sources - See mod. B
C. Production of power (see mod. C)
D. Energy demands - Indust, Trans, Com/Resid.
E. Energy Resource Problems
F. Solving the Energy Problem
G. o-BTU- THERM-WATT - KW-AM, Volt, OHM
(1850-1974 Energy
Consumption Pattern
Chart)
III.
A
B.
Energy Consuming Entities
Discuss how home power is measured and delivered
Discuss Power Pie and percentages
( Energy)
BI Air Conditioning
A Basic air conditioning principles
B. What is EER-Define Heat-
C. Determining wattage, input and output
D. BTU Conversion, setting Othermostat
E. Tonnage 1,2,3, etc.
F. AC. Definitions
G. Energy Saving Techniques
H. Fans, Types, Filters, Solar covers, types
I. Consumption of power
J. Illustrations
K. Importance of insulation, leakage, weatherstripping
Cost assessment in operation
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ENERGY AUDITOR TRAINING PROGRAM
BII Heating
A. Discuss types - operation - cost assessment
B. Sources of fuel
C. Maintenance and preventative maintenance
D, Importance of insulation, leakage, weatherstripping
E. Rating input and output
F. Methods of heat distribution
G. Proper use of solar heat transaction
B III Water Heater
A. Types and Sizes - Operation and diagram
B. Input and output
C. Importance of insulation - Tank and pipes
D. Time Clocking
E. (Check for leaky faucets (repair)
F. Settings 1200 1400 dishwasher
BIV Appliances
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Refrigerators
1. Operation - cost assessment
2. Ratings
3. Inspection - Coils, gasket, temp. measurement, food storage, frost in ice box, temp setting
Dishwasher. Energy saving ideas, cost assessment, KW
Washers. Energy saving ideas - cost assessment, KW, no. washes, cold water use
Oven/Ranges - KW, Energy Saving Suggestions
Microwave Ovens - KW
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U Dryers.
1, Check filters
2. Make sure it is vented
3. KW Pull - Cost assessment for operation
ENERGY AUDITOR TRAINING PROGRAM
Disposal - KW consumption; cost assessment
TV - Hrs. used, No.
Type
Cost assessment
Coffee Makers - Hrs. used, cost assessment (other appliance analysis)
Lighting. Total numbers
Candle power - lighting level assessment
Cost of operation
Shades drawn
Shades open
Total Watts/Room - Watts/Sq. Ft.
Energy Saving Ideas
Recommendations
IV. Energy Checklist for Cost of Insulating
Heat Load Calculation, BTU Chart, Energy Rating, Perimeter, Square Footage
V. Solar Energy
Principles of operation
Costs
Feasible uses
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ENERGY USE OF APPLIANCES
Freezer
(Plain, 15 cu. ft.) 1195
(Frostless, 12cu. ft.) 1761
Water Heater
(Plain) 4219
(Quick-recovery) 4811
47% more
14% more
Refrigerator
(Plain, 12 cu. ft.) 728
(Frostless, 12cu. ft.) 1217 67% more
Range with Oven
1175
1205
3% more
SOURCE: Federal Energy Administration, UCAN Manual of Conservation Measures,(1975).
COST OF COMMON LIGHTING METHODS
Rated Rated Bulb Cost/ Electric Cost/ Total Cost/ Total Cost
Bulb Price Hours Lumens 106 lumen hr. 106 lumen hr. 106 lumen hr. 1000 HrS.Use
--
60w 50c 1000 870 .57 2.76 $ 3.33 $ 2.90 e
std.
57w 50c 750 1180 .56 2,54 $ 3.10 $ 3.66
std.
60w 70c 1500 795 .59 3.01 $3.60 $ 2.86
long-
life
75w 70c 1350 1080 .48 2.78 . $3.f6 $ 3.52
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ENERGY CONSERVATION TIPS FOR APPLIANCES AND L1GHTING*
Dishwashers
· Be sure the dishwasher is full, but not overloaded, before you turn it on. An average
dishwasher uses 14 gallons of hot water per load.
If every dishwasher user in the country cut out just one load per week, the country
could save the equivalent of about 9,000 barrels of oil each day, (enough to heat
140,000 homes in winter),
· Let your dishes air dry. After the final rinse, turn off the control knob of the dish-
washer and open the door.
Refrigerators / Freezers
· Use proper defrosting methods for manual refrigerators/freezers. These appl iances
consume less energy than those that defrost automatically, but they must be defrosted
frequently and as quickly as possible to maintain that edge. Frost should never be
allowed to build up more than one-quarter of an inch.
· During holidays or extended absences from home, empty the refrigerator, disconnect
it from the power outlet, clean thoroughly, and leave the door jam ajar.
· Check seals around the refrigerator and oven doors to make sure they are airtight. If
not, adjust the latch or replace the seal.
· Clean condenser coils once a year (they are located at bottom of rear of the refrigera-
tor).
Ranges I Cooking
· Pressure cooker saves energy by reducing cooking time,
· When using the oven, make the most of the heat from that single source. Plan all-oven-
cooked meals, or fill the oven with other food that can be used at a later time with a
bit of heating. Use small heaters, or small ovens, for small needs.
· Open the oven door as seldom as possible in cooking.
Clothes Washers
· Wash clothes in warm or cold water, rinse in cold. You will save energy and money.
Use hot water only if absolutely necessary.
* Excerpted from Tips for Energy Savers, 1975, with additions,
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ENERGY CONSERVATION TIPS FOR APPLIANCES AND LIGHTING
If everyone washed clothes in warm or cold water, national fuel savings would amount
to the equivalent of about 100,000 barrels of oil a day, That is, 2% percent of the total
demand for residential heating (enough to heat 1.6 million homes in winter).
· Fill clothes washers (unless they have small-load attachments or variable water levels)
and dryers, but do not overload them.
If every household cut the use of clothes washers and dryers by 25 percent, the nation
would save the equivalent of 35,000 barrels of oil per day (enough to heat over 400
billion gallons of water a day).
Clothes Dryers
· Dry clothes outside in the sunlight if convenient.
· Remove clothes from the dryer as soon as they are dry. Extra running time is pure
waste.
· Separate .drying loads into heavy and light weight items. Since the lighter ones take
less drying time, the dryer does not have to be on as long for these loads.
Reduce Hot Water Use in the Bathroom
· Consider installing a flow restrictor in the pipe at the shower-head to restrict the flow
of water to an adequate 4 gallons per minute.
This is easy to do and can save considerable amounts of hot water and energy used to
produce it. The shower-head should unscrew easily, and flow restrictors are available
at most plumbing supply stores.
· Brief showers use less hot water than baths, but long showers use more and, therefore,
more energy.
Lighting
· Remove one bulb out of three and replace it with a burned out bulb for safety; replace
others with bulbs of next lower wattage,
Be sure to provide adequate lighting for safety (e.g., in stairwells). Concentrate light in
reading and working areas, and for safety.
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ENERGY CONSERVATION TIPS FOR APPLIANCES AND LIGHTING
This should save about 4 percent in electricity costs in the average home.
If everyone took these conservation steps, the nation's consumption of energy would
drop by about 50 million kilowatt hours of electricity per day (enough to light about
16 million homes).
· Turn off all lights when not needed. (One 100-watt bulb burning for 10 hours uses
11,600 BTU's or the equivalent of a pound of coal and one-half pint of oil).
· Use fluorescent I ights in areas such as the desk, the kitchen and bath. They give more
lumens per watt. One 40-watt fluorescent tube, for example, provides more light than
three 60-watt incandescent bulbs. (A 40-watt fluorescent lamp gives off about 80 lumens
per watt; a 60-watt incendescent gives off only 14.7 lumens per watt. The lower-watt,
but higher-lumen fluorescent would save about 140 watts of electricity over a period of
7 hours).
· Where higher illumination is desirable in areas lighted by incandescent bulbs, use one
large bulb instead of several small ones, The larger bulb is more efficient.
· Use long-life incandescent lamps only in hard-to-reach places, They are less efficient
than ordinary bulbs.
· Keep lamps and I ighting fixtures clean.o Dirt absorbs light.
· Reduce or eliminate ornamental lights except on special holidays or festive occasions.
· Use outdoor lights only when essential.
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APPENDIX IV: LOCAL ENERGY CONSERVATION IMPLEMENTATION MEASURES
.
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The most important nationwide standard for energy conservation in new building design was
published in 1975 by the American Society of Heating, Refrigeration and Air Conditioning
Engineers (ASHRAE), and is referred to as ASHRAE 90-75 or simply ASHRAE 90. This
document is a major revision of an earlier attempt by the National Bureau of Standards to set
standards for energy conservation, which drew widespread criticism from those who main-
tained it would greatly increase building costs. The ASH RAE document is more conservative,
and is the benchmark against which state mandatory thermal energy standards under EPCA
will be measured.
Under ASHRAE 90, the foHowing design requirements are quantified:
· maximum rates of heat flow through walls, floors, and ceilings (depending on climate);
· maximum air leakage rates through walls, doors, windows, and ducts-
· minimum efficiencies for HV AC equipment;
· mandatory cooling with outdoor air for ventilating systems exceeding 5,000 cfm or
135,000 BTU/hr; and
· minimum electric and lamp efficiencies.
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In addition, ASRAE 90 encourages the use of innovative energy sources such as solar and
wind. Designers using these sources need not conform with otherwise applicable standards so
long as the net result is a reduction in the use of conventional fuels. In other words, the build-
ing need not be as efficient in its total energy use so long as the marginal increase, at least, is
suppl ied "free,"
ASHRAE 90 can be adopted by reference or rewritten as necessary to conform to special
conditions.
A study prepared for FEA, An Impact Assessment of ASHRAE Standards 90-75, applied the
standards to typical building design problems and worked out the consequent costs and bene-
fits. Residences, offices, retail stores and school buildings were examined. ASHRAE 90 gen-
erally increased the costs of the exterior wall, floors, roof and domestic hot water system.
Glass costs for different building types were either higher or lower depending on cost trade-
offs between decreased window area and increased costs for insulated glass. Significant savings
were realized, however, in unit costs for mechanical plants (heating, ventilating and cooling
equipment). and to a lesser extent in lighting systems, savings which more than outweighed
the increased costs of the building shell.
These changes in construction costs are, however, offset by increased design costs. When these
are taken into account, net changes in costs are as follows on the next page,
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Net Change in Building Design and Construction Costs Under ASHRAE 90-75
(dollars per square foot)
Single-family resident
Multi-family residence
Office building
Retail store
School
+0.22
- 0.32
- 0.47
- 0.09
- 0.29
All these figures are national averages, but they do indicate that changes in building costs
under ASHRAE will not be significant, with the possible exception of single-family hou~ing.
These may be cO!1trasted to estimates for energy savings attributable to the revised buildings
in four regions of the country, as shown in the table below, Improvements in performance
are significant in all cases, though least significant in the single family housing market, where
actual increases in building costs may be attributable to implementation of the new standards,
Even in this case, the energy savings amortize the increased costs of design and construction
within 1,6 to 4.6 years, depending on region, on a straight payback basis.
ANNUAL SAVINGS IN ENERGY COSTS UNDER ASHRAE 90
(1975 Estimates)
(Dollars per sq. ft., and Percent Reduction in Annual Costs)
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Northeast North Central South West
Single-family residence 0.136 0.048 0.049 0.061
(15%) (13%) (10%) ( 9%)
Low- rise apartment 0.626 0.178 0.228 0.189
(43%) (39%) (48%) (45%)
Office building 0.718 0.349 0.291 0.424
(47%) (44%) (39%) (38%)
Retail store 1.048 0.673 0.576 0.4 14
(35%) (39%) (34%) (20%)
School 0,229 0.143 0.138 0.116
(36%) (34%) (34%) (33%)
SOURCE: Arthur D, Little, Inc., estimates
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Energy Conservation Building Design Suggestions:
· Establish maximum energy consumption values in BTUs per square foot of floor space,
based on BUls found for existing buildings (see Section 1.1).
· Bill organizational units for the electricity, gas, space heat, hot water and air condition-
ing they use. This will require separate utility meterings,
· Design buildings for multiple uses. For example, one structure could serve as a school
during the day, a synagogue on Saturday, and a church on Sunday if the various parties
could work together. While this is extreme, multiple uses should be encouraged.
· Orient buildings to minimize solar heat load in the summer and exposure to cold winds
in the winter. Use existing buildings and trees as shields,
· In the North, minimize the number of windows installed in the north wall where no
solar heating gain can be achieved in winter. In the South, put the fewest number of
windows in the south and west walls to reduce the summer solar heat load,
· Design solar shades, side fins, balconies, overhangs, vertical louvers, or awnings over win-
dows facing south or west to providesummertimeshading, whileallowingwintersunlight.
· Design buildings with a vestibule or second set of doors at lobby entrances to reduce loss
of heated or cooled air.
· Choose insulating, heat-absorbing, or heat-reflecting glass where appropriate (this can
reduce solar gains 90%). Consider both the advantages of absorbing heat in winter and
the costs in summer.
· Build partially below grade and employ earth berms to reduce solar lodes and transmis-
sion losses.
· Install controls to start up the heating plant automatically each morning and shut it
down at night, with timers adjusted automatically in response to outside air temperature.
· Design buildings to make maximum use of natural light year-round, consistent with
efforts to reduce heat flow through windows.
· Choose fluorescent rather than incandescent lamps. Use fluorescent fixtures with long
bulbs since these are more efficient than those with short bulbs,
· Avoid the use of energy-inefficient "long-life" incandescent lamps. Go by the "lumens
per watt" rating.
· Design fixtures for one large bulb rather than several smaller ones.
· Use light colors for walls, rugs, draperies, and furniture to reduce the amount of artificial
lighting required.
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· Do not install electric resistance heating or separate heating furnaces or boilers in new
buildings if district heating systems with sufficient capacity are nearby.
· Design heating and cooling systems to maintain desired conditions for all but the five
percent of the time during which the weather exceeds design conditions, (2.5 percent
has been the common design limit. This has resulted in designing systems of excessive
size and lower efficiency).
· Avoid terminal reheat systems unless waste heat is used in the reheat loop. While they
provide good hunidity control in air conditioned buildings, they consume extra fossil
fuels during the cooling cycle.
· Exhaust the heat and moisture released in cafeteria kitchens and laundries to garages in
winter or directly to the outside. This is the best accomplished by using double-duct sys-
tems that uses outside air to remove moisture rather than inside conditioned air.
· Select hot water heaters and other equipment with high efficiency ratings and insulation
having high thermal resistance (R value).
· Orient any inclined roof surfaces to the south so that solar collectors may be added to
the building in the future. (If possible, plan adjoining buildings not to shade the roof if
solar collectors might be installed).
· Design new buildings with operable windows or some other means to take advantage of
natural ventilation to maintain comfortable conditions in moderate weather.
· Require central heating and cooling in designs for new buildings (since central systems
are more efficient than individual units).
· Provide a separate temperature control zone for each office if the new building must
use electrical resistance heating.
· Install heating-ventilating-air-conditioning (HVAC) systems that utilize heat recovery
technology. These include heat wheels, electro-hydronic (closed-loop, water-circuit)
systems, and heat pumps.
· Install solar hot water heaters to lighten the load on electric orgasfired hot water heaters.
· Cut down the lighting in garages and parking lots to an extent compatible with security.
· Install demand limiters to reduce the peak electric load, If this were done by all large
power users, the electricity utility could reduce the use of inefficient peaking units.
· Employ heating and cooling energy storage systems to reduce peak demands and im-
prove overall efficiency.
· Install power factor correction equipment. This is particularly important when electric
motors consume a significant portion of the electric energy in a building,
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The City of Davis, California, operating under an Innovative Project Grant from the Depart-
ment of Housing and Urban Development, has prepared a number of ordinances, and resolu-
tions to achieve local energy conservation.
Davis has implemented a set of performance criteria to be put into effect along with the
Uniform Building Code being developed by the State of California. A two-path approach to
reducing energy consumption in buildings, offers alternatives to builders: either they can
follow a general set of rules designed to achieve good thermal performance, or they can use
their own design and demonstrate a performance in winter of 192 BTU's used per square foot
of floor area per day, and a total daily heat gain during summer of 48 BTU's per square foot
of floor area per day.
The city has also gone far in all other significant areas of regulating community energy con-
servation. Ordinances have been developed covering land use planning, transportation, land-
scaping, administrative programs, and a variety of home uses of energy, including one to
protect the solar rights of future residential developments in order to encourage the use of
solar energy for hot water and space heating. The logic behind some of the more interesting
ordinances is listed below:
Fence Setback: Previous fence setback regulations in the city did not allow fences to be
placed on front lot lines, i.e., right next to sidewalks. The new ordinance allows fences to be
built anywhere up to seven feet high except on corner lots where they would interfere with
traffic safety.
New Street Widths: Davis decided that the current required street widths were excessive;
they created excessive amounts of pavements and increased the effects of summer heat on
nearby houses. Narrower streets were found to lead to cooler residential areas: the surface
temperature of asphalt can reach 1400 on a 900 summer day, and can raise the ambient tem-
perature by 100. By reducing street widths and providing additional shade trees, this heating
effect may be counteracted.
Rough calculations were performed to estimate the value to the community of narrower
streets. Counting in air-conditioning impacts, the difference in construction costs, the value
of land lost to streets, losses in potential bicycle use, and operations/maintenance costs, a
total of $192 per house was saved going from a 34-foot to a 16-foot street width.
Proposals to retrofit excessively wide existing streets were also presented: single 80-foot
widths were to be converted to two 24-foot double lanes separated by a 16-foot planted
median, with additional 8-foot planting on each side.
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Clotheslines: In many areas, restrictive covenants or ordinances exist prohibiting the use of
clothesline to dry wash. Since clothes dryers are large users of gas and electricity, outdoor
"solar" drying of clothes could reduce home energy use to a significant extent (up to
840 KWH/house yearly).
Work at Home: Since the trip to work accounts for such large energy expenditures in trans-
portation, Davis has proposed a resolution supporting the location of work in residential
areas, either through the location of small businesses in residential areas, or through allowing
people to work at home.
Swimming Pools: The use of electricity or natural gas to heat swimming pools is considered by
the city to be a blatant waste of resources. Referencing the State Public Utility Commission's
decision to ban the use of natural gas for pool heating, the City of Davis has devised a law to
prohibit the construction of heated swimming pools in the future, unless the sole source of
heat is solar energy.
The Broward County Energy Conservation Committee is an unofficial voluntary group which
was organized in November, 1973 as a direct result of the Arab Oil Embargo. Committee
membership includes leaders in government, business, and the media as well as concerned
citizens. I nitially, the activities of the committee focused on fuel allocation and other steps
to meet the crisis. Subcommittees were established to explore Electricity Consumption,
Emergency Planning, Car Pooling, Public Awareness and other matters,
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In its "Position Statement" of December 20, 1973, the Energy Conservation Committee set
two primary objectives:
· To effect reduction in energy consumption with minimum disruptions in essential ser-
vices and with minimum negative economic impact.
· To gather all the facts to justify Broward's fair share of any allocations and then to see
that a concentrated effort is made on the State and national levels to obtain this fair share,
The statement noted that the emphasis of a conservation program should be on achieving re-
duction in governmental operations and on voluntary conservation. A goal of 20 percent
energy savings was set for the county.
The county has been able to alter the trend toward increasing energy use. Although electricity
sales and the number of customers have increased, annual usage per customer has decreased
by 5.8 percent, and gasoline sales have also declined. The county's decrease during the period
is 58 percent of the savings recorded by the State of Florida, while the county has only 10
percent of the state's population,
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Because the committee represented all aspects of the county, a variety of programs were
possible. Results of energy conservation programs were reported to the Committee.
Transportation Programs have included efforts to encourage car-pools, to increase ridership
on the public transit system, and to encourage reductions in automobile gasol ine use. Although
the carpooling program was discontinued due to a lack of funds, ridership on the Broward
County Transit System increased 70 percent in two years from 360,000 per month in 1973
to 510,000 monthly in January, 1975.
"Les Fuel" is a spokesman for the promotional campaign to encourage voluntary energy
savings. Copyrighted by the Greater Fort Lauderdale Chamber of Commerce, "Les Fuel" is
a 3/4 filled drop of petroleum which is used on all promotional literature, including signs and
bill boards.
Broward County's Internal Conservation Program
The county government has established a program to reduce energy use in its own operations
by reducing electrical usage in buildings and by reducing gasoline usage in county vehicles.
Guidelines for conservation were detailed for the following areas:
Heating, Ventilating and Operational Guidelines
Air Conditioning Systems Administrative
Electrical Motor Vehicle Operation
Maintenance-Inspection-Repair Minor Building Construction
The School Board of Broward County initiated its own conservation program. A unique fea-
ture of the school system is that principals are responsible for facets of their school's operation
including budget preparation and accountability for expenditures. All building supervisors
and principals have initiated conservation programs to reduce the effect of expenditures for
utilities on the educational programs of their schools. To assist each school in its conservation
program, the school's energy monitor has prepared a check list to insure that only essential
electrical energy is being consumed.
The City of San Diego, California, has developed an energy conservation program which in-
cludes all aspects of the City government. Since the major emphasis is to reduce the costs of
energy to the city, the program has focused on internal city operations rather than on publ ic
education or regulations. On April 23, 1976, the City Council adopted a policy on energy
conservation (Council Policy 900-2) which will guide future actions regarding energy: the
policy includes specific policy statements about city operations, regulations, indirect influence
of the city and public education. The Council Policy is supported by a detailed implementa-
tion schedule for all city departments and is the result of the City's active interest in conser-
vation since the fall of 1973.
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In November 1973, the City Manager formed a three-person committee representing three
city departments to identify and implement measures to reduce energy consumption in city
building, vehicles and other facilities under the Manager's control. The following steps were
taken.
· All city vehicles were limited to 50 mph maximum speed (except emergencies).
· Lighting levels were reduced.
· Ornamental lighting was eliminated.
· City power requirements were reviewed to identify opportunities for reductions.
A comparison of electric consumption in January 1973 with January 1974 showed large
reductions in consumption.
In addition to the committee for internal energy conservation, on January 22, 1974, the
Mayor formed a five-person committee of individuals representing the fields of education,
research, transit, energy supply and energy development. Three panels-- Users, Suppl iers and
Impact--were formed to supply the Mayor with information to assist formulation of local
policy.
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Other steps taken during 1974 included development of a carpool incentive plan for city em-
ployees including special rates at the city's parking facilities. According to the instructions of
a City Council resolution, the City Manager established an Energy Policy Task Force in
March 1974 with representatives of all city departments to develop an Energy Pol icy for the
City and a coordinated implementation strategy. In July 1975, the City Council also adopted
an Energy Conservation Element in the G.eneral Plan.
Through the many measures which have been implemented by all City departments, the City's
fuel and electricity use have decreased in the last few years. However, with price increases,
the total costs for energy have increased slightly. Currently, San Diego's conservation activi-
ties include:
· A contract with a consultant to review the possible use of solar energy in new construc-
tion and in retrofitting existing public buildings.
· A solar-heated municipal swimming pool has been completed; there are plans to use
solar heating for other pools,
· The city has established lighting and heating standards for its own buildings.
· A driver education program is being conducted for some sanitation workers so they may
act as a control group in examining the effects of training on vehicle energy consumption.
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· Automated fuel dispensing equipment has been installed to help budget fuel purchased
for city vehicles and to help identify excessive fuel use by individuals vehicles and drivers.
· Street lighting requirements are being reconsidered.
· The city planning department is considering greater concentration of development for
energy conservation.
· Each department has implemented energy conservation measures and is exploring
future possibilities.
The City of Jacksonville, Florida, on January 17, 1976, announced the formation of the
Energy Utilization Office to assist households and small businesses in energy conservation.
An intensive publicity campaign, using newspapers, radio, television, signs and brochures,
and local organizations, informed citizens of both the need to conserve energy and the assis-
tance available through the Mayor's Energy Office. Employees of the Energy Office are
available on request to conduct energy surveys and to identify ways the household can reduce
its energy consumption. The program. has been expanded to include surveys in industry,
schools, commercial buildings and public housing developments.
Funding for the Mayor's Energy Office has come from the U. S. Department of Labor under
Title VI of the Comprehensive Employment and Training Act (CET A). All fifteen of the staff
are participants in the Title VI Public Service Employment Program, Staff includes a project
manager, an administrative assistant, a secretary, two information specialists, five home econ-
omists and five energy analysts. The home economists and energy analysts comprise five
teams which conduct energy efficiency surveys, the unique aspect of Jacksonville's program.
To take advantage of the free services of the Energy Office, an interested citizen calls the
"Energy Hotline" telephone number and is assisted by one of the two information specialists.
The information specialist:
· answers the caller's questions;
· mails information to the caller; and
· arranges an appointment for a free home survey by one of the energy teams.
The free energy survey is conducted by a team consisting of an Energy Analyst and a Home
Economist and takes less than an hour. It begins with an informal discussion and makes use
of a prepared checklist to determine the citizen's energy using equipment and habits. The
home economist provides information about better use of kitchen/laundry equipment and
household appliances. The Energy Analyst examines the building itself, with special attention .:s
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makes suggestions for energy savings. The team also finds out about transportation use and
notes the advantages of proper automobile maintenance and using a carpool or public trans-
portation. To encourage citizens to keep track of their energy consumption, instruction is
provided on how to read an electric meter and a form is provided for recording daily electric
consumption for a two-month period. Energy surveys are also performed for businesses and
are adjusted to meet their particular needs.
Sixty days after the energy survey, the energy team telephones the resident or business to
determine whether the services have been useful. The caller asks what particular suggestions
were adopted, and may offer additional suggestions.
I n addition to the energy surveys, the Mayor's Energy Office has prepared all of the informa-
tional and promotional materials used in its program and has undertaken a variety of outreach
efforts, Presentations were made before nearly all civic, business and employee groups in the
city. Publ ic transportation and carpool ing programs have also conducted energy workshops for
groups of apartment dwellers and provided brochures which were taken home by every school
child. Materials on water conservation are also being preparred and distributed. The Mayor's
Office is currently preparing a report evaluating the results of the project since it was initiated
a year and a half ago.
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The high visibility of the program is a major factor in the success of Jacksonville's energy pro-
ject. The strong support of the Mayor and the availabi I ity of CET A funds for staff were essen-
tial, as were the many resources of the community which were incorporated into the program.
The fifteen-person staff allowed the office to respond within a short time to citizens requests
for assistance. Another factor worth noting is that the initial focus of the program was house-
holds and small businesses; only after demonstrating success in these areas did the program
expand to include larger apartment buildings and commercial and industrial outreach efforts.
By expanding the program as staff capability developed, the program was able to live up to
its expectations and remain a useful resource.
The Greater Chicago Committee to Use Energy Wisely is a voluntary effort to encourage
energy conservation in the Chicago, Illinois, metropolitan area, H. Wallace Poston, Commis-
sioner of the Department of Environmental Control (DEC) of the City of Chicago, was instru-
mental in the formation of the committee and serves as its chairman. The committee's mem-
bership includes representatives of the various departments of the City of Chicago, the Federal
Energy Administration's Region V Office, Illinois Energy Office, local colleges, electric and
gas util ities, trade and professional organizations such as the Chicago Association of Commerce
and Industry (CACll. and private businesses and industries. The committee's activities are
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carried out by a number of subcommittees each keyed to particular energy consuming sectors
including transportation, industry, commerce, and the institutional and residential sectors,
In October of 1974, when an energy conservation program was first proposed by Commissioner
Poston, it was intended only for the City of Chicago. But a metropolitan-wide program was
selected after the participation of the Publ ic Service Communications Council, whose
executive board suggested not only a metropolitan-wide program, but a program intended to
motivate citizens to do something for themselves with specific suggestions about what to do
,and how to get assistance and the benefits of conservation.
Coordinating functions of the Committee are carried out by a steering committee, as well as
by the chairman and a member of his staff at the Chicago DEC. Each committee, however,
sets its own goals and develops its own course of action to meet these goals. The regional
office of the FEA provides technical support and participates in each of these committees.
Most of the activity has been through the Industrial Section Subcommittee. Suggested areas
for outreach have included:
· Development of the "Use Energy Wisely" Resolution.
· Development and distribution of a bibliography of energy management documents and
literature.
· Presentation of Seminars: (At the City Colleges and Community Colleges in the six-
County area, and to specific industries.)
· Developing of Success Case Studies: (Following up for more details, summarizing
the information obtained from questionnaires, and developing energy management
success stories. These in turn will be published and distributed to industries to use as
guides for improving their energy management programs.)
· Publicity through Radio, Television and News Media: (This would involve the use of
personal interviews and discussion groups to be taped for radio and TV, education and
publicity releases. and the use at a speakers bureau to provide speakers knowledgeable
on various energy related topics.)
The City of Columbus, Ohio, has developed a transportation program for its own employees
which consists of a transportation service desk in the lobby of City Hall and a packet of in-
formation describing transportation alternatives and the advantage of high occupancy modes
such as carpools, public transportation and charter (or subscription) buses. The City offers
assistance and incentives to employees in setting up carpools and charter bus arrangements.
Assistance is available from the coordinator at the City's transportation service desk, who will
provide names of other carpoolers on an informal basis, Incentives include guaranteed parking
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spaces for carpoolers and flexible working hours for employees who wish to alter their com-
muting patterns.
Operating in the five county Los Angeles, California, region, Commuter Computer is a pro-
gram which offers free carpool matching services to employers and indivisuals. Incorporated
January 10, 1974, it is a publ icly supported non-profit organization devoted to the promotion
of carpooling, vanpooling and buspooling. The first carpool applications were processed in
April 1974: eighteen months later, Commuter Computer had built up a data base of over
60,000 names, to become the leading carpool matching service in the nation.
Individuals wishing to participate in one of Commuter Computer's programs can either call
the organIzation directly for an application form or else request one from their employers--
many of which are then fed into a computer which produces a match list of people in the
individual's neighborhood whose place of employment as well as arrival and departure times
are similar. It is then left to the applicant to make the necessary contacts with the names on
the list he is provided.
There is no charge for Commuter Computer's services. The organization is supported through
a variety of federal, state and local government funding sources as well as by private contribu-
tions. Day-to-day administrative work is carried on by a few paid employees with assistance
from citizens from various businesses throughout Southern California.
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The 3M Company furnishes a standard 12-passenter van to an employee willing to take at
least 8 other employees to and from work. The employee driver is compensated by free trans-
portation, reasonable personal use of the van at a low mileage rate, and the fares of any
passenger over the 8-passenger minimum. The company initially supplies the vehicle, and all
costs are met by participant fares that approximate $.07 per mile. The monthly fares cover
the amortization costs, The company assists the participants in routing and with other admin-
istrative requirements.
The program has expended from an original six vans in 1973 to 77 as of June 1976, with over
800 employees participating in the program. The program has reduced the traffic flow to and
from 3M facilities and has also eliminated the need to construct parking facilities, thereby
saving the company a projected $2.5 million. Increased insurance costs because of van acci-
dents have not occurred. The program has potential application for many other companies,
particularly those not served by a public transportation network.
Suffolk County, New York, commissioned a study of six county buildings to identify low-
cost energy saving measures with short payback periods. The study found that fuel consumption
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in the six buildings could be reduced by 47 percent through such measures as: rehabilitating
existing time clocks and controls; installing new controls to provide automatic shut-down of
heating, ventilating and air-conditioning (HV AC) systems; reducing the hours and level of opera-
tion of HV AC systems; and lowering lighting levels. The cost of implementation was $47,800,
with an estimated savings of $57,025 a year, amounting to a payback time of 10 months.
Seattle, Washington, has instituted a number of energy conservation programs, including one
called "Kill-A-Watt." As part of this program, the city has succeeded in reucing winter-time
energy consumption in its downtown office buildings by 42 percent. The savings were made
by reducing unnecessary lighting, turning off lights completely when not in use, lowering
thermostats, reducing hot water temperatures and turning off space conditioning completely
during non-working hours and on weekends,
Mecklenberg County, North Carolina, has initiated a vigorous energy conservation program in
county buildings. After conducting an energy audit, the Engineering Department suggested a
number of energy conservation measures, computing their cost, their energy saving potential
and the estimated payback time. The Engineering Department identified 37 no-cost changes
and 36 measures involving a combined total cost of about $50,806. The estimated cost saving
during the first year was $50,730.
In Baltimore County, Maryland, the Timonium Elementary School is participating in a solar
demonstration program sponsored by the National Science Foundation, Solar panels have
been added to the roof of the one-story building, previously heated entirely by a conventional
oil-fired boiler. The major solar system components added were 180 solar collector panels, a
15,000 gallon hot water storage tank, a hot water room heating system, and automatic controls.
The panels are blackened aluminum base covered with two layers of high-strength glass: the
hand built panels cost $18 per square foot, but if manufactured commercially could cost
about $4 per square foot, as opposed to currently available commercial models at $6 to $7.20
per square foot (PPG figures). The system is about 40 percent efficient overall, and contributes
the following percentage of total heating requirements during the winter:
N ovem ber ........ 1 05%
December ..,..... 50%
January . . . . . . . . 42%
February ........ 94%
March , . . , . . " 106%
The whole system was designed, fabricated and installed in less than two months.
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Local governments in several states are conserving energy by providing insulation and furnace
repair for the reisdents in a number of projects. The pilot program, Project Fuel, in Maine,
provides free insulation materials and installation to low-income families and the elderly, with
volunteer labor doing the installation. Over the two-year period, 5,000 homes were insulated,
leading to an average annual saving of $135 per household (which also reduced the state wel-
fare budget).
In Illinois, the state is providing assistance to 35 communities who are using Community De-
velopment Block Grants funds for heating system improvements and insulation. Training in
energy conservation for affected families is also included. In other areas, training programs
are being conducted for homeowners and community service workers on methods of install-
ing insulation and operating homes efficiently. Programs like these can save on energy used
by the poor or the elderly, at relatively low cost to the local government.
RELATIVE ELECTRICITY CONSUMPTION OF MASTER-METERED AND
INDIVIDUALL Y METERED MUL TI-FAMIL Y DWELLING UNITS
Master Individually e
Units Metered Metered Conversion
.fl!L Converted (Annual) (Annual) Savinqs
Los Angeles 20 3,456 KWH 1,284 KWH 63%
20 1,968 984 50
9 2,868 2,664 7
San Francisco 1,683 3,105 2,298 26
Washington, D.C, 76 4,176 2,736 34
Pittsburgh 21 4,438 2,658 40
20 4,440 2,773 38
Dade County, Florida, is using less gasoline today than it did in 1972, even though its fleet
has steadily increased. In a two-year period, the saving was nearly $1,5 million - or a 35 per-
cent reduction in the anticipated gasoline consumption, The saving has resulted from a shift
to smaller vehicles, diesel vehicles and a gasoline rationing plan. The rationing program moni-
tors gasoline consumption by category of vehicle and established contingency "phases" or
crisis situations,
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Philadelphia's computerized "credit card" program ensures accuracy for the city's vehicle
fleet management program. By having precise figures on the amount of gasoline each vehicle
uses, as well as the mileage of each, the city can compare the efficiency of different brands,
discover trouble spots in the program, and eliminate pilfering. The city estimates that the
computerized program saves them ten percent just by eliminating pilferage. The program also
enables Philadelphia to institute a contigency plan for emergencies on short notice.
Virginia Beach, Virginia, performs a maintenance check and tune-up for city vehicles every
2,000 miles, and has estimated a 10 percent saving in fuel consumption. The city also instituted
an order which mandated that cruising police vehicles remain stopped at an inconspicuous
road location for at least ten minutes of every hour. This resulted in a fuel saving of 20 to 25
percent over previous usage.
The City of Phoenix estimated that it could save up to 200,000 gallons of gasoline every year
by initiating standard conservation programs. These included: increased conversion of the
fleet to smaller cars, more careful planning of work schedules and routing, reduced use of
air-conditioners, restricted motor pool car use, etc. It also developed a comprehensive plan to
save up to 800,000 gallons of gasoline every year, based on strict allocations of gasoline by
department.
Fairfax County, Virginia switched from full-size to mid-size police vehicles in 1974, and esti-
mated the saving to be: $184,428 acquisitions costs (one time); $80,141 operating costs
(recurring); and 167,787 gallons of gasoline (annually). It is also switching to diesel vehicles
for solid waste collection, and computes a saving of $7,743 in seven months of 1975 as com-
pared with 1974.
The City of Cincinnati's "City Passenger Car Size" policy established guidelines to reduce the
amount of gasoline consumed by the city. The plan defined classes of vehicles and assigned
the smallest possible ear for each use. I t also provided a formal process for requesting changes
in vehicle assignments.
When national studies indicated that most vehicles on the road operated at 10 to 15 percent
below optimum efficienty, Nassau County, N.Y., initiated a program of regular maintenance.
According to their estimates, regular and frequent diagnostic checks will turn that energy
waste into a saving of at least $150,000 per year,
Lake Charles, Louisiana, worked with the Lake Charles-McNeese Urban Observatory, Inc. to
identify opportunities for reducing the city government's energy consumption.
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Among the findings of the resulting study were:
· the city could achieve a 17.5 percent reduction in fuel used for cooling by reducing air-
conditioning by 1 % hours daily in a 8-hour day.
· the city could save 20 percent of the energy being used to heat water in oce municipal
building by heating incoming 600 F. instead of 1500 F.
· the city could effect a five percent electricity saving for each degree the thermostat is
set back in winter and a three percent saving for each degree set up in summer.
Virginia Beach, Virginia, has taken a number of measures to reduce fuel consumption in city
buildings, including:
· reducing lighting levels.
· adding some automated energy management controls.
· instituting a preventive maintenance program to maximize efficiency.
· installing energy efficient glass in new city buildings.
Ocean County, New Jersey, examined the level of lighting both inside and outside the
Courthouse Annex to demonstrate the opportunities for conserving energy while still pro-
viding adequate illumination. The county found that it could save $720 at 1974 prices by
replacing the 40-watt fluorescent bulbs inside the Annex with 35-watt bulbs (a savings of
60 cents/year/bulb). Over the life of the bulbs (20,000 hours) this savings would amount to
$4,800 at current prices.
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Virginia Beach, Virginia, has lowered lighting levels in city buildings. It has also replaced
incandescent lights with fluorescent lighting where possible, and is considering the feasibility
of replacing the remaining incandescent bulbs with mercury vapor lighting. Although mercury
lighting is much more expensive initially, it is about five times more efficient than incandes-
cent. (Fluorescent lighting is three to four times more efficient than incandescent).
Mecklenberg County, North Carolina, has lowered lighting levels to suit the task underway,
saving an estimated $1,622 in one building.
The county has also determined the electrical energy use for lighting in one county building
could be reduced by 14 percent by converting from standard F40W fluorescent lamps to
"Miser" or "Savor" lamps, The lamps would cost an estimated $1,034 and save approximately
$5,910 over the I ife of the lamps.
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Suffolk County, New York, has reduced lighting levels, effecting an estimated savings of
$6,834 in one building.
The county has also found that it can save an estimated $2,366 annually (at 1975 costs) by
directing the custodial staff to clean buildings section by section, lighting only the area in
which they are immediately working and turning out lights as they move on the next area.
Nassau County, New York, established a county-wide building energy audit. By correcting
conditions uncovered by the audit (primarily unnecessary lighting) the county reduced
energy use by 23 percent, saving $1,5 million.
San Diego County, California, conducted a study to assess the feasibility of installing auto-
mated energy management systems in major county facilities. Through manual efforts, the
county had already effected a 30-35 percent reduction in energy use. With automated con-
trols, energy savings of up to 45 percent were projected. The payback period on installing
automated management systems, based on 1973 energy costs, was estimated to be 4.3 years.
However, as the feasibility study pointed out, escalating energy costs will markedly shorten
the payback period.
e Los Angeles County, California, estimates that the computerized system installed in itscounty
courthouse has by itself reduced energy consumption 25 percent. By combining the com-
puters with time clocks, the county has reduced energy use by more than 50 percent.
The City of Burbank, California, was able to curtail residential energy use by 18 percent and
commercial-industrial use by 20 percent after passing an emergency conservation ordinance
in 1973. The ordinance prohibited decorative lighting for advertising, and directed that no
citizens use electrical energy unnecessarily.
The Metropolitan Government of Nashville-Davidson County, Tennessee, reported a savings
of 18.000,000 kilowatt hours for the 12-month period ending October 15, 1976 as compared
with the previous year. This saving was the result of standard conservation efforts which took
no money to implement. The government saved about $400,000 - or enough to provide the
electrical needs of over 1,000 average Nashville homes for a full year.
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Fairfax County, Virginia, readjusted the holiday schedules for schools and government em-
ployees. By placing holidays on either Mondays or Fridays, and by combining two holidays
into a four-day weekend, the savings in fuel costs were considerable, because the heating and
cooling systems were shut down, Using new holidays schedules and simple conservation
measures, the county saved: S
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LOCAL GOVERNMENT EXAMPLES
$ 69,800 =
$ 24,700 =
$949,300 =
26,841 gallons of #2 oil in 29 test facilities =
7,693 gallons of #4 oil in 4 test facilities =
12,652 gallons of #5 oil in 146 test facilities =
35% Saving
29% Saving
14% Saving
The City of Seattle, after studying various conservation measures, discovered that it could
save up to 42 percent of the energy costs in downtown office buildings during the winter, by
turning down thermostats and hot water temperatures, turning off unnecessary lights, and
turning off the heating system on weekends. These were measures that could be instituted
overnight, and required only a change in administrative policy.
Montgomery County, Maryland, established two citizens' advisory bommittees. The first
committee was founded in 1975 to make recommendations for revising the building code.
Since this was a specialized task, its members included builders, architects, engineers and
planners. The second committee was established in 1976 to develop a county-wide conserva-
tion plan. Because his conservation plan would affect many segments of the community, the
committee members were selected from civic organizations, consulting firms, industry, home
building firms, utility companies and consumer groups.
In Suffolk County, New York, the utility company's projection of energy consumption in
1995 was 34,000 gigawatt-hours. A study funded by the county indicated that, with conser-
vation, the 1995 consumption figure could be as low as 20,000 gigawatt-hours. The conser-
vation measures included off-the-shelf equipment and were restricted to improvements that
could be amortized within ten years of installation.
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Nassau County, New York, relies on two types of Energy Coordinators to promote conserva-
tion measures. The first, a "plant and equipment coordinator," checks the energy efficiency
of technical and maintenance equipment. The "administrative coordinator" in each department
performs the public relations, administrative and housekeeping functions of conservation.
The County also holds energy conservation workshops for county employees and citizens.
Topics include: commercial oil burners, air-conditioning equipment, energy management for
buildings and current energy legislation.
The City of Baltimore has publicized its conservation program with the catchy slogan "Waste
Watchers." A "Brigade" of approximately 1 ,000 "Waste Watchers" promote conservation
throughout city agencies. The City also rewards energy-saving suggestions, and has a formal
process for conservation awards.
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LOCAL GOVERNMENT EXAMPLES
Milwaukee County, Wisconsin, with the assistance of industry and the state, organized a
successful carpooling program. It relied heavily on large companies to inform the public and
designate "Carpooling Coordinators," but also used radio and television spots to advertise the
program. Carpooling incentives were recommended, the duties of employers and Coordinators
were explained, and workshops were held to promote carpool ing for all citizens. American
Motors agreed to issue rebates of between $25 and $200 for authorized carpoolers who
bought new American Motor cars.
, Ocean County, New Jersey's newsletter, the "Energizer," is so popular that they have received
requests from across the country and Canada. It is distributed to County employees and
citizens, and highlights techniques to save energy at home and at work. They have established
an "Energy Library," a carpooling program for employees, and an active Advisory Committee.
Mecklenburg County, North Carolina, established an extensive in-house and out-reach con-
servation program in February of 1975. Their employee program included an Employee
Energy Conservation Committee and a two-week Employee Energy Conservation Contest.
One hundred employees contributed energy-saving suggestions, and a first prize of $100
was awar~ed. The Employee Committee maintains a continuous in-house energy awareness
program.
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BIBLIOGRAPHY - FOOTNOTES
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BIBLIOGRAPHY - FOOTNOTES
SECTION 1- THE WORLD'S ENERGY FUTURE
(1) In 1973 the auto industry employed an average of 1,891,000 workers. The 1974 average
fell to 1,786,000 and reached a low of 1,556,000 in February 1975. Total production
of vehicles was 2004 percent lower in 1974 than in 1973, indicating a similar reduction
in plant-capacity utilization. These data are from the August 1975 issue of the Survey
of Current Business, Department of Commerce, Washington, D.C.
(2) See Business Week Quarterly Profits Survey, 2nd Quarters 1974 and 1975. Also, the
Wall Street Journal, September 25, 1974, p. 8.
(3) "Oil: The Glut Worsens," K. Shea, in the Environment, September 1974, p. 4,
(4) Results of a public opinion poll taken by Cambridge Reports Inc., as reported by the
Associated Press on September 23, 1975.
(5) Wall Street Journal, May 1, 1978, p. 30.
(6) "Summary of Long-Range Outlook," p, 36-37, in the World Energy Outlook, Back-
ground Series publication of Exxon Corporation, 1977.
(7) "Energy Consumption per Unit of GNP," p. 3 of the National Energy Plan, U.S. Gov-
ernment Printing Office, 1977, from U.N. Statistical Yearbook 1973.
(8) "The Origins of the U.S. Energy Problem," p. 2 of the National Energy Plan, U.S.
Government Printing Office, 1977.
(9) "Oil," p. 16 of the National Energy Plan, also p. VIII, U.S. Government Printing
Office, 1977, U.S, annual rates calculated from daily consumption figures, National
Energy Plan, pp. 11-16.
(10) "Forbes 500," Forbes Magazine, May 15,1978, pp. 209-221; also "Fortune 500,"
Fortune Magazine, May 8, 1978, pp, 240-241 (all figures for fiscal year 1977).
( 11)
Derived from daily importation figures in "The Origins of the U.S. Energy Problem,"
p, 2 of the National Energy Plan, U.S. Government Printing Office, 1977,
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( 12)
(13) "The Origins of the U.S. Energy Problem," pp. 1,2 of the National Energy Plan,
U.S. Government Printing Office, 1977.
( 14)
(15) "How to Become a Foreign Oil Company," from the Exploration and Economics
ofthe Petroleum Industry, p. 273, Gulf Publishing Company, Texas, 1966.
(16) Energy Perspectives, p. 124, U. S. Department of the Interior, U. S. Government
Printing Office, 1975.
(17) Geophysics magazine, pp. 59, 105, January, 1957 and p. 410, February, 1973.
(18) "Outlook Gloomy for U.S. Oil and Gas Production", Associated Press, St. Peters-
burg Times, December 12, 1979.
(19) "Oil", p. 14 of the National Energy Plan, U.S. Government Printing Office, 1977.
(20) Energy Element of the Florida State Comprehensive Plan, p. 21, Florida Department
of Administration, Tallahassee, July, 1977.
(21)
(22)
(23) "The Continuing Crisis", p. 19, from the National Energy Plan, U. S. Government
Printing Office, 1977,
(24)
(25) "Implications for the United States," p. 19,21, from the National Energy Plan, U.S.
Government Printing Office, 1977.
(26) Robert L. Hirsch quoted in ENFO, p. 4, the Florida Conservation Foundation, Winter
Park, Florida, July, 1977.
(27) "The Origins of the U.S. Energy Problems," p. 2, from the National Energy Plan, U.S.
Government Printing Office, 1977.
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IQV' (28)
..J (29) "Oil," p, 11, from the National Energy Plan, U.S. Government Printing Office, 1977.
U
(30) "The Continuing Crisis," p. 10, from the National Energy Plan, U.S. Government
Printing Office, 1977.
(31 )
(32)
(.33)
(34)
(35)
(36)
e (37)
(38)
(39)
(40)
(41)
(42)
(43)
(44)
(45)
(46)
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"World Energy Demand," p. 9, from the World Energy Outlook, a Background Series
publication of Exxon Corporation, 1977,
"Overview," p. VIII, from the National Energy Plan, U.S, Government Printing Office,
1977.
"World Oil Production," pp. 38-54, by Andrew Flower, in Scientific American, March,
1978.
"Overview," p. VI II, the National Energy Plan, U.S. Government Printing Office, 1977.
"World Oil Production," pp. 38-54, by Andrew Flower, in Scientific American, March,
1978.
"Oil," pp. 128-129, in Energy: Global Prospects 1985-2000, Report of the Workshop
on Alternative Energy Strategies, McGraw-Hili, N.Y., 1977.
"The Real World," pp, 131-141, in Energy: Global Prospects 1985-2000, Report of the
Workshop on Alternative Energy Strategies, McGraw-Hili, N. Y., 1977. .
"A More Optimistic Future?," pp. 142-145, in Energy: Global Prospects 1985-2000,
Report of the Workshop on Alternative Energy Strategies, McGraw-Hili, New York, 1977.
"World Oil Supply," p. 26, in World Energy Outlook, a Background Series publication
of Exxon Corporation, 1977.
"A More Optimistic Future?," pp. 142-145, in Energy: Global Prospect 1985-2000,
Report of the Workshop on Alternative Energy Strategies, McGraw-Hili, New York, 1977.
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IQV' (47) "Summary of Long-Range Outlook," p. 34, in World Energy Outlook, a Background
..J Series publication of Exxon Corporation, 1977.
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(48) "Global Energy Futures," pp. 3-46, in Energy: Global Prospects 1985-2000, Report of
the Workshop in Alternative Energy Strategies, McGraw-Hili, New York, 1977,
(49)
(50) "Energy Supply Lead Times," pp. 32-33, in World Energy Outlook, a Background
Series publication of Exxon Corporation, 1977.
(51) "Natural Gas," p, 16, in the National Energy Plan, U.S. Government Printing Office,
1977, from p. 61 of the 1976 Energy Perspectives, U.S. Bureau of Mines, Department
of the Interior, Washington, D.C., 1977.
(52) "Making Better Uses of Existing Sources," p. 231, in Energy: The New Era, by
S. David Freeman, Walker and Company, N. Y., 1974.
(53) "Natural Gas," p. 18, in the National Energy Plan, U.S. Government Printing Office,
1977.
(54)
(55)
(56)
(57) "World Gas Supply," p. 20, in the World Energy Outlook, a Background Series publica-
tion of Exxon Corporation, 1977.
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(58)
(59)
(60) "World Gas Supply," p. 21, in the World Energy Outlook, a Background Series publica-
tion of Exxon Corporation, 1977.
(61 )
(62) "Oil: Possible Levels of Future Production," pp. IV-2 and IV-21, in the Final Task
Force Report, Project Independence, FEA, Washington, D.C., November, 1974.
(63) "Implications for the United States," p. 10, in the National Energy Plan, U.S. Govern-
ment Printing Office, 1977,
(64) Senior Vice-President of Exxon Corporation quoted on p. 20 of an article titled "U.S. Oil
I ndustry Fall ing Far Shy of Capital Needs," in the Oil and Gas Journalr August 18, 1975,
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IQV' (65) Gulf Oil Corporation official quoted on p. 29 of the article titled "U.S. Oil Industry
..J Falling Far Shy of Capital Needs," in the Oil and Gas Journal, August 18, 1975.
U
(66) "Trends in Light-Water Reactor Capital Costs in the United States," Cambridge Center
for Policy Alternatives at the Massachusetts I nstitute of Technology, December 18, 1974,
and "The Economics of Nuclear Power," p. 15, in Technology Review, February, 1975,
and "Projections of the Cost of Generating Electricity in Nuclear and Coal Fired Power
Plants," St. Louis Center for the Biology of Natural Systems, Washington University,
December, 1975.
(67) "World Electric Power Outlook," p. 12, 13, from the World Energy Outlook, a Back-
ground Series publication of Exxon Corporation, 1977.
(68) Described in an article in the St. Louis Globe-Democrat as reported by the Associated
Press, January 5, 1976, For an account of the efforts by California utilities to charge
their customers for options on future gas, see p, 9 of the Energy Weekly Report for
December 15, 1975.
(69) Capital Formation and Outlook for Employment, p. 3, Analysis by the Special Study
Group Established by the Secretary of Labor, Bureau of Labor Statistics, Washington,
D.C., July 22, 1975. See also, "Capital Needs in the Seventies," pp. 27-29, Brookings
Institution, Washington, D.C., 1975.
(70) "A Persistant Shortage of Reactor Orders", in Business Week, December 12, 1977, see
also Forbes Magazine, May 15, 1977.
(71) See Appendix I: The Search for Solutions, Uranium, Atomic Money Problems.
(72) "Why the Nagging Doubts About Atomic Power," U.S. News and World Report,
September 19, 1977, see also Fortune Magazine, September, 1977.
(73) "Capital Needs and Savings Potential of the U.S. Economy, Projections Through 1985,"
New York Stock Exchange Report, September 1974, and "Demand and Supply of
Equity Capital: Projections to 1985," New York Stock Exchange Report, June, 1975.
(74) Chase Manhattan Bank Report, p. 48, in the New York Times, April 1, 1975,
(75) "The Capital Crisis," pp. 42-48 of Business Week, September 22, 1973.
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if SECTION II: CLEARWATER'S. ENERGY FUTURE
(1) Note: All statistical data for Clearwater was derived from official Clearwater Depart-
ment of Planning publications and sources and from other official City of Clearwater
Departmental sources,
e
(2) See Table I, Section II: Clearwater's Energy Future, p. 26 of Clearwater's Energy
Policy Plan.
'(3) 1976 Energy Perspectives, pp. 66-67, U.S. Bureau of Mines, Department of the Interior,
Washington, D.C., 1977.
(4) "U.S. Energy Demand," p. 1 a, in the National Energy Plan, U.S. Government Printing
Office, 1977.
(5) "Implications for the United States," p. 19, in the National Energy Plan, U.S. Govern-
ment Printing Office, 1977.
(6) Data gathered by the Clearwater Energy Office, under the Central Services Department.
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(7) "U.S. Energy Demand," p. 10, in the National Energy Plan, U.S. Government Printing
Office, 1977.
(8) Official Florida Power Corporation data.
(9) "Energy Use: Fuels and Electricity," p. 18, in the Energy Element of the Florida State
Comprehensive Plan, the Florida Department of Administration, Division of State
Planning, Tallahassee, Florida, 1977, and "Energy Conservation," p. 15, in the
1977 Annual Report, of the Florida Power Coropration, St. Petersburg, Florida, 1978.
(10) "Natural Gas Consumption," p. 23, Forecasts of Future Supply and Demand of Energy
in Florida, Department of Administration, State Energy Office, February, 1977.
(11) Official Clearwater Utilities Department projections.
(12) "Fuel Mix," p. 10, in the 1977 Annual Report, of the Florida Power Corporation,
St. Petersburg, Florida, 1978.
( 13)
"What Cities are Doing About the Energy Crunch, What Remains for Them to Do,"
pp. 4-11, by Richard Mounts, in Nations Cities, March, 1978; See also Appendix IV
of Clearwater's Energy Policy Plan, Local Energy Conservation Measures for local
government examples.
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BIBLIOGRAPHY - FOOTNOTES
SECTION III: CLEARWATER'S ENERGY MANAGEMENT PROGRAM AND FUTURE
ENERGY MANAGEMENT AND PLANNING
(1) See Appendix II: Data from Phase I of the Clearwater Energy Management Program, for
more detailed information.
(2) See Appendix III: Clearwater's Residential Energy Audit Program, for more detailed
information.
(3) Assumes a city-wide electric power savings only of just 15% rather than the stated 25%
goal.
(4) "Learning the Conservation ABC's," p. 56, in Time Magazine, June 12,1978.
(5) See p. 62 of Clearwater's Energy Policy Plan.
(6) Solar Heating and Cooling Demonstration Program, pp, 9,8-103, U.S. Department of
Housing and Urban Development, in cooperation with the Energy Research and Devel-
opment Administration, 1976.
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BIBLIOGRAPHY - FOOTNOTES
APPENDIX I: THE SEARCH FOR SOLUTIONS
(1) Patterns of Energy Consumption in the United States, Report for the Office of Science
and Technology, Washington, D.C" January, 1975.
(2) "World Electric Power Outlook," pp. 12, 13, in the World Energy Outlook, a Back-
ground Series publication of the Exxon Corporation, 1977.
(3) "The Atom for Progress and Peace," text of the Presidential address before the U.N.
General Assembly, December 8, 1953, U.S. Government Printing Office,
(4) Updated figures for "Nuclear Power," pp. 69-73, in the National Energy Plan, U.S.
Government Printing Office, 1977. See also Florida Trend, April, 1978.
(5) "Nuclear Power," pp. 69-73, in the National Energy Plan, U.S. Government Printing
Office, 1977.
(6) "World Nuclear Power Outlook," pp. 14, 15, in the World Energy Outlook, a Back-
ground Series publication of the Exxon Corporation, 1977.
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(7) Energy and the Environment, by John Fowler, McGraw-Hili, New York, 1975.
(8) Energy for Man, pp. 336 and 357, by Hans Thirring, Greenwood Press, N. Y., 1968.
(9) "Nuclear Power - A Time for Decision," speech by 1975 FEA head, Frank Zarb,
Federal Energy Administration, Washington, D.C., July 1975.
(10) Half-life of Uranium-235, in Energy for Man, by Hans Thirring, Greenwood Press, N.Y.,
1968.
(11) "Disposal of Nuclear Waste," p. 1205, by A. S. Kudo and D. U. Rose, in Science
Magazine, 1977.
( 12)
(13) "Nuclear Technology," pp, (5) 57 - (5) 182, in the Energy Technology Handbook,
McGraw-Hili, N. Y., 1977.
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IQV' (14) WASH-740, Brookhaven National Laboratories update 1964, for the U.S. Atomic
..J Energy Commission, unpublished.
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(15) WASH-1250 Report: The Safety of Nuclear Power Reactors (Light Water-Cooled) and
Related Facilities (Final Draft), U.S. Atomic Energy Commission, 1973.
(16) WASH.1400 Repport: Reactor Safety Study: An Assessment of Accident Risks in U.S.
Commercial Nuclear Power Plants, U.S. Atomic Energy Commission, August, 1974.
(17) Preliminary Review of theAEC Reactor Safety Study, by the Joint Review Committee,
Union of Concerned Scientists, Sierra Club, November, 1974.
(18)
(19) "The Energy Resources of Earth," pp. 31-40, by M. K. Hubbert, in Energy and Power,
Scientific American, W. H. Freeman, 1971.
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(20) Proceedings of the National Academy of Sciences, p. 1923, by M. Benedict, National
Academy of Sciences, Vol. 68:8,1971. See also "Nuclear Fuel Cycle," pp. 16,17, in
the World Energy Outlook, a Background Series publication of the Exx.on Corporation,
1977. See also Fortune Magazine, September, 1977.
(21) ERDA-33, The Nuclear Fuel Cycle, by the Energy Research and Development Admin-
istration, U.S. Government Printing Office, 1975,
(22) See pp, 13, 14, "Section I, The World's Energy Future," of the Clearwater Energy
Policy Plan.
(23) "The Cost of Nuclear Power," by J. McCall, in Environment, Scientific Institute for
Public Information, December, 1976.
(24) Reported in the Wall Street Journal, p, 98, September 9, 1975,
(25) "The Economics of Nuclear Power," p. 15, by I, C. Bupp, in Technology Review,
February, 1975. See also Trends in Light Water Reactor Capital Costs in the United
States, Cambridge; Center for Policy Alternatives, Massachusetts Institute of Tech-
nology, December 18, 1974. See also "The Energy Resources of Earth," pp. 31-40,
by M. K. Hubbert, in Energy and Power, Scientific American, W. H. Freeman, 1971.
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(26) Bertram Wolfe quoted in "A Persistent Shortage of Reactor Orders," Business Week,
December 12, 1977. S
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IQV' (27) John J. Taylor quoted in "A Persistent Shortage of Reactor Orders," Business Week,
..J December 12, 1977.
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(28)
Donald C. Cook quoted in Weekly Energy Report, reported In "Atomic Power, Why
the Dream Gets Dimmer," in U. S. News and World Report, February 16, 1976.
(29) "Why the Nagging Doubts About Atomic Power," in U. S. News and World Reports,
September 29, 1977.
(30) Projections of the Cost of Generating Electricity in Nuclear and Coal Fired Power
Plants, by R. E. Scott, St. Louis Center for the Biology of Natural Systems, Washington
University, December, 1975. See also Forbes Magazine, May 15, 1977.
(31) Radioactive Contamination, by Virginia Brodine, for the Scientist's Institute for Public
Information, Harcourt, Brace, N. Y., 1975.
(32) The Liquid Metal Fast Breeder Reactor, by T. B. Cochran, Johns Hopkins University
Press, Baltimore, 1975.
(33) Estimated Production of Human Lung Cancers by Plutonium from World Wide Fallout,
by J. W. Gotman and Dr. A. Tamplin, Committee for Nuclear Responsibility; Dublin,
California, July, 1975,
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(34) Half-life of Plutonium-239, in Energy for Man, by Hans Thirring, Greenwood Press,
N.Y., 1968.
(35) As reported on p. 88 of The Economist, March 9, 1974.
(36) Report on the Possible Effects on the Surrounding Population of an Assumed Release
of Fission Products into the Atmosphere from a 300- Megawatt Nuclear Reactor Lo-
cated at Lagoona Beach, Michigan, by H. J. Gomberg, et al., Michigan Atomic Power
Development Associates Inc., for the University of Michigan's Engineering Research
Institute, 1957.
(37) Dr. Taylor quoted in The Curve of Binding Energy, by John A. McPhee; Farr, Strauss
and Giroux, N. Y., 1974. See also Nuclear Theft: Risks and Safeguards, by
Dr. Theodore M. Taylor and Mason Willrich; Ballinger Press, N.Y., 1974.
(38) As reported in "Easing Industry Out of Breeder Reactors," p. 24 of Business Week, :s
March 31, 1975. See also pp. 4, 5 of Environment, June, 1975. ~
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IQV' (39) As reported on p. 312 of Science News, November 12, 1977. See also p. 710, 711 of
..J Science Magazine, November 18, 1977,
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(42)
(43)
(44)
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(45)
(46)
(47)
(48)
(49)
(50)
(40) Energy, Environment, Population, Food, p. 263, by George L. Ture; John Wiley and
Sons, 1976. See also Energy in the American Economy 1950-1975, Resources for the
Future, by S. M. Schurr; Johns Hopkins University Press, Baltimore, 1960.
(41) "Energy Resources," by M. K. Hubbert, in Resources and Man, National Academy of
Sciences, W. H. Freeman and Co,; 1969. See aho "The Energy Resources of Earth,"
pp. 31-40, by M. K. Hubbert, in Energy and Power, Scientific American; W. H. Freeman
and Co., 1971.
In 1975 the U.S. exported $2.5 billion of coal, pp, 5-23 in Survey of Current Business,
August, 1975.
See p. 46, of Section", Clearwater's Energy Future, of the Clearwater Energy Policy
Plan.
"World Electric Power Outlook," pp. 12,13 in World Energy Outlook, a Background
Series publication of Exxon Corporation, 1977.
"The Origins of the U.S. Energy Problem," pp. 1-8, of the National Energy Plan, U.S.
Government Printing Office, 1977.
Energy: Demands, Resources, Impact, Technology and Policy, Vol. I, 123, 126, by
S. S. Penner and L. Icerman; Addison-Wesley, Reading, Mass., 1974,
U.S. Energy Outlook: Coal Availability, p. 38, National Petroleum Council, Washington,
D.C., 1973.
"Mine Safety Effort Draws Rising Criticism," in the New York Times, Sept. 9, 1972.
"The Cost of Coal," pp. 30, 31,35, by G. E. Daniels and E. C. Moore, in Environment,
September, 1974.
"Environmental Aspects of Coal Mining," p, 334, in Power Generation and Environ-
mental Change, by D. A. Berkowitz and A. M. Squires; MIT Press, Cambridge, Mass.,
1971.
(51) Underground Coal Mining in the United States, aTRW Systems Group report, June, 1971. S
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Testimony of Russel E. Train, Chairman of the Council on Environmental Quality, be-
fore the U. S. Senate Subcommittee on Minerals and Fuels, Committee on Interior and
Insular Affairs, 72nd Congress, 1st Session, pp. 141-142, November 16,1971.
(53)
(54) "The Cost of Coal:' pp. 30, 31, 35; by G. E, Daniels and E. C. Moore, in Environment,
September, 1974,
(55) U.S. Energy Outlook: Coal Availability, p. 38, National Petroleum Council, Washing-
ton, D. C., 1973.
(56) "The Cost of Coal," pp, 30, 31, 35; by G. E, Daniels and E. C. Moore, in Environment,
September, 1974.
(57) "Coal Technology," pp. (1) 15 - (1) 285, in the Energy Technology Handbook,
McGraw-Hili, New York, 1977.
(58) "The Cost of Coal," pp. 30, 31,35; by G. E. Daniels and E. C. Moore, in Environment,
September, 1974. See also "Regulation of Strip Mining," Hearings before the House
Subcommittee on Mines and Mining of the Committee on Interior and Insular Affairs,
92nd Congress, 1 st Session, November, 1971. See also "Surface Mining and Land Re-
clamation in Germany," pp, 56-57; by E. A. Nephew, Oak Ridge National Laboratory,
May, 1972.
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(59) "Where Coal is No Problem," p. 35, in Newsweek, March 20,1978.
(60) "Environmental Quality," pp, 15, 237; A Study by the Congressional Action Fund,
Congressional Record, September 29, 1972.
(61) London: 1600 Deaths in 1951, in "Air Pollution Episodes, A Guide for Health De-
partments and Physicians," in HSMHA Health Reports; Environmental Protection
Agency, Washington, D.C., June, 1971.
(62) "Air Pollution Episodes; A Guide for Health Departments and Physicians," in HSMHA
Health Reports; Environmental Protection Agency, Washington, D.C., June, 1971.
(63) Clean Air Act of 1970 and Clean Air Standards 1975 cited on pp. 43, 155, of Energy
Resources, by A. L. Simon; Pergamon Press, N. Y., 1975,
s
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TO~ 151
e
~e.R
~..s1
IQV' (64)
..J
U
"Coal Technology," pp, (1) 15 - (1) 285, in Energy Technology Handbook, McGraw-
Hill, N.Y., 1977. See also: Projections of the Cost of Generating Electricity in Nuclear
and Coal Fired Power Plants, by R. E. Scott; St. Louis Center for the Biology of
Natural Systems; Washington University Press, December, 1975,
(65) "High-Sulphur Coal for Generating Electricity," pp. 346-350, by Dunham, Rampacek,
and Henrie, in Science Magazine, April 19, 1974.
(66) U.S. Bureau of Mines, National Coal Association estimates, quoted in "Where Coal is
No Problem," p. 35 in Newsweek, March 20, 1978.
(67) "Where Coal is No Problem," p. 35, in Newsweek, March 20, 1978.
(68) "The West's New Range War," p. 47, in Newsweek, May 23, 1977, See also "Flushing
Coal to Market," p. 61, Time Magazine, May 16,1977.
(69) "Flushing Coal to Market," p. 61, Time Magazine, May 16,1977. See also "The West's
New Range War," p. 47, in Newsweek, May 23,1977.
e
(70) Wildcat strikes and absenteeism result in an effective 4Y2-day work week in the coal
industry - Underground Coal Mining in the United States, a TRW Systems Group re-
port, 1971. See also U.S. Energy Outlook: Coal Availability, National Petroleum
Council, Washington, D. C., 1973.
(71) Energy, Environment, Population, Food, pp. 72, 73, by George L. Tuve, John Wiley
and Sons, N.Y., 1976. See also: "The Energy Resources of Earth," by M. K. Hubbert,
in Energy and Power, Scientific American, W. H. Freeman and Co., 1971,
(72) United States Energy, A Summary Review, p. 111-35, U.S. Department of the Interior,
Washington, D.C., December, 1972.
(73)
"Energy and Water," pp. 625-633, by John Harte and Mohamed EI-Gassier, in Science
Magazine, February 10, 1978. See also: "Task Force Report - Coal," p. 55 and "Task
Force Report - The Potential Future RoleofOil Shale: Prospects and Constraints," p.50;
in Project Independence Blueprint, Federal Energy Administration, U.S. Department
of the Interior, Washington, D.C., 1974. See also: United States Energy, A Summary
Review, U.S. Department of the Interior, Washington, D.C., 1972.
s
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O<'r
TO~ 152
e
e
~e.R
~..s1
IQV' (74)
..J
U
"Task Force Report - The Potential Future Role of Oil Shale: Prospects and Constraints,"
in Project Independence Blueprint, Federal Energy Administration, U.S. Department
of the Interior, Washington, D.C., 1974,
(75) "Energy Supplies from Future Sources," pp. 72-74, in Energy Environment, Population,
Food, by George L. Tuve, John Wiley and Sons, N.Y., 1976.
(76) "Oil," p, 65 in Energy Resources, by Andrew Simon, Pergamon Press, N.Y., 1975.
See also: "The Energy Resources of Earth," pp. 35-36, by M. K. Hubbert, in Energy
and Power, Scientific American, W. H. Freeman and Co., San Francisco, 1971.
(77) "Energy Supplies from Future Sources," pp. 72-74, in Energy, Environment, Popula-
tion, Food, by George L. Tuve, John Wiley and Sons, N.Y., 1976.
(78) Energy, The New Era, pp, 232,233, byS. D. Freeman, Walkerand Company, N.Y., 1974,
(79) "An Analysis of Gas Stimulation Using Nuclear Explosives," by B. Rubin, L. Schwartz,
O. Mortan, May, 1972. See also: Natural Gas Survey: Report of Gas Supply Task Force,
Federal Power Commission, 1973,
e
(80) "Coal Gasification at Sasol (Republic of South Africa)," pp. (1) 285-(1) 296, in the
Energy Technology Handbook, McGraw-Hili, N.Y., 1977. See also: "Sasol ,,: South
Africa's Oil from Coal Plant," p. 56 in Hydrocarbon Process, July, 1976.
(81) "CoalTechnology," pp. (1) 189-( 1) 284, in the Energy Technology Handbook, McGraw-
Hill, N.Y., 1977. See also "Clean Fuels from Coal Gasification," pp. 340-346, in
Science Magazine, April 19, 1974.
(82) "Industrial Energy in Transition, A Petrochemical Perspective," pp. 614-618, in
Science Magazine, February 10, 1978. See also: "Clean Fuels from Coal Gasification,"
pp. 340-346, in Science Magazine, April 19, 1974.
(83) "Liquid Fuels from Coal: From R & D to Industry," pp, 610-622, in Science Magazine,
February 10, 1978.
(84)
(85) "Coal," and "Coal Research," pp. 63-69, of the National Energy Plan, U.S. Government
Printing Office, 1977.
(86) As reported on p. 19 of Business Week, August 11, 1975.
s
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O~ e
TO~ 153
e
~e.R
~..s1
IQV' (87) "Energy and Water," pp. 623-633, by John Harte and Mohamed EI-Gassier, in Science
..J Magazine, February 10, 1978.
U
(88)
(89)
(90) "Geothermal Electricity Production," pp, 371-374, by Geoffry R. Robson, in Science
Magazine, April 19, 1974.
(91) Geothermal Energy, p, 112, H. C. H. Armstead, ed., Unesco, Paris, 1973.
(92) "Characteristics of Geothermal Resources," pp. 69-94, by D. H. White, in Geothermal
Energy, P. Kruger and C. Otte, eds., Stanford University Press, California, 1973.
(93)
(94) "The Heat Energy of the Underground," pp. 75-82, in Energy Resources, by Andrew
Simon, Pergamon Press, N.Y., 1975. See also: "The Vapor-Turbine Cycle for Geo-
thermal Power Generation," pp, 163-176 by J. H. Anderson, in Geothermal Energy,
P. Kruger and C. Otte, eds., Stanford University Press, California, 1973. See also:
"Energy from the Earth," pp. 10-13, by E. Keller, in Chemistry Magazine, May 19, 1976.
e (95) "Explosive Stimulation in Hydrothermal Reservoirs," pp. 231-251, by Ramey, Kruger,
and Raghavan, and "Chemical Explosive Stimulation of Geothermal Wells," pp. 269-
292, by Austin and Leonard, in Geothermal Energy, P. Kruger and C. Otte, eds, Stan-
ford University Press, California, 1973.
(96) "The Heat Energy of the Underground," pp, 75-82, in Energy Resources, by Andrew
Simon, Pergamon Press, N. Y., 1975.
(97)
"Energy Technology and Energy Supplies," pp. 82-85, in Energy, Environment,
Population, Food, by George L. Tuve, John Wiley and Sons, N. Y., 1976.
(98)
"The Colorado River," p. 10, in Macropaedia 4, of the Encyclopaedia Britanica,
University of Chicago Press, 1974. See also: "Hoover Dam," p. 298 in the World
Book Encyclopedia, (Vol. 9), Field Enterprise Educational Corporation, 1977,
(99)
As reported in "The Energy of Running Waters," pp. 95-104, in Energy Resources,
by Andrew Simon, Pergamon Press, N,y', 1975.
e
s
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O~
TO~ 154
~e.R
~..s1
IQV' (100) "The Energy of Running Waters," p, 165, in Energy Resources, by Andrew Simon,
..J Pergamon Press, N.Y., 1975.
U
e
(101 )
(102) "Hydroelectric Power," p. 73, in the National Energy Plan, U.S. Government Printing
Office, 1977,
(103) "Catch the Sun," pp. 248-251, by J. Raloff, in Science News, April 22, 1978. See also:
"Low-Cost Solar Cells are Here," pp. 55-57, by C. A. Miller, Mechanics Illustrated,
April, 1978. See also: "Photovoltaic Power Systems," pp. 634-643, by H. Kelly, in
Science Magazine, February 10, 1978.
(104) "Catch the Sun," pp, 248-251, by J. Raloff, in Science News, April 22, 1978.
(105) "Energy Suppl ies from Future Sources," p. 81, Energy, Environment, Population,
Food, by George L. Tuve, John Wiley and Sons, N.Y., 1976.
(106) "SUNSA T: Collecting Solar Power in Orbit," pp. 256-257, by J. Eberhart, in Science
News, April 22, 1978.
(107) "The Energy Resources of Earth," p. 36, by M. K. Hubbert, in Energy and Power,
Scientific American, W. H. Freeman and Co., San Friscisco, 1971.
e
(108) "Catch the Sun," pp. 248-251, by J. Raloff, in Science News, April 22, 1978. See
also: "The Energy Resources of Earth," p, 36, by M. K. Hubbert, in Energy and Power,
Scientific American, W. H. Freeman and Co" San Francisco, 1971.
(109) "Catch the Sun," pp. 248-251, by J. Raloff, in Science News, April 22,1978,
(110) "The Energy Resources of Earth," p. 36, by M. K. Hubbert, in Energy and Power,
Scientific American, W. H. Freeman and Co., San Francisco, 1971.
( 111 )
(112) "Report of Solar Subpanel IX," in Solar and Other Energy Sources, A. J. Eggons,
Chairman, National Science Foundation, October 27, 1973 (copies obtainable from
the AEC/NRC public documents room).
(113) "Biomass," pp. 258-259, by R. Navickis, in Science News, April 22, 1978.
s
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O~
TO~ 155 e
-
~e.R
~..s1
J' (114)
..J (115) U. S. Energy Outlook, pp. XXXVI-38, 40-42, New Energy Forms Task Group, Other
U Energy Sources Subcommittee, National Petroleum Council, 1972.
(116) "Energy Conversioo Conference," p, 1131, by Szego, Fox, Easton and Kemp, In
Chemical Technology, 1973.
( 117)
(118) "Bianass," pp. 258-259, by R. Navickis, in Science News, April 22, 1978. See also:
"Solar Energy by Photosynthesis," pp. 375-381, by M. Calvin, in Science Magazine,
April 19, 1974. See also: "Fuels from Biomass: Integration with Food and Materials
Systems," pp. 644-651, by E. S. Lipinsky, in Science Magazine, February 10,1978.
(119) "Engine Performance and Exhaust Emissions from a Methanol-Fueled Automobile,"
by Adelman, Andrews and Devoto, before the Society of Automotive Engineers,
August, 1972.
e
(120)
( 121)
(122) "Methanol: A Versatile Fuel for Immediate Use," pp. 1299-1304, in Science
Magazine, December 28, 1973.
( 123)
(124)
(125)
(126) "The Energy of Running Waters," pp. 95-104, in Energy Resources, by Andrew Simon,
Pergamon Press, N.Y.,' 1975. See also: "Ocean Thermal Energy: The Biggest Gamble
in Solar Power," pp. 989-990, by W. D. Metz, in Science Magazine, December 9, 1977,
and pp. 368-370, in Science Magazine, January 27, 1978.
(127)
(128) "Energy Supplies from Future Sources," pp, 70-81, in Energy, Environment, Popula-
tion, Food, by George L. Tuve, John Wiley and Sons, N. Y., 1976.
(129) "To Catch the Wind," pp. 105-109, in Energy Resources, by Andrew Simon,
Pergamon Press, N. Y., 1975,
(130)
(131) "Energy Supplies from Future Sources," pp. 70-87, in Energy, Environment, Popula- .:s
tion, Food, by George L. Tuve, John Wiley and Sons, N.Y., 1976. ~
r?
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TO~ 156
~e.R
~..s1
J' (132)
..J ( 1 33)
U
fI
"Slow-Breeder Makes Its Own Nuclear Fuel," pp. 89-91, by J. G. Busse, in Popular
Science, April, 1978. See also: "Breeding in Light Water, The Test Begins," p. 164,
in Science News, September 10, 1977. See also: "The CANDU Reactor Systems, An
Appropriate Technology," pp. 657-664, by J. A. L. Robertson, in Science Magazine,
February 10, 1978.
(134) "Fission, the Promise of Limitless Power," pp. 125-130, in Energy Resources, by
Andrew Simon, Pergamon Press, N. Y., 1975. See also: Fission, Fusion and the Energy
Crisis, by E. S. Hunt, Pergamon Press, N.Y., 1974.
(135) "Carbon Dioxide Laser: Fusion At Last," p. 166, in Science News, March 12, 1977.
See also: "Giant Laser System Readied for Tests," p. 71, in Aviation Week,
May 15, 1978. See also: "Laser Fusion," pp, 50-56, by C. M. Stickley, in Physics
Today, May, 1978.
BIBLIOGRAPHY - FOOTNOTES
APPENDIX III: CLEARWATER'S RESIDENTIAL ENERGY AUDIT PROGRAtvl
e
SOURCE: Audit developed by the Clearwater Energy Office.
"Energy Use of Appliances," "Cost of Common Lighting Methods," and "Energy Conserva-
tion Tips for Appliances and Lighting," from Development of a Community Energy
Conservation Program, Volume II, Federal Energy Administration, Department of Energy,
Washington, D.C., January, 1977.
BIBLIOGRAPHY - FOOTNOTES
APPENDIX IV: LOCAL ENERGY CONSERVATION IMPLEMENTATION MEASURES
SOURCE: Development of a Community Energy Conservation Program, Volumes I and II,
Federal Energy Administration, Department of Energy, Washington, D.C., January, 1977; and:
A Guide to Reducing Energy Use Budget Costs, prepared by the National League of Cities,
The National Association of Counties, and the U.S. Conference of Mayors, for the Federal
Energy Administration, Department of Energy, Washington, D.C., 1977,
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ORDI~A~C-:;: :NO. 1661
A~ ORDE'IANCE OF TEE CITY OF CLE.-\RWATER, FI~O,RIDA,
COMPLYING WITH TEE "LOCAL GOVERNMENT COMPRE-
HENSIVE PLANNING ACT OF 1975/l, AS AMENDED; ADOPTL~G
A CONS1':RVATION ELEM1':NT AS PART OF THE CO:vlPRE-
HENSIVE PL.t...N FOR THE ENTIRE CITY OF CLEARWATER,
FLORIDA; ADOPTING THE .". TTACHED EXPJ:BIT; PROVIDI?-;G
FOR PROPER NOTICE OF PROPOSED E~ACT~ENT; AND
PROVIDING AN EFFECTIVE DATE FOR TillS ORDJ?-TA~CE.
BE IT ORDAINED BY TEE CITY COlvC.USSION OF THE CITY
OF CLEARViATER, FLORIDA:
Section lw The future conservation element of the comprene:lsive
plan as requi:-ed by the "Local Go...:er:lr:l.e:J.t Corr..prehensive Planning ...A..ct of
1975", as o.mended, 2.c""d as set forth in the 2.ttachcd Exhibit, described as:
Composite Ez::ibit _~ - Booklet e!ltitled l!Snviror..rrlenta.l
Management Progran~ and Conser'~-ation Plan for the
City of Clear-.,vate!", FloriG.2.':, consisting of 113 pages,
plus an adde!".da consisting of 42 :lumoered pages and
one page or amenc1n:..ents,
is ado~ted i:1 accord2..nce \vith the l1L.ocal Go.,,-ernrr:ent Cor.tlprehensive ?lan.ning
_A.ct of 197511, as ame:r:c:.ec., ':0::- tht:: 2!:ti::"e City 0: Clo;;2.r\\."ater, Florida.
Section 2. The. at:ac:"ed e::0~ibit ci.esc:-ibe2 as:
Composite ~Xl1:bi: /i - Booklet e:::titlec. llEnvlroEme::tal
~1anageme.nt P:-o?;ra::-l and Conserva.tior: Plan fo!: the
City of Clear'Nc_te:-, ?loridall, consi8tL~g of 113 pages,
plus an 2.dcenda cO:J.sisting of 42 I:lli..-y';.oered pag~s and
one page or ar.:le.:1d:-rlent3,
is adopted as part of this ordinance as if it \-/2.5 set forth in full herein.
Section 3. Fa::" the pur?oses of this ordir:ance, the area encompassec.
by this ordir:ance 5h<1.11 D(~ ciesc::-ib~d 2-2:
The entire al"ea v:rithin the preser.t boundaries of the
City of C12arwr2-ter 2.$ suchbounc.c1.ries are eX-Oanded and
. , .
redefined byi future 2.lli'"1exati'Jns, Ci:1d the City of Clea,:-:,y-ateT
service ?_rea -which ser.,ice area is further c.escrio8d as 1"0110\<:5:
Bounded on the West by tCle Gulf of ~:ex:ico, on the Xorth by
the cente~line of Dl..lnedin :?2.SS; t:'1cnce SCl2t~eas~e!"ly to a ?oillt
in St. JOS2p!:l.s SotL~d 2.?proxJ.IT:.a.tely 700 feet S::n..:the3.st cf
l\.:f.oor:shinc IsLl:ld, excluding )..{oor:shie Island; the::.ce cue :22..S'~
through St. Joseph!s 5Qunc 2.:lQ along TJnion Street to Keene RClad.;
thence cue Gorth to C01-lr:':y Road 34; thence c:ue East to the
Southerly e:~e!1sion of COlJ._:'lty Haad 70; the:1ce due 0iorth along
COWlty Road 70 to State rzoad ::- Q; :~ence due East to 'lJ. S. }-ligh--:.vay
19, excluding the D-..:nedin hlGUst:-ial Park; thence c.ue =,rorth to
(>l~.:-!~~,"; c:- e :::~-:: P.o:~'::: ::; '~r:c: "? ,,::,_, e -~:7:. 3~ to \'1-:~if'_1~J. 0:":1_ B 00t'h :;z o~,_~:
then..::e c.ue S01..:th a?proxi~-::'2.tely 5,400 feet ~o City-o.Nned property;
thence due Z?.st approxl:-na.tely 2,200 feet; thence cue So'o.th
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approx1Y":".:-:..tely 2.,2.00 fee: ~o State Road .580; thence ",\Test 2..::ld
South~,.vesl: to :Yic)"i~lllen-Booth Road; t~e:1ce due South to the
cente:rli:a.e of _;\llig2..tor Cr:~ek; thence East along .~...11ig2_tor
Creek and the southern sl:-lJre of Alligator Lake and Arlie Drive
to Cooper's Bayou and Upper Old Tampa Bay all the way to the
Clearwa.ter-Tamp2. City Limits and Pinellas-Hillsborough CO\.L."1ty
limits; thence due South to the Courtney C2.IT'_pbell Causew2.Y;
thence Weste:-Iy, Southwestedy and Southerly along the shoreline
of Old Tampa Bay to Bellair R02.d extended; thence due West on
Bellair Road to t;.,e Se2.board C02.st Line Railroad tracks; thence
due North to and along ?t. Harrison Avenue to D Street; thence
due West approximately 130 feet; thence due North to B Street;
thence due West to 4th Avenue; thence due North to A Street;
thence due East to Ft. Harrison Avenue; thence due North to
Watkins St.reet; thence due West to Waters Street; thence due
North approximately 700 feet; t;.,ence V{est to the Intr2.coastal
i,Vaterv".ay; thence South--South'.vest a:?proxin'lately 6,000 feet;
thence due 'Nest to the Gulf of Mexico.
Section 44 1\11 :req't-.:i~ed. 2..:1d optio!1a.l eleme~ts a.nd :.Ja:-ts or ~he
Comprehensive Pl2.n 2.5 :rec.uired or 2.11o'.;;;;eci by tlie Il~ocal Gover71::-:l.ent
Comprehensive ?lar.Jli!1g ",-.\ct or 197511, as ar::-:ended, ~~;,.hic":1. are set :o!'::: in
the 2.ttached exl1.ibit a20pted here:.n, are :;.e=eby ac:o-pted 2.S :Jart of tn-.!.s
ordinance.
Section -'. ~:.\11 2e'lelo:::)I-:1-e~t 1..:nd~:,t2.ke_:l arld 2..11 acti'J::J.s t2.":cen ].Il :-ega:::-c:.
to development orders, all 12.nd deve.lopr::,-;.ent regl~l2.tic::..s e::acted 0:-"- 2.r::.e::lt.ed
shall be consistent \vit:"1 t}-.is ?l2.-D and each ele!T~ent 2..:ld part t~ereof in :-eg::-ird
to the land covel.ed by t::is elcr:1er~t 2.::lC ?ortions of the Ccm?!"'eher...si~,te Plan
2.S hereby acoptec sne.ll be consistent '.vitn this Pla.n a.01C each ele=ent <inc
p2.rt thereof.
Section 6. i'Jotice cr t:1e ?ro?o3ed enact:-r:.ent of this ord:.nance na3
been properly advcrtisec. in a ne~.vspz~~er of ge!:'.e2:"al circulation in acco.::canc2
with Chapte:- 166.041, ?lorida Statutes.
Section 7. ..All ?ublic ::ea.rL'1.gs and ?ublic pa~:ici?2.ti...on recuired
pu!"sua:nt to Scct~O:1 163. 3131, ~'loric.a St2.tutes, have 'Ql"eC~QC"2C the consic:e::-at:.GI'..
of this ordinance.
Section 8. This crc.::'.I.ance is hereby aciopted and shall be cor:sidered
henceforth adoDted fc. t:"le pu.:?oses or ?loric2.. Stat'..lte, 1975, Sections
163.31872.:::::2 :63. 31S~ (7), 2.~:c 3:--:_~l 'Jcc::~-,:;,~ e:~'2c~i'",s :::-:...:-:-:~~.:.:..t:ly 'l:;,OT1
its p2.ssage.
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PASS2D ON SECOND AND FINAL
READI:NG AND ADO?TED
April 21, 1977
/s/ Cabriel Cazares
lvla yor - Conunis 5i one r
Attest:
/s/ R. G. V-fhitehead
City Clerk
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I Red-eyed vireo
Vireo olivaceus
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I Hniotilta varia
Prothonotary warbler
pror:onotaria citrea
Bacnman I s warbler ....,,,,
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Orange-crowned warbler
Verm2vora celata
Parula warbler
Parula amer2cana
I Mvrtle warbler
Dendroica coronata
'I Yellow-throated warbler
Dendroica dominica
I Pine warbler ,
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Dendroica' discolor
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! II
ENVIRONMENTAL MANAGEMENT PROG,RAM
and
CONSERVATION PLAN
for the
CITY OF CLEARWATER, FLORIDA
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ADDENDA
The Local Government Comprehensive Planning Act of 1975
requires that a conservation element be prepared as part of
a comprehensive plan for the City. This requirement has been
met through the preparation of the Environmental Management
Program and Conservation Plan.
The LGCPA also requires in subsection (3) of section 7
that those elements of the comprehensive plan requiring the
expenditure of public funds for capital improvements shall
carry fiscal proposals relating thereto. Addendum A. con-
tained in this report responds to this requirement.
Addendum B. of this report updates the implementation
recommendations for the proposed Environmental Manage~ent
Program which is also directly related to the implementation
of the Conservation Plan portions of the document. This
complies with subsection (5) of section 7 of LGCPA.
Addendum C. has been prepared in response to the receipt
of State guidelines subsequent to the printing of the docu-
ment. As this document was prepared, for purposes other than
meeting the requirements of the LGCPA, it does not necessarily
follow nor include all of the items denoted in the State
guidelines. Such inconsistencies are identified and discussed
in this addendum. This addendum is an attempt to preempt
possible adverse comments from reviewers of this document,
who, it is hoped, understand the unique circumstances sur-
rounding its development.
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ADDENDUM A.
FISCAL CONSIDERATIONS
It is not subject to di.spute that conservation of natural
areas has value to the local community. The discussion of
values related to natural functions is amply contained ,in
Section 2 (2), but can be summarized here to restate the eco-
nomic assumptions upon which this plan is based. These
assumptions and findings are:
1. The various ecosystems have tangible value in their
capacity to control flooding, prevent erosion, abate air and
noise pollution, buffer storms and modify microclimates.
2. Intangible values of natural ecosystems relate to
aesthetic, educational and psychological attributes of urban
1 i fe .
3. Replacement of overstressed natural systems which per-
form such functions as water purification, noise abatement,
etc., with physical or mechanical systems involves a signifi-
cant dollar cost to the local government.
4. Many intangible values of natural systems are unique
and irreplaceable.
The strategies outlined on pages 54-58 of this report are
the core of the recommendations of this plan. Some strategies
can be implemented without a significant cost to the local
government, through the City's police powers. Implementation
of other strategies will require a financial committment at
some later time, but for some projects determination of the
exact dollar cost cannot be made until further studies are
done to determine the best alternative to accomplish a broad
goal (i.e., "control pollution sources," p. 54). Where possible,
the cost of studies to determine these engineering solutions
will be estimated.
For those projects with estimated costs, several funding
sources will be considered: Operating revenues, general
obligation bonds (G.O.B.), revenue bond funds, and outside
(state, federal, other) funds. The City currently operates
under a 6-year capital improvement funding cycle. The timing
of recommendations made in this report will be consistent with
the framework. Projects will be designated for the first,
second, third, or fourth 6-year cycle.
It should be noted that this report deals with land acquisi-
tion, development and program costs for conservation projects
only. Additional funds will undoubtedly be required to meet the
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City's active recreation needs as well. La~d acquisition under
this program should be considered complementary to traditional
parks and recreation requirements, not as a replacement for those
functions. This will be considered further in the recreation/
open space element and related to the conservation element at
that time.
Five management areas are delineated - Cooper's Point,
Alligator Lake, Moccasin Lake, Lake .Chautauqua, and Spring Lake.
Policies relating to exercise of police power include mangrove
protection, shoreline setback requirements, site plan review
procedures, parkland dedication required of incoming annexations,
requirements for runoff and pollution control for new subdivisions,
and sewer hook-ups of existing subdivision in County enclaves.
Other strategies may be implemented at no cost to the City.
Several proposals indicate the development of bicycle paths. If
easements can be obtained from owners at no cost, total project
costs to the City will be substantially reduced. Other strategies
call for projects on state or county land, which will not require
City funds, such as development of recreational opportunities
along Courtney Cambell Causeway, which is on a state road right-
of-way. Fish management programs fall under the jurisdiction
of the Florida Game and Freshwater Fish Commission for public
bodies of water; the assistance of the GFWFC has been utilized
in the past and is expected to continue in the future.
Projects which will require an increase in local expendi-
tures may be either capital or operating expenses. In the table
which follows, operating expenses, their nature, and estimated
costs are listed by management area:
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Although the time span over which expenditures are programmed
is 24 years, costs are estimated in current dollars:
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Subsequent to the completion of all th~ elements in the
updated comprehensive plan, this section on economic feasibility
will be completely reviewed and made to conform with the existing
financial climate at that time. It is expected that many revisions
will occur, especially in the timing and priority setting.
Therefore what has been accomplished in Addendum A. must be
considered as a general guide in the broadest interpretation.
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ADDENDUM B.
IMPLEMENTATION STRATEGIES
The City of Clearwater has been concerned with the effective-
ness of its existing organizational structure as it relates to the
achievement of City goals and policies, and the execution of its
service responsibilities to its citizens. To this end the City
recently accepted a document prepared by the Public Administration
Service (PAS) entitled, An Organization and Management St~dY of the
Citr of Clearwater, FlorIaa. This document, along with t e .........---
Envlronmental Management Program and Conservation Plan, suggests a
a considerable numoer of improvements to the existrng-structure of
City government, many relating directly to the implementation of
the conservation element of the City's updated comprehensive plan.
A major recommendation of the PAS Study was the dispersal of
the functions of the City's Marine Department which presently exists
as an independent department reporting directly to the City Manager.
Although the PAS Study recognizes the need for the services pro-
vided by this department, it states that "organizationally the de-
partment appears to be a rather unnecessary unit of municipal
government." The study further suggests that "most functions of
the Marine Department are of a nature sufficiently similar to
activities performed in other City departments to allow for inte-
gration of the Marine Department activities into those other
departments." Although it is generally agreed that this depart-
ment does not necessarily warrant the status of an independent
department, it is questioned by many as to whether the proposed
recommendations put forth in the PAS Study regarding the disper-
sion of these service functions are the most appropriate ones for
the City.
For these reasons and the fact that many of the functions of
a marine services activity unit have a direct and/or potential
impact on the coastal and marine environments, three alternative
organizational structures have been proposed which involve the
transfer of the marine services functions to the proposed Depart-
ment of Leisure and Environmental Services as identified in the
Environmental Mana~ement Program and Conservation Plan. .Any o~
the three alternatlve structures proposed will be compatlble wlth
the management structure recommended in this document which had
as it prime objective that of developing an organizational structure
capable of implementing the environmental policies contained in
its Conservation Plan section. The objective of the administration
should now be the selection of the alternative scheme that best
fits their organizational philosophy and in their wisdom is the
best means for efficiently and economically implementing the City's
goals and objectives in these fields.
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In the following graphic illustrations ,the alternative
structures are identified by their functional elements, and
charted through the Division level. In the case of the Envir-
onmental Management Division, which is created from many
scattered or lacking functions, it is charted through the
Sectional level of government in each alternative. In all
three alternatives the Recreation Division is to be organized
internally as proposed in the PAS Study. The Libraries Divi-
sion retains the same internal organizational structure as
the existing Library Department as well as the Marine Division
in those alternatives where its functions are kept intact.
Narratives are provided briefly explaining the changes in the
three alternatives.
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ALTERNATIVE I
Addition of a Marine Services Division to the
Proposed Department of Leisure and
Environmental Services
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A. General Achievements
1. Will implement the proposed reorganization structure con-
tained in the Environmental Management Program.
2. Adds a Marine Services Division to the Department of
Leisure and Environmental Services with its existing
Marine Advisory Board.
3. Consolidates three departments into one and fifteen divi-
sions or division-level sections into four divisions.
4. Includes many recommendations proposed by PAS Study re-
garding organized recreation, recreation facilities,
forestry, library, and marine services.
5. Provides maximum citizen input through four advisory
boards.
B. Specific Achievements
1. Recreation Division created per PAS recommendations.
a. Recreation facilities maintenance transferred to
Parks Division per rationale in PAS report.
b. Active recreation and instructional programs organized
per PAS organizational chart for remaining division.
c. Existing Parks and Recreation Board members concerned
with the City's recreational development are retained
including new appointees; other Parks and Recreation
Board members concerned with parkland development
reappointed to Environmental Management Division Ad-
visory Board.
2. Creation of an Environmental Management Division
a. All land resource management functions and environ-
mental permitting placed in line authority with prime
responsibility lying in environmental enchancement
and protection rather than other functions. Consoli-
dates scattered environmental activities except for
sewage treatment plants.
9.
I
b. Provides a structure which will allow the implemen-
tation of the conservation pla~ and environmental
management policies as required by the Local Govern-
ment Comprehensive Planning Act.
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c. Creates a new citizen advisory board of multiple
talent while retaining personnel from existing boards
and committees, thus providing maximum public involve-
ment in the City's environmental affairs.
d. Provides for the development of specialized environ-
mental management activities, such as fish and wild-
life management, environmental education, air and
noise pollution abatement, etc.
3. Provides a functional niche for the existing Marine D~part-
ment while maintaining that department's functions intact.
Designates the Marine Department as being a leisure service
rather than a public works service and structures it so.
Retains existing Marine Advisory Board without changes in
personnel or function.
10.
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ALTERNATIVE II
Addition of Marine Services Functions and Creation of a
Maintenance Division for the
Department of Leisure and Environmental Services
A.
General Achievements
1.
B.
2.
.
Will implement the proposed reorganization structure con-
tained in the Environmental Management Program.
Adds functions of the existing Marine Department to the
Department of Leisure and Environmental Services and
incorporates the existing Marine Advisory Board into
other proposed advisory boards within the new department.
Consolidates three departments into one and fifteen
existing divisions or division-level sections into four
divisions.
3.
4.
Includes many recommendations proposed by PAS Study re-
garding organized recreation, recreation facilities,
forestry, library, and the dispersing of marine services.
Maintains three citizen advisory boards as presently
exists, although restructured to conform with appropriate
division functions. Reduces by one the number of advisory
boards proposed in Alternative I.
s.
6.
Allows a more even distribution of personnel per division
than Alternative I.
7 .
Consolidates maintenance functions for entire department;
creates a service-oriented division for the production-
oriented divisions within the new department.
Specific Achievements
1. Recreation Division created per PAS recommendations.
a. Recreation facilities maintenance transferred to a
Maintenance Division per PAS rationale.
b. Active recreation programs organized per PAS organi-
zational chart for the remainder of the division.
c. Existing Parks and Recreation Board members concerned
with the City's recreational development are retained
including new appointees; other Parks and Recreation
board members concerned with parkland development re-
appointed to Environmental Management Division Advisory
Board.
14.
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2. Creation of an Environmental Manage~ent Division.
a. All land resource management functions (including all
open space, vacant parcels, and submerged lands) and
environmental permitting placed in line authority with
prime responsibility lying in environmental enchance-
ment and protection rather than other functions. Con-
solidates scattered environmental activities except
for sewage treatment plants.
b. Provides a structure which will allow the implementa-
tion of the conservation plan and environmental manage-
ment policies as required by the Local Government
Comprehensive Planning Act.
c. Creates a new citizen advisory board of multiple talent
while retaining personnel from existing boards and
committees, thus providing maximum public involvement
in the City's environmental affairs.
d. Provides for the development of specialized environ-
mental management activities such as fish and wildlife
management, environmental education, air and noise
pollution abatement, etc.
3. Incorporates two divisions of the existing Marine Depart-
ment into the Department of Leisure and Environmental
Services.
a. Provides for the inclusion of the existing Beach
Safety Division into the proposed Recreation Division,
Recreation District I, per PAS recommendations.
b. Provides for the inclusion of the existing Marina
Division into the Environmental Management Division
as an independent section. Functions would include
present marina operations and also be expanded to
include coastal zone management and implementation
of the updated coastal zone plan as required by the
Local Government Comprehensive Planning Act.
c. Transfers the Bridge Division to an external depart-
ment.
d. Retains the existing marine advisory board by incorpo-
rating its members into the proposed advisory board
to be created for the Environmental Management Division.
e. Provides a niche for future City involvement with the
Marine Science Center on Island Estates, whose opera-
tions would logically fit into this proposed Section
and Division.
15.
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ALTERNATIVE III
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Addition of a Marine Services Division and the
Creation of a Maintenance Division for the
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Environmental Services
A. This alternative combines the recommendations contained in
Alternatives I and II.
1. A Marine Services Division is created per the recommen-
dation in Alternative I. This Division is comparable
to the existing Marine Department and retains that de-
partments functions and advisory board intact.
2. A Maintenance Division is created from the existing
Recreation Facilities Division and Parks Division per
the recommendations in Alternative II.
B. Coastal Zone Management functions and the future operations
and educational activities of the Marine Science Center
are included in the Division of Environmental Management
in an independent section.
C. Three departments are consolidated into one as in Alterna-
tives I and II; however, five divisions, rather than four,
are created by this alternative.
D. Four advisory boards are retained per Alternative I.
E. Numbers of personnel per Division are more evenly distrib-
uted in this alternative than would exist in either Alter-
native I or Alternative II.
19.
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I 21.
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ADDENDUM C.
RELATIONSHIP TO STATE GUIDELINES
The Division of State Planning recently provided the City of
Clearwater with a copy of the September, 1976 publication entitled,
A Local Officials Guide to the Local Government Comprehensive
Planning Act. As the EnVIronmental Management Program and Conser-
vation Plan (EMPCP) was completed in July and printed in-August
of 1976~ was obviously not possible to follow this new guide
in the preparation of the original document.
In pages 9-68 through 9-77 of the Guide the preparation of
conservation elements is addressed. The following statements
relate this information to that which has been prepared or may
be lacking in part in the City's conservation element:
Basic Purpose and Considerations (p. 9-68)
The City's element is consistent with the State guidelines
except for -
a) air - air pollution ~ontrol is a function of Pinellas
County, not the City, although specific policies
addressing air quality are included in the City's
element (p. 42, B; p. 46, G.).
b) minerals - the City does not have any significant mineral
resources, nor any mining operations other
than the obtainment of soil materials for fill
or horticultural purposes.
c) agricultural - although inventoried to some extent as
monoculture ecosystems, planning for
future agriculture is nonexistant in the
City's conservation element; the City does
not have a zoning classification for this
land use, nor is it practical or economically
feasible to consider the pursuit of such
uses in the future with raw land costs at
a premium throughout the service area of
the City.
historical/archaeological - the City is considering the
preparation of the optional
element for this item in the
future.
d)
Relationship to Other Plan Elements (p. 9-68)
As this is the first element to be prepared in the update of
the City's comprehensive plan, this relationship is not possible
at this time. Future elements will relate to this program and plan.
22.
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The City of Clearwater presently has a Coastal Zone Manage-
ment Plan which was prepared in 1973 by one 'of the authors of
~EMPCP. These two documents are very compatible, in fact,
much of the new plan was based on the Coastal Zone Management Plan
in those portions of the City under coastal enVIrOnment influences.
The City Planning Department plans to update this existing
Coastal Zone Management Plan and resubmit it as an element meeting
the LGCPA mandatory requirements. This will be accomplished prior
to July, 1977.
Coordination With Other Plans
Relationships to external agencies is covered on pages ~9-7l
of the EMPCP. Other coordination efforts are being undertaken
with the Tampa Bay Regional Planning Council. All of the surround-
ing municipalities as well as Pinellas County have received copies
of the EMPCP. The City is presently awaiting any comments from
these governments or will receive such at a public hearing set by
the local LPA on February 16, 1977.
Available Resources and Related Requirements (p. 9-69)
Not applicable at this time.
Steps in Preparing the Conservation Element (p. 9-69 through 9-76)
Not applicable as the document was prepared prior to the
recommended guidelines. However, the following is a response to
the suggested content requirements in the guidelines:
1. Determine Conservation Needs and Existing Conditions
A. Identify Existing Standards and Criteria to Determine
Natural Resources
1)
2)
Air quality addressed previously.
Sources of potable water addressed in general through
EMPCP; specifically, water supply has been previously
addressed in another City planning document entitled,
"New North" Planning Study. This planning study is
concerned with the extreme northeastern portions of
the City which contains the largest amount of vacant
land in the service area. Excerpts from this study
are provided in Appendix A. As all of the City's pot-
able water wells are located in this geographical area,
the "New North" excerpts should suffice for this
requirement.
3)
Soil potentials and limitations were also addressed in
the "New North." Appendix B. is another excerpt from
this study. The only soils not identified in the "New
North" that lie in other parts of the City are tidal
23.
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marsh, tidal swamp, and coastal beach soils. These
are adequately addressed in Chap~er I of the EMPCP,
however, in the section on ecosystem definitions.
4) Estuaries, marshes - adequately addressed in ecosystem
definitions.
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5) Dune and shoreline stability - Dunes are almost absent
in the City of Clearwater; shoreline stability is
briefly assessed in ecosystem definitions.
6) Quality of fish and shellfish - A qualitative assess-
ment has not been made, though assumptions are pro-
vided in the EMPCP.
7) Minerals previously addressed.
B. Prepare Inventory and Analysis, of Natural Resources
1) It is felt that the ~xisting EMPCP contains an adequate
qualitative inventory in the ecosystem definitions; in
addition all ecosystems have been mapped to a one acre
size or less. A quantitative summation is provided on
page 20. Economic and recreation values of available
natural resources are addressed in pages 22-31 of the
EMPCP.
2) Min~rals have not been inventoried.
3) Tropical forests (other than mangrove tidal swamps)
are non-existant in Clearwater.
4) All waters of Pinellas County, including those in the
Clearwater service area, have been declared as "aquatic
preserves" by a special State Act for this County.
C. Identify Problem Areas and Areas of Critical State Concern
1) Problem areas in general and areas of particular concern
have been adequately addressed, especially in the man-
agement areas (pp. 52-58).
2) There are no "Areas of Critical State Concern" in
Clearwater that have been designated by the Cabinet,
although Cooper's Point was proposed and rejected by
DNR despite the presence of no less than seven rare,
endangered, or threatened species of wildlife, its
vast area of tidal swamp and flats, its location de-
picting a multi-county influence, and numerous letters
supporting the nomination from many surrounding
governments and agencies.
24.
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2.
Identify Goals and Objectives for Conservation of Natural
Resources (p. 9-72)
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A. Evaluate Existin Pro rams for Conservation of Natural
esources to etermJ.ne ConsJ.stency WJ.t :
1) State Comprehensive Plan elements on natural resources
- consistent.
2) Other state agency plans and programs - consistent.
3) Regional Plans, including 201, 208 drafts, and Coastal
Zone Management policy statements - consistent.
4) Consistent with most local plans although it may con-
flict in some areas with drainage plans and proposed
land uses in several local plans.
B. Determine Most Effective Use of Natural Resources
Adequately addressed except for minerals which are generally
lacking as noted previously.
C. Secure Public Participation and Input
This product is the result of continuous public input to
the City Planning Department regarding environmental prob-
lems in the community. Formal participation (public hear-
ings, etc.) was not undertaken in the preparation of the
EMPCP, however, local forums are planned, many speaking
engagements have resulted and been given to varied
organizations, and three" public hearings are scheduled
for receiving comments in the adoption process.
D. Establish Preliminary Goals and Objectives for Conservation
of Natural Resources
1) Goals, objectives, and policies with implementation
strategies are adequately addressed.
2) Timeframes, where feasible, are addressed in Addendum
A., Fiscal Considerations.
3. Develop Alternatives for Conserving Natural Resources
A. Identify Alternative Policies to Achieve Conservation
Objectives
The EMPCP adequately addresses this section in both the
public and private sectors.
B. Identify Conservation Management and Implementation Require-
ments
1) The EMPCP is consistent with conservation efforts of
the State, Region, and Pinel1as County.
25.
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2) The City has assumed the role of environmental manage-
ment except where the State exerts control in such areas
as sewage treatment plants, dredge and fill, and coastal
setbacks, although the City retains the "home rule"
privilege of enacting stricter standards than the State
or Federal governments.
3) Public education on conservation is a basic tenet of
the EMPCP.
4) Several recommendations have been made in the EMPCP in-
cluding the development of stricter floodplain regula-
tions, a wetlands protection ordinance, a sedimentation
and erosion control ordinance, etc.
C. This section discussed in Addendum A.
4~ Evaluate Alternatives for Conserving Natural Resources
A. Evaluate Impact of Proposed Conservation Alternatives
on:
1) Future land use - land use element presently being
prepared; will relate.
2) Mineral extraction - not applicable per previous
statements.
3) Agricultural practices - not applicable.per previous
statements.
4) Commercial, industrial development - no significant
impact projected, as adequate land is available for
these uses without significant adverse environmental
degradation.
S) Drainage, sewer, and water programs - As these elements
have the most significant environmental impacts at
present in this City, it is anticipated that existing
programs will be impacted by the EMPCP; Appendix A. of
the EMPCP evaluates the City's water quality problems
accurately and provides many recommendations which are
bound to have impacts on current drainage practices.
6) Area employment - no significant impact projection by
adoption of EMPCP.
7) Economic development goals - no significant impacts are
foreseen as EMPCP is more concerned with the quality
of urban growth rather than the quantitative aspects
of growth which is more closely related to economic
development and employment.
26.
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B. Evaluate Government Cost of Proposed Conservation Alter-
natives
Addressed in Addendum A.
C. Outline Economic Assumptions
Also addressed in Addendum A. as well as in the section
on Value Perspectives in the EMPCP.
D. Evaluate Consistency of Conservation Alternatives with:
1) Goals and Objectives in EMPCP for conserving natural
resources - consistent.
2) Other plan elements - not possible at this time.
3) Conservation programs and activities of other govern-
ments - consistent.
4) Requirements for State and Federal funding - appears
consistent; would depend on reviewing agency.
E. Review of Conservation Alternatives with:
1) Local governing body and other local officials - City
Commission accepted EMPCP on August 19, 1976 and
authorized puqlic hearings for its adoptions. Public
hearings scheduled fo~ January 18, 1977 (Clearwater
Planning and Zoning Board), February 3, 1977 (Clear-
water City Commission, and February 16, 1977 (Pinellas
Planning Council; local LPA). Subsequent adoption
hearings will follow PPC hearing. See Appendix C.
2) Citizen groups and specific interest grouys - Three
presentations have been made to local groups; one
presentation has been made to State FPZA; one presenta-
tion has been made to TBRPC; a citizen's forum on the
EMPCP has been scheduled by the Clearwater Area League
of Women Voters, and all groups have been invited to
attend the hearings noted in 4.E.l) above.
3) State and Regional agencies
Presently awaiting comments from these agencies.
5. Prepare and Adopt Conservation Element
Presently being undertaken. Specifics already addressed in
this outline.
27.
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APPENDICES
Appendix A.
Soil Potentials and Limitations
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Excerpt from "New North" Planning Study prepared by the
Clearwater Planning Department. Information based on the
Soil Survey for Pinellas County prepared by the Soil
Conservation Service, USDA in cooperation with the University
of Florida Agricultural Experiment Stations.
Appendix B.
Water Resources
Excerpt from "New North" Planning Study prepared by the
Clearwater Planning Department. The majority of this
report is original; however, data was extracted from the
following reports:
1. Water Resources in the Tampa Bay Region, Briley, Wild
& Associates, April, 1970.
2. Comprehensive Plan for Areawide Water Systems (draft),
Tampa Bay Regional Planning Council and Southwest
Florida Water Management District, June, 1974.
3. Master Drainage Plan for Clearwater, Florida, McFarland
- Johnson/Southeastern Engineers, January, 1974.
Appendix C.
Public notice regarding adoption of portions of the EMPCP.
28.
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Appendix A.
Soils Potentials and Limitations
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"New North" Planning Study, Clearwater Planning Department, 1974
29.
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Appendix B.
Water Resources
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APPENDIX C.
NOTICE OF PUBLIC HEARING
The Planning and Zoning Board of the City of Clearwater, Florida,
will hold a public hearing at the Commission Meeting Room, City
Hall, 112 S. Osceola Avenue, Clearwater, Florida, beginning at
1:30 P.M., Tuesday, January 18, 1977,
AND'
The City Commission of the City of Clea~vater will hold a public
hearing at the Commission Meeting Room, City Hall, 112 S. Osceola
Avenue, Clearwater, Florida, beginning at 12:30 P.M., Thursday,
February 3, 1977, for the purpose of considering the following:
Adoption of those portions of the planning
document entitled, Enviro~mental Management
Program and Conservation Plan, which deal
with environmental goals and objectives for
the City and the environmental management
policies, development standards, and
implementation procedures contained therein.
Consideration will also be given to the
tentative adoption only of the conservation
plan portions of this planning document which
are intended to become the conservation element
of the City's updated comprehensive plan in
compliance with the Local Government Comprehensive
Planning Act of 1975; thes~ pqrtions to be adopted
in final' at a later public hearing on which the
date is yet to be set.
These public hearings were authorized by the City Commission 1n a
public meeting on August 19, 1976. Public participation and
comments are encouraged.
,..'
City of Clearwater, Fla.
R. G. Whitehead, City Clerk
Warren Renando, Acting Planning Directo~
NOTE: This notice will be run ln the local newspaper on January 6,
1977.
42.
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to Coo?e.:1 s Bayou a.::d T-,;-?per Old T3.I::-::.:;::2_ Bay all t...~e via:,.... to the
Clearwacer-Tan:pa City Limits and Pinellas-}-Hllsborough County
_limits; tbence dt-:.e SOU1:~ to d:.e Coer':Dey C2~m?bell C.:..US ;:;~.:;2:Y;
th-ence "\'-'{esterly, Southvles~e!'ly ar..d Southerly along t~e shorelir:e
of Old Tampa Bay to Bellair Road extended; thence due West on
Bellair Road to tbe Seaboa:-d Coast Line Ra:h'oa,d tracks; ::...':tence
due Nort,.':1 to and along E't. Harrison Avenue to D Street; thence
due West approxi.rn2_tely 150 feet; L'1ence due Nortb to B Street;
tbence due West to 4L'1 Avenue; thence due North to A Street;
thence due East to E't. Earrison Avenue; t..~ence cue North to
~1Vat.l(ins Street; L'-lence clue "\Vest to \i{aters Street; thence due
North approximately 700 feet; thence West to the Intracoastal
Waterway; L'1ence SouL'l--Southwest approxiznately 6,000 feet;
thence due West to the Gulf of Mexico.
Section.L All :-equirec and optior:cal elements ar.e: parts of De
Comprehecsive F1an as required or allowed by the "Local Gover:::"'TIent
Comprehe:1si've ::?la:':'-i:iing _~c:: 0: 1975tf, a5 amended, \....hic~ are se~ 10rt.:: in
tbe attached e..~ibit adopted here:::, a:::-e }J,erehy adopted as Da=t of :.'-:is o:-c.1...:1ance~
Secticm S. .A.ll developmer.t undertaken and all action3 take:! .~ ::'eg2.l"d
to developme.::t orders, all land develop.!nel1t regulations e::acted or ame::ded
shall be consistent vlit..'-1 b'-lis Pla..'1 a::d sucb eleme:lt a~d ?art tbe:-eof i:J. regard
to t..1.e land cove:-ed by t.his ele:nent andpo:-tio:J.s of :he Comprenensi."re P12...."1
as hereby ado?ced shall be consistent ',vi:b. this Plan a:z:d e2.c:, eleme.:J.t a.:.:d
part ther eor.
Secticn 6. Notice af L~e p:roposed enact::nent of this ordL"":.ance has
been properly a.dvertised in a ne\.vspaper Ot gene=al ci::c~..uation :'11 acc::)rc.a::ce
win Section 166.041, Florida Statutes.
. Section 7. ...cuI public ilea r1;1g5 a:ld :?ublic
:)artic5.:);;:.tion ::ecui-:ed
. - -
pursua.:1t to Section 163.3181, Florida Stat'...ltcs, a::ld Sec~ion 163.313-1:, Florica.
Statutes, has precec>:::d t..~e conside=atio:l of this 0= dirla:.lce.
Secti~ T:1.is ordil:a.:J.ce is hereby ac.opted and sha.ll ~e considered
henceforth ac.cpted for tb.e pu,=poscs of Section 163.3134 (7), Florida 5taxtes,
and shall bec:):r~e ~.f.f;::ct:...,re irr~ec.ia~ely 1.l~';Or: i:s passage.
P_A...SSED 0)[ ?IRST ?,E...;.:Ji2'~G
February 1~, 1979
?...A..SSZD O:'.J SZ:CO:>.:D ...~~D ?L"i~-\.l,
READD'G A"l) _'.i::O.?T2D
1\larch 1, 1979
:\~":es:;
/3 I C:-_-.:..:~lc::; '2. L-;~:C~"':.s'"
/ s / Lucille Willlam3
City Cler}:
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HISTORIC PRESERVATION ELEMENT
TABLE OF CONTENTS
Historic Preservation. . . . . . . . . . . . . .1
Opportunities and Constraints. . . . . . .6
Implementation. . . . . . . . . . . . . . . . .10
Costs and Sources of Funds. . . . . . . .13
Eval uation. , . . . . . . . . . . . , . . . . . . .16
Appendices. . . . . . . . . . . . . . . . . . . .17
"
The preparation of this document was
financially aided through a Federal
Grant from the Department of Housing
and Urban Development under the Ur-
ban Planning Assistance Program auth-
orized by Section 701 of the Housing
Act of 1954, as amended.
Prepared by:
City of Clearwater
Planning Department
Clearwater, Florida
S
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August, 1977
Adopted pursuant to
Chapter 163 F. S.
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HISTORIC PRESERVATION
Goal:
To preserve structures and neighbor-
hoods made up of structures of archi-
tectural merit or historical significance,
Sufficient background information has
been gathered from survey and local in-
put to indicate that Clearwater'.s citizens
recognize the value of preserving our
common heritage. In 1957, the City His-
torical Committee was formed to collect
data and documents relating to our his-
tory and to establish a permanent place
for them in the library, if possible. The
concerns of the community have broad-
ened since then. Rather than being con-
fined to the printed word, there is a
need to integrate our physical heritage
with concerns of overall development.
The goals and objectives which follow
reflect that need.
Objective:
To encourage retention of identified
structures and neighborhoods in their
original form or with adaptation for
reuse consistent with neighborhood
characteristics and respectfu I of any
architectural significance.
Goal:
To create and maintain a collection of
documents and artifacts reflective of
the City's history and to provide means
for the publ ic to view such a collection,
Overall Goal:
To insure for ourselves and future gener-
ations that physical and cultural links
remain with Clearwater's past.
Objective:
To develop both permanent and travel-
ing collections which reflect Clear-
water's past and to provide an appro-
priate means for viewing them.
Overall Objective:
To promote an awareness of Clear-
water's historic and cultural past and to
integrate examples which reflect this
past with present and future develop-
ment.
A first step toward meeting these goals
is identifying our assets. As regards the
community's architecture, Volunteers
In Preservation (VIP), a group of in-
terested citizens, has conducted a pre-
liminary architectural survey of areas
east of Clearwater Harbor. The eastern
boundary of the study area is Highland
Avenue (north of Drew Street) or
Missouri Avenue (south of Drew
Street). The northern boundary runs
generally along a line extended east!
west along Fairmont Street and the
southern boundary is Belleair Road.
Within this area (shown on Map 1) lie
many of the older platted subdivisions
in the City. Other areas which should
be surveyed in the future include the
Bayview district and the old Del Oro
subdivision in east Clearwater,
Goal:
To preserve structures and sites which
have played a role or are associated
with persons who have played impor-
tant roles in national, state or local de-
velopment or are of architectural sig-
nificance.
Objective:
To identify places of significance, ac-
knowledge that significance by desig-
nation and to the maximum extent
possible, retain sites and structures
intact.
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The Suncoast Archaeological Society
has been a valuable resource in deter-,
mining the locations of native American
settlements within the City. This plan is
intended to include their aims and ef-
forts and to consider preservation efforts
of all cultures of equal importance.
, ,
Contributory: Building is consistent in
appearance to notable structures, having
in common such aspects as architectural
style, scale or building material. Adds to
continuity and character of neighbor-
hood containing notable structure.
Detractive: Not consistent with the
visual characteristics of nearby notable
structure. Is of a period, style or mate-
rial different enough from notable struc-
tures as to be easily recognized as "out
of place."
VIP preliminary inventory procedures
include checking a structure's age in the
tax records, exterior field inspection,
notation of significant features (type of
plan, style of architecture, construction
material) and taking a photograph of the
structure. One field sheet per structure
was prepared and sheets were aggregated
by district. Completed field sheets were
sent to experts for evaluation. Addition-
al research, such as deed searches is
underway to document probable candi-
dates for National Registration designa-
tion.
Outside the downtown area, ratings were
done by the historic sites specialist in
the Department of State. The rating
system used is slightly different from
that in the downtown area; however, the
effect is the same in that the structures
worthy of preservation are identified.
The State's rating categories are:
Architectural criteria for rating build-
ings include: exemplification of a rec-
ognized architectural style or period,
number of buildings with similar char-
acteristics, extent of exterior modifica-
tion and originality (uniqueness) for its
time and place. Ratings are subjective
and are dependent on the community's
past. A building rated "notable" in
Clearwater may not be in Appalachicola
which was settled at a much earlier time.
National Register Candidate: A structure
placed in this category should be con-
sidered eligible for placement in the Na-
tional Register. Further research should
be conducted in order to prepare a nom-
ination form,
Florida Master Site File Candidate: A
structure not considered National Regis-
ter eligible, but should be placed in the
Florida Master Site File at the State Di-
vision of Archives, History and Records
Management. Further research necessary
to complete the form for listing in FMSF.
Not all buildings were rated, but of
those that were, the categories used in
the downtown area were:
Notable: Building has architectural sig-
nificance, is a fine example of a period
or style, is unique or one of few in the
area and/or has a known relationship to
a historic person, place or development.
Contributory to Neighborhood: Any
structure which contributes to the his-
toric visual character of the immediate
neighborhood. This does not mean that
each neighborhood is of historic value at
this time. This can only be established
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through additional research. In the case
of Harbor Oaks, all contributory build-
ings should be considered essential to
the preservation of the neighborhood
which should be developed into at least
a Florida Master Site File district and
maybe a National Register district.
map which follows. As can be noted on
Map 2, proximity to notable structures
was influential in determination of con-
tri butory or detractive effects. The
evaluators also commented that one of
Clearwater's main assets is its trees, Old
oaks are found frequently in the older
areas of the City, and add a great deal to
Clearwater's visual ameneties. Another
comment related to the relative lack of
old buildings and distinguish architec-
ture.
Not Significant: All structures which do
not qual ity for any of the above cate-
gories.
It is important to note how an historic
inventory and rating differs from tradi-
tional public planning work. Land use
and related inventories are done to
quantify features such as structural con-
dition, number of parking spaces, extent
of public facilitiesand location of activi-
ties. To the greatest extent possi ble
these surveys are value-free; any reason-
able person asked to do the same thing
would reach essentially the same conclu-
sion. In an historic type of survey, value
judgments were made by trained experts
from the University of Florida's Depart-
ment of Architecture or the State His-
toric Preservation Office in Tallahassee.
Persons in these offices with training in
the field and who are using that training
daily in their professions, rated the
buildings on architectural merit. Local
historic importance was investigated by
VIP field workers.
Four of the seven neighborhoods have
been rated. One building, South Ward
School, was recommended for National
Register designation. Of the 20 buildings
recommended for inclusion in the
State's Master Site File, 14arein Harbor
Oaks. A list showing the results of these
ratings is included as Appendix II of
this plan.
Work has begun to document the down-
town post office and South Ward
School for listing on the National Regis-
ter of Historic Places. Other notable
structures are being documented for in-
clusion in the State Master Site File.
Preliminary inventory work was com-
pleted during the preparation of the
Clearwater Downtown Plan and renew-
al/redevelopment recommendations are
consistent with historic preservation sur-
vey findings.
Clearwater's central business district
served as the prototype for local historic
preservation planning. The inventory
and evaluation of Clearwater's C.8,D.
was completed before other areas of the
City were begun. Eleven structures were
evaluated "Notable," 57 "Contribu-
tory" and 35 "Detractive." Locations
of these structures may be found on the
The downtown area is unique in that
most of the buildings surveyed are pub-
I ic, institutional or commercially used,
Of the eleven notable buildings, only
two were built as residences. The other
areas surveyed are predominantly resi-
dential, The nature and patterns of own-
ership will dictate different preservation
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strategies for these diverse areas. Pre-
I iminary indications are that at least two
areas have concentrations of older
homes in heavily vegetated neighbor-
hoods. Recognition of the benefits of
preserving these areas was indicated by
the City Commission's directive in
July, 1974 to downzone parts of these
areas.
protect. Where possible, new technolo-
gies should be acknowledged.
The City also decides where and how
pu bl ic funds are to be spent. Just as the
choice of a freeway location can wipe
out a neighborhood, so can a neighbor-
hood be enhanced by choice of park lo-
cations within its boundaries, by repav-
ing streets, installing or improving side-
wal ks, or by tree planting programs. This
type of effect is more constructive than
zoning, which is primarily a passive ac-
tivity.
OPPORTUNITIES AND CON-
STRAINTS
The City has a number of tools available
to promote preservation. Zoning is the
most obvious one. Zoning to use in pre-
servation areas will limit the encroach-
ment of high rise buildings and redevel-
opment for commercial purposes, Pure
use zoning, however, carries with it the
implication of status quo, and some-
times this is not desirable. The proper
zone will allow a neighborhood to
change and adapt to changing economic
and market conditions, while at the
same time retaining desired features. If
too rigid a zone is applied, stagnation
and decline will result, exactly the op-
posite of the desired end.
limits to successful program implemen-
tation are largely plagued by lack of
citizen interest and market and financial
constraints. Without general publ ic in-
terest and the specific initiative of resi-
dents in preservation areas, action by
elected officials will probably not be
forthcoming. There are many demands
competing for staff time and officials'
interests. A district with plans of its own
should be prepared to develop a rational,
well thought out "squeaky wheel" pro-
gram to enl ist official support.
The City has other codes and ordinances
which affect neighborhood viability,
These affect off-street parki ng, tree re-
moval, lot mowing, safe housing, plumb-
ing, electrical and building renovations.
By regulating land development and
construction they affect the feasibility
of renovation. Building, plumbing and
electrical codes are establ ished to pro-
tect the health and safety of residents
and should not be compromised. They
should, however, be reviewed to make
sure that they allow use of the most cost-
effective methods and materials as they
The problems of market support and
financial constraints can be summarized
in one word - money. Preservation pro-
grams do not assume that publ ic agencies
must buy buildings in order to preserve
them. I n fact, the opposite may be true,
when the pu bl ic sector no longer needs
buildings, there is precedent for sale and
renovation as stores, offices, restaurants
or housing. The difference between a
preservation area and a slum is often
livability and viability. This means that
the buildings are not owned by absentee
landlords who are holding property for
eventual reuse of the land, that mortgage
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funds are available from banks for pur-
chase and improvement of structures,
and that overall vacancy rates in the
community are low, The neighborhood
has to be perceived in its Rresent form as
a good investment. Preconditions for
making this determination are that most
of the buildings are structurally sound
and general bel ief that neighborhood
physical and socio-economic conditions
will be maintained or (where indicated)
improved. Thisbeliefcan be fostered by
publ ic support and adoption of a neigh-
borhood plan,
Within the constraints of investor and
resident support, and the architectural
criteria outlined earlier, preservation
projects can proceed. The plan for pres-
ervation includes:
1. information gathering
2. preliminary determination of poten-
tials
3, public support
4. designated action.
The plan is written specifically to ad-
dress the goals and objectives cited on
page one. It is presented in phases, with
parallel functions or programs in each
phase to accompl ish the different ob-
jectives.
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HISTORIC PRESERVATION PLAN
HISTORIC PRESERVATION PLAN
Program "A"
Program "B"
Awareness
Historic Structures
I. INFORMATION
I. INFORMATION
Contact clubs, churches, schools, profes-
sional organizations, etc. regarding activ-
ities or interests in area of history.
Determine, through research and inter-
views, which structures in the city have
relevant association, research "Notable"
and "Contributory" structures (per
VI P inventory),
II. DETERMINE POTENTIALS
Establish mailing list of groups or indi-
viduals with special interest/expertise.
II. DETERMINE POTENTIALS
III. PUBLIC SUPPORT
For all such structures, determine loca-
tion, use, ownership, structural condition
and document historic importance. Set
up local designation and procedure for
implementation.
Organize speakers/skills bureau on se-
lected topics (architecture, church, rail-
roads). Expand resources with audio-
visual aids, materials put out by Nation-
al Trust for Historic Preservation. Devel-
op audio-visual presentation to go with
traveling collection.
III. PUBLIC SUPPORT
Encourage owners/users to work with
city or other groups on renovation,
sales, etc. Pursue National Register des-
ignation. Develop exterior marker I D's
for buildings. Prepare listing of buildings
and "Historic Trail." Determine criteria
for exterior modifications,
IV. ACTION/OBJECTIVE
Present speeches and audio-visual pro-
grams at schools, clubs, etc. Locate
automated audio-visual presentation at
antique shows, civic affairs, Establish
skills bank of those interested in renova-
tion/acquisition of old properties.
IV. ACTION/OBJECTIVE
Enforce historic landmark ordi nance
regulating exterior modifications of des-
ignated structures. Secure "right-of-first
refusal" contracts should buildings be
sold.
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HISTORIC PRESERVATION PLAN
HISTORIC PRESERVATION PLAN
Program "C"
Program "0"
Historic landmark Districts
Words and Objects
I. INFORMATION
I. INFORMATION
Evaluate and map areas covered by VI P
inventory, expand inventory.
Locate and catalogue city's current
collection of historic documents and
objects.
II. DETERMINE POTENTIALS
II. DETERMINE POTENTIALS
Outline areas, based on location of
structures, determine land use, structur-
al condition, public facilities, etc.
Determine "gaps" in current collection,
and means to fill them, Based on avail-
able and existing resources, determine
location for permanent and format for
traveling collection.
III. PUBLIC SUPPORT
Inform residents of preliminary neigh-
borhood designation. Enlist their sup-
port in preparing appropriate neighbor-
hood plan and developing land use
regulations appropriate to needs.
III. PUBLIC SUPPORT
Fill "gaps," Prepare traveling collection
for initial placement in high-travelloca-
tions along with an appeal for needed
articles and information to complete
collection. Begin "Oral History" com-
pilation.
IV. ACTION/OBJECTIVE
Formulate district plan. Adopt special
district land use ordinance. Program
capital improvements indicated in plan.
IV. ACTION/OBJECTIVE
Prepare oral history collection. Establ ish
site for display of permanent collection,
Arrange for special collections, loans,
etc. to expand the program and continue
interest.
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IMPLEMENTATION
outside the city, county, state and
national organizations.
The programs outl ined constitute the
plan activities. These activities will be
carried out by both citizens groups, ap-
pointed and elected boards, city staff
and outside agencies.
Program "B", Historic Structures, fo-
cuses on the buildings in the city and
has already been started by Volunteers
I n Preservation. I t is hoped that they
will continue the inventory and take the
lead in securing national and state regis-
tration responsibility. Limited City
support in copying and mailing should
continue in view of the number of work-
hours this group provides and the valu-
able publ ic service they perform, The
City would do well to encourage volun-
teer efforts such as this which provide
literally thousands of dollars worth of
free research.
Program "A", the awareness and public
information element, will have the City's
Historic Committee as its lead agency.
The initial mandate of the group, which
was to form a collection of historical
data, needs to be both supported and
expanded to meet this goal and restruc-
turing of the committee may be nec-
essa ry ,
Primarily this group will work within
the community. The awareness function
will necessit.ate a great deal of public
contact. Staff support services such as
typing, copying and mailing will need
to be provided, as well as limited funds
for travel reimbursement and dues,
books and subscriptions to periodicals
which will be necessary to provide re-
source materials, Work space within the
city will have to be provided. The bulk
of the work will be done by the com-
mittee, however, initially an employee
should be assigned for a short period of
time to "get the ball roll ing." This is
not unlike the way planning in many
cities started, with city support of
citizen initiative.
Enforcement of the historic landmark
ordinance falls under this section of the
plan. Due to legal requirements, the
secretary of the board should be a city
staff person, however, board responsibil-
ities alone would not require a full-time
position. It is expected, however, that by
the time the third phase of the historic
planning effect is underway, the volume
of work generated by the four programs
will more than justify the efforts of a
staff person assigned full-time to imple-
mentation of the plan. If volunteer help
is not available to complete the second
phase of the plan, it will be necessary to
hire help. Phase I, determination of
structures, could be done by engaging
a team of university architectural stu-
dents for a short-term "bl itz" of the
area. Phase II, preparation of detailed
information on notable structures,
could probably be handled by one or
two university interns on summer work
programs.
One element of this task will be liason
and coordination among the different
preservation groups such as the South
Ward School Preservation Committee,
Volunteers In Preservation, Junior
League, etc. Another area of contact
will be with preservation organizations
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Coordination with state and national
agencies will be required to secure ap-
propriate designations. local plans will
have to be coordinated with state, re-
gional and county plans, and plans of
neighboring jurisdictions, including the
Pinellas County Historical Commission
and coastal zone management plans. A
list of historic sites in the County was
prepared in the early 1970's and was
included in Coastal Zone Manag~
Pol icies and Areas of Protection pre-
pared by the Pinellas County Planning
Department in 1976. An exert from that
report with recommended policies and
sites in Clearwater is included as Appen-
dix III of this report.
The historic district overlay would serve
to further specify permissible lot cover-
age, setbacks and land use. Advantages
of overlay zones are that the historic
district can more easily blend in with the
surrounding area. Anything not specifi-
cally changed in the historic district will
be as permitted as in the base zone. On
the other hand, however, unique historic
districts can be written which contain
all of the specifications for land use in
the district. This may result in require-
ments tailored exactly to the purpose,
but also could end up overspecifying and
dupl ication of effort.
More than one historic district zone may
be needed to account for the different
types of areas. Whatever the manner of
regulation chosen, historic zoning dis-
tricts must be written with an equal view
toward compatibility of regulations with
the desired ends, logic and ease of ad-
ministration and rights of property
owners.
Program "C", Historic landmark Dis-
tricts, will be the responsibility of the
planning board and staff. This program
focuses on older buildi-ngs in a neighbor-
hood context. As set out in the historic
landmark ordinance (Appendix I V of
this report), the planning board will
have the responsibility of recommending
landmark district designation to the
City Commission. Planning efforts are
initiated once historic structures are
identified. The aim of planning efforts
is to insure that development allowed
in the district will fit in with existing
structures and that pu bl ic improvements
are made to enhance neighborhood
quality, while at the same time, acknowl-
edging that the economic viability of
land use must be maintained.
The zoning regulation needs to be based
on a plan. Such "mini plans" will in-
clude many of the aspects of the City's
overall comprehensive plan but will fo-
cus on specifics of urban design and cap-
ital improvements. As much as technical
expertise is needed, participation by cit-
izens who are residents of the area and
the general community will be required
to prepare plans which address both
physical needs of the neighborhood and
the desires of persons who will be most
affected by the plans. Citizens meetings
will be held subsequent to the inventory
stage but prior to actual historic area
designation.
Historic landmark districts may be writ-
ten as overlay zones, The base zoning
will be consistent with predominant
land use in the area, for example, CG in
the downtown area or RS-75 in Harbor
Oaks, if these areas are so designated.
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Intergovernmental coordination will be
effected in some areas of capital im-
provements planning (such as roads)
which have extra-territorial implications
and where a proposed historic district
borders on adjacent city. Considerations
such as coastal zone management and
flood protection will be included where
applicable.
of supermarkets, shoppi ng malls and
credit cards. The theme collections
should have some portable display capa-
bility for objects and pictures, with an
oral history tape compiled on the sub-
ject to go along with it. On the "story
tape" would be the actual voices of
shopowners and consumers tell i ng what
this aspect of early life was like,
Program "0" is titled Words and Objects.
This section covers the documentation
and collection activities. The City's his-
toric collection wi II consist of pri nted
matter and photographs, artifacts and
oral history. In this section, it will work
to the City's advantage that its develop-
ment occurred relatively recently. The
collection task may thus be simplified.
In the area of oral history it should be
possible to reach residents who either
remember directly the City as it was, or
heard stories from their parents and
grandparents which would provide im-
ages of Clearwater's early days. In this
program area especially an historic
perspective is necessary. Rapid changes
in technology make obsolescence the
norm, Things which are today dismissed
as "quaint" or "nostalgic" because re-
lated articles are currently available
may, in fact, be important in a dozen or
so years when their recognizable prede-
cessors have left the scene. For example,
there is a whole generation of children
growing up right now who have never
seen a milk bottle,
The work of evaluating the existing in-
ventory and indicating where the collec-
tion should be expanded should be done
by the City Historic Committee. This is
an expansion of their original mandate
from the City Commission. Another
reason for assigning this group primary
responsibility is the close relationship
between this program and program "A",
publ ic awareness. The information on
citizens' interests gained from the first
(survey) phase of that program can be
used to develop collections that are
directly responsive to expressed needs.
Once the first and second phases are
complete, the initial direction of the
collection effort will be established, At
this time, staff assistance will probably
be requ i red to physically prepare the
permanent and traveling collections.
This person would also be called upon to
assist in researching the history of build-
ings for State Site File or National Reg-
ister designation, although an internship
program and/or volunteers may be more
appropriate for this purpose, A logical
department for this person to be placed
with is the library, since that is where
the permanent collection may reside.
Unless the currently overcrowded con-
ditions in the library are alleviated, how-
ever, the staff and collection may have
to be attached to another department,
The collections should be coordinated
by themes, such as medicine, shopping
or family life, In view of Clearwater's
expected predominance in retail trade,
a typical collection might focus on
shopping in the city before the advent
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The liason and information function
could direct this position toward place-
ment in the service and information di-
vision under the central services depart-
ment, or it could be placed under the
umbrella of the City Manager's office.
Wherever it is located, it is assumed that
the person holding this position would
function with little supervision. The
nature of h is/her work would necessitate
a great deal of contact both inside and
outside the City. Clerical support could
perhaps be shared.
the community, it is reasonable to as-
sume that this will be forthcoming.
Where possible, however, estimates are
also made of replacing volunteers with
paid professionals.
In the first two phases of the plan, vol-
unteers and existing staff can complete
all of the work elements. Analysis of in-
ventory work is expected to continue as
a service provided by the state. Planning
work required in Program "C", historic
landmark districts, can best be accom-
plished as part of the city's on-going
planning programs. If outside consul-
tants are hired, it is expected that costs
would be about $10,000.00 per district.
It must be recognized that planning
tasks of this nature emphasize commu-
nity background knowledge and related
plans, rather than specialized engineer-
ing'or technical abilities, Under normal
circumstances, the in-house alternative
will be preferred.
If it is determined that a permanent col-
lection is required, it could be housed in
an expanded City I ibrary. If the physical
plant of the main I ibrary is not enlarged,
location of a permanent collection, staff
or material storage there is out of the
question. Ideally, then, a permanentcol-
lection would be housed in a structure
which provides some meeting facilities,
is easily accessible to pedestrians and
automobiles, has significant visibility,
and yet is of a scale small enough to
maintain its identity. In the choice of a
site, cost will also be a significant crite-
rion, Ideally, the site would be located
in or near buildings of historic character,
with appropriate vegetation and land-
scaping. Investigation of the proper lo-
cation can be left until late in Phase I of
this program, At that time, a more ac-
curate assessment of the space require-
ments can be made.
I n later phases of the plan, a staff person
will be needed to work with the board,
coordinate vol unteer efforts and oversee
the collections. Such a staff person
would logically be assigned to the li-
brary, and would be a professional per-
son with at least a bachelor's degree or
equivalent and some experience in the
field.
The source of funds for implementation
of this program is the City's operating
budget. Personnel costs for the staff po-
sition will be approximately $16,400,00
for a person at pay grade 57, step 3 - 4,
Additional budget impact to cover half-
time assistance of a clerk typist, phone ~
and other computed Central Services ~
charges will be approximately $11 ,000.00 0
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COSTS AND SOURCES OF FUNDS
A low public cost of implementing the
historic preservation plan is projected
based on the assumption of a high rate
of volunteer participation. Based on past
experience and interest demonstrated in
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per year bringing the annual direct and
indirect operating costs to approximately
$27,400.00.
Capital costs would be incurred for of-
fice equipment (desks, chairs, file cab-
inet) and for construction of display
cases for permanent and travel ing collec-
tions. Specialized audio-visual equip-
ment may be needed, but estimation of
such costs is premature at this time. On
the whole, when considering the value
gained by the community, costs will be
negligible. No funds are programmed for
acquisition of museum exhibits. Dis-
plays will rely on donations, reproduc-
tions of documents and pictures, and
sharing of people's time and experience.
If purchases are necessary, it is hoped
that private funds can be raised. I t may
be possible to have groups such as the
Chamber of Commerce sponsor collec-
tions geared to their members' interests.
Such groups could take the lead in ac-
quiring materials and contacting people
who are familiar with the subject.
Community support has been instru-
mental in initiating preservation efforts,
it is hoped that with City support added,
and organized programs being adopted,
assistance can be encouraged and chan-
nelized into the most needed areas, If
funds are needed, it might be possible to
use public and private sources to share
the burden. One of the by-products of
Program "A", Awareness, should be es-
tablishment of contacts for fund-raising.
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",'V TIMING OF IMPLEMENTATION
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Program "A" Program "8" Program "C" Program "0"
Words and
Steps Awareness Structu res Districts Objects
T+I T+(On) T+3 T+2
Contact Identify Evaluate Catalogue
Ph ase All
II T+2 T +1 (On) T+4 T+3
Mailing Research Plan( 1) Determ i ne
List Inventory Needs
III T +3{On) T +3(On) T+5 T+6
Organ ize Designation Local Fill Gaps,
e Speakers Input(1) Prepare
Travel i ng
Collection
IV T +4(On) T +4(On) T+7 T +1 O(On)
Outreach Enforce- Plan Oral History
Activities ment Adopt( 1) Permanent
Collection
Key: T == Date of Plan Adoption
T + 1, 2 , ,
numbers signify 3 month time spans
(Quarters), Example T +4 = one year
after adopti on
(On):
Indicates that some elements of this step will
be on an on-goi ng natu re
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Implementation of the plan will require
in immediate organization, with general
public awareness programs on-line with-
in the first year, The results of other
programs will emerge more slowly, with
the traveling collection going out 18
months after adoption. During the first
year, efforts will focus on coordinating
action within the "in-group," those
persons who are now sensitive to his-
toric preservations and who are willing
or have demonstrated an interest in
preservation. Outreach activities will
have the effect of expanding knowledge
beyond those persons who al ready share
common interests.
Work on Programs "B" and "C" could
start immediately, as sufficient back-
ground data has been developed to be-
gin identification and evaluation in some
areas of the City. The reason for the
delay in beginning Program "C", Dis-
tricts, is the necessity of schedu ling
these additional planning functions into
the overall workload. Both Programs
"B" and "C" have feedback loops in-
corporated within them. Generally,
structures and districts will be taken one
at a time. The loops in the program
signify that these activities will contin-
ue until all of the structures and
neighborhoods identified in the earlier
phase have been addressed.
EVALUATION
Implementation of this plan should not
be construed as producing inflexible
end-stage products, but rather as setting
the framework for continuing refine-
ment. Although the programs are de-
signed to develop products which are
responsive to publ ic demand, tastes and
other considerations change over time,
Methods must be included to give indica-
tions of program effectiveness. Such
methods would include:
1. monitoring requests for information
2. continuing contact with schools or
other educational institutions
3. keeping up with current affairs as
they relate to history (for example,
an audio-visual program could be
built around the theme of energy
conservation stressing energy re-
sources of early settlers)
4, periodic surveys of users of services.
Evaluation of the structurally and neigh-
borhood oriented programs should in-
cI ude:
1. monitoring land use changes and
conformance with the plan in his-
toric districts
2. periodic review of architectural de-
sign standards and proceedings of
historic district review board
3. monitoring of property transfers in
historic districts or transitional
areas.
Through evaluation, regulations and
programs can be "fine-tuned" to insure
that they are responsive to local needs,
Problems can be identified and, it is
hoped, solved, and cost-effectiveness
of expenditures can be determined. By
including the evaluation and feedback
procedures in the programmed activi-
ties, a self-correcting :ystem will be es-
tabl ished.
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APPENDICES
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Illustrations of Typical
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APPENDIX II
NOTABLE STRUCTURES, DOWNTOWN AREA
Muscarella, Perenich & Carroll Law Offices 29 N, F t. Harrison
Downtown Post Office 636 Cleveland St.
Calvary Baptist Church 331 Cleveland St.
City Hall 112 S. Osceola
Peace Memorial - Roebling Hall 105 S. Ft. Harrison
Peace Memorial Presbyterian Church 110 S. Ft. Harrison
Mary Brown House 119 S, 'Osceola
Thompson & McKinnon 411 Cleveland St.
e
Coachman Building 503 Cleveland St.
Old County Courthouse S, Ft, Harrison
Seven Gables
Source: V, I, p, Historic Inventory 1976
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CONTRIBUTORY STRUCTURES DOWNTOWN AREA
Maas Bros.
Chamber of Commerce
128 N, Osceola
Clearwater Publ ic Li brary
114 N. Osceola
Cooper/Rives Office Building
118 N. Ft. Harrison
Bruce Taylor
121 N. Osceola
Wolf Bros.
1 N. Ft. Harrison
Coachman Park
Bayfront
Star Furniture
133 N. Ft. Harrison
Vacant
105 N, Ft. Harrison
First National Bank
400 Cleveland St.
Town House Restaurant
410 Cleveland St.
Yacht Club
418 Cleveland St,
Rose Bootery
420 Cleveland St.
Ritz Theatre
22 N, Ft. Harrison
Law Office (Wolfe)
16 N. Ft. Harrison
Vacant (Cannon Music)
24 - 26 N, Ft. Harrison
Powder Puff Beauty Salon
32 - 34 N, Ft. Harrison
Janelli Opticians
36 - 38 N, Ft. Harrison
Dwelling (Behind library)
326 Sunset Ct.
Coastal Liquor
133 N, Garden
Bank of Clearwater
600 Cleveland St.
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CONTRIBUTORY STRUCTURES DOWNTOWN AREA (Cont'd)
Gulf Coast Hardware
34 N. Garden
616 - 626 CI eveland St.
Kravas Building
Carter's Army/Navy
Ruder Building
433 Cleveland St.
628 - 632 Cleveland St.
First Federal Savings & Loan Assoc.
21 S, Osceola
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Half Size Dress Shop
415 Cleveland St.
Dervish Bros. Steak House
635 Cleveland St.
Parking Lot - Police Station
644 Pierce St.
Baskin Building
115 - 125 S, Garden
First Federal - Drive In
100 $, Ft. Harrison
McCrory's Dime Store
503 Cleveland St.
EI ks Lodge
1525 Franklin St.
Manoscope Building
220 - 222 S, Garden
Grey Moss Inn
201 S, Ft, Harrison
Lawyer's Title Insurance
500 S, Garden
Pinellas County Jail
Markley St,
Legal Aid Society
422 S, Ft. Harrison
County Technical Services Building
440 Haven St.
County Utilities Building
310 Haven St.
New County Courthouse
31 5 Haven St.
Office Building
301 Pierce St.
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CONTRIBUTORY STRUCTURES DOWNTOWN AREA (Cont'd)
Oak Cove 210 S, Osceola
Ft. Harrison Hotel 210 S, Ft. Harrison
Law Offices 305 S, Osceola
St. Petersburg Times Building 311 S, Osceola
Fire Station 1 610 Franklin S1.
Freight Depot 635 Franklin St.
Moose Lodge 652 Court S1.
Red Cross 624 Court St.
Residence 635 Court St.
e Railroad (Passenger) Depot 655 Court St.
Wileman, Rowe, Weidemeyer 319 S, Garden
Slaggers 610 Court S1.
Fencon Building 601 - 607 Court St.
American Cancer Society, etal 201 - A Garden
Source: V, I, p, Historic Inventory 1976
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DETRACTIVE STRUCTURES DOWNTOWN AREA
Yankee Clipper
47 N. Ft. Harrison
Old Fire House
33 N. Garden
Plasma Corp.
534 Cleveland St.
Jimmie Hall's
155 Hendricks
Aircraft-Marine Products
715 Grove
Suncoast Supply
711 Grove
People's Furniture
716 Lau ra
Capital Theatre
403 Cleveland St.
Smith Jewelry
409 Cleveland St.
Carousel Beauty Shop
413 Cleveland St.
Robert's Shoe Warehouse
645 Cleveland St.
Parking Log
Corner Park & East
Big Store Garage
620 Park
Royal Castle
725 Cleveland St,
Ochs Used Cars
706 Park
Bilgore Packing Shed
Pierce St.
Nino's Restaurant
101 - 111 S. Garden
Thrifty Discount Drugs
531 Cleveland St,
M - M Consignment - Canner Jewelers
516 Park St.
Taxi Stand Bar
530 Park St.
ABC Music
605 Cleveland St,
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DETRACTIVE STRUCTURES DOWNTOWN AREA (Cont'd)
St. Clair Equipment 612 Franklin St.
Bilgore-Tampa Cigar Co. 700 Franklin St.
World Wide Movers 701 Franklin St.
Kitchen Cabinets 703 Franklin St.
Select Auto Sales 304 S. Myrtle Ave.
Vel Von Paint Co, 708 Court St.
R & R Bike Repair 310 Myrtle Ave.
Vanity Land Cabinets 425 Franklin St.
e Residence 642 Chestnut St.
Apico 703 Court St.
Apartment House 633 Cou rt St.
Harpham I nsu rance 600 Court St.
Mr. D's Other Place 606 Court St,
Source: V, I, p, Historic Inventory 1976
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/qV' CONTRIBUTORY TO NEIGHBORHOOD
.",J
U Style or
District Address Yr.BIt. Use Significance
C,C, 210 Betty Lane 1925 Residence Col, Revival
C,C, 222 Betty Lane 1925&32 Residence Col. Revival
C.C. 320 Betty Lane 1937 Residence Col. Revival
C.C, 300 Betty Lane 1920 Residence Med, Influence
C.C, 211 Prescott Avenue 1928 Residence
C,C, 305 Prescott Avenue 1927 Residence
C.C. 315 Prescott Avenue 1924 Residence
C.C, 414 Prescott Avenue 1925 Residence
C.C, 416 Prescott Avenue 1925/40 Residence
C,C, 214 N, Lincoln Avenue 1925 Residence Bungalow
C,C, 300 Lincoln Avenue 1924 Residence Bungalow
C.C, 306 N. Lincoln Avenue 1928 Residence
C,C. 311 N. Lincoln Avenue 1925 Residence
C.C, 314 N, Lincoln Avenue 1925 Residence
e C,C, 312 N. Jefferson Avenue 1935 Residence
C,C, 301 Madison Avenue 1930 Residence Bungalow
C,C, 1146 Drew Street 1924 Residence Prairie Inf.
C,C, 1136 Jackson Road 1926 Residence Bungalow
C,C, 1151 Jackson Road 1930 Residence Prairie Inf.
C,C, 1210 Jackson Road 1925 Residence Early Mayor
C,C, 1245 Jackson Road 1922/26 Residence Prairie Inf.
H.O, 209 Turner Street 1915 Residence
H.O. 109 W, Rogers Street 1920 Residence
H,O, 613 Oak Avenue 1925 Residence
H.O, 615 Oak Avenue 1900 or Residence
Earl ier
H,O, 702 Hamilton Crescent 1900 Residence
H.O, 611 Bay Street 1920 Residence Bungalow
H,O, 211 Pine Street 1920 Residence
H,O, 706 Oak Avenue 1919 Residence
H,O. 704 Oak Avenue 1910 Residence Bungalow
H,O, '705 Bay Avenue 1920 Residence
H.O, 700 Bay Avenue 1923 Office
H,O. 700 Orange Avenue 1929 Residence
H.O, 615 Orange Avenue 1925 Residence S
H,O, 422 Jeffords Street 1918 Residence Bungalow
H,O, 420 Jeffords Street 1925 Office "Boom" Type
H,O, 322 Jeffords Street 1925 Office/Res, ;
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1qV' CONTRIBUTORY TO NEIGHBORHOOD (Cont'd)
..,J
U Style or
District Address Yr,Blt. Use Significance
H.O. 714 S. Fort Harrison Ave. 1939 Office Art Deco
H.O, 410 S, Fort Harrison Ave. 1947 Office Art Deco
H,O. 433 Druid Road 1925 Residence
H.O, 423 Druid Road 1925 Residence
H.O. 416 Druid Road 1918 Residence
H.Q. 430 Druid Road 1909 Residence Bungalow
H,O, 427 Druid Road 1937 Residence
H.Q, 410 Druid Road 1925 Residence
H.Q. 411 Druid Road 1924 Residence
H,O, 401 Druid Road 1928 Residence Prairie School
H.Q. 318 Druid Road 1925 Residence Prairie School
H,O, 310 Druid Road 1925 Residence Tudor
H,O, 308 Druid Road 1925 Residence
H,Q, 301 Druid Road 1915 Residence Med. Revival
e H,O. 302 W. Druid Road 1925 Residence
H.O. 419 Jasmi ne Way 1925 Residence
H,Q, 418 Jasmine Way 1925 Residence
H,Q. 410 Jasmine Way 1926 Residence Med, Revival
H,O. 409 Jasmine Way 1924 Residence
H,O, 403 Jasmine Way 1925 Residence
H.Q, 315 Jasmine Way 1925 Residence
H,O, 311 Jasmine Way 1929 Residence
H,Q. 306 Jasmine Way 1920 Res i dence
H.O, 307 Jasmi ne Way 1920 Residence
H,O, 305 Jasmine Way 1925 Residence
H,Q, 803 S, Druid Road 1915 Residence
H,O, 301 Jasmine Way 1925 Residence Bungalow
H,O, 908 S, Fort Harrison Ave, 1940 Office Art Deco
H,O, 906 S, Fort Harrison Ave, 1948 Qffice Art Deco
H,Q, 429 Magnolia Drive 1926 Residence
H.Q, 423 Magnolia Drive 1926 Residence
H,Q, 410 Magnolia Drive 1925 Residence
H,O, 415 Magnol ia Drive 1925 Residence
H,O, 403 MagnoliaDrive 1925 Residence Prairie School
H,O, 322 Magnol ia Drive 1895 + Residence
AI terations S
H,Q, 315 Magnolia Drive 1925 Residence
H,O, 313 Magnolia Drive 1924 Residence
H,Q, 308 Magnolia Drive 1925 Residence Prairie School ;
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-J
U Style or
District Address Yr.BIt. Use Significance
H.O. 311 Magnolia Drive 1925 Residence
H.O. 909 W. Druid Road 1915 Residence
H,O. 1001 W. Druid Road 1925 Residence
H,O. Pier, Magnol ia Drive Public?
H,O, 1040 S. Ft. Harrison Ave. 1953 Apartments Contemporary
H.O, 423 Lotus Path 1924 Residence
H,O, 414 Lotus Path 1926 Residence
H.O, 409 Lotus Path 1959 Residence Contemporary
H,O. 301 Lotus Path 1926 Residence
H,O. 205 Magnol ia Drive 1925 Residence
Osc. 308 N. Osceola Avenue 1900&30 Apartments
Osc. 1402 Sunset Drive 1900 Residence
Osc. 302 Cedar Street *4 1925 Apartments
e Osc. N. Ward School 1930 School
(N, Ft. Harrison)
Osc, 509 Nicholson Street *1 1919 Residence Prairie School
Osc. 811 N. Fort Harrison Ave. 1919 Apartments Bungalow
Osc. 905 N. Fort Harrison Ave. 1915 Comm, Farmhouse
Osc, 303 Palm Bluff 1925 Residence Bungalow
G reenwd. 912 Drew Street 1900 Residence
Greenwd, 808 Eldridge Street 1910 Residence
Greenwd, 809 Eldridge Street 1925 Residence Bungalow
Greenwd. 906 Eldridge Street 1926 Residence Bungalow
Greenwd. 905 Hart Street 1925 Apartments Bungalow
G reenwd. 911 Hart Street 1926 Residence
Greenwd, 912 Jones Street 1924 Apartments Prairie Inf,
Greenwd, 304 Pennsylvania Ave. 1925 Residence Bungalow
Greenwd. 309 Pennsylvania Ave. 1907 Apartments
Greenwd, 311 Pennsylvania Ave. N,A. Residence
Greenwd. 406 Pennsylvania Ave. 1915 Residence Bungalow
Greenwd, 501 Pennsylvania Ave. 1920 Residence Bungalow
G reenwd. 1014 Pennsylvania Ave. 1925/42 Church
G reenwd, 901 Plaza Street 1915 Residence
G reenwd. 904 Plaza Street 1925 Residence Bungalow
Greenwd. 210 Vine Street 1900 Residence S
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APPENDIX III
GEOGRAPHIC AREAS OF PART1CUL~R CONCERN
K. Historic Sites
Introduction
In the early 1970's a County-wide survey of historic sites and
buildings was initiated by Mr. Tom Baughman then employed by the
Pinellas County Historical Commission. Little is known about the
criteria used for I isting properties other than a requirement that
the site be at least fifty years old.
In 1976 the Pinellas County Planning Department reviewed the
I ist for the purpose of the Coastal Zone Management Program and found
it simply named sites and structures providing no description of the
subject property or criteria for its selection. Secondly, the list
contained scant mention of archeologically significant Indian encamp-
ments and mounds.
In order to partially correct the deficienciQ_~h of the
subject properties was visited and PhotOgraPhe~W'FI'~,e,r'PO$..S)b.,I.e, the
occupants of the property were interviewed. T.....~o~ som~^ 'illfRnna-
tion on the properties historical texts were consMe~ "'~ (:':~1 ~
, ,J~~
Priorities for Preservation ~~
A requirement of the Coastal Zone Management Program is to
prioritize coastal resources. Recognizing the limitations of making
value judgments based on I imited and incomplete research, the following
priorities have been established for classifying historic sites:
Pl"ior i tv I
Priority I sites are those which are I isted on the National
Register of Historic Sites. Acceptance for I isting on the National
Register signifies that documentation of the sites has been completed
and that the site has historic merit warranting its designation. Eleven
Pinellas County sites have been 1 isted on the National Register.
Priol"itv 2
Nineteenth Century homesteads located in rural areas of the
County undergoing subdivision redevelopment have been designated as
Priority 2. Four homesteads have been designated for Priority 2.
Priority 3
All other historic buildings and sites have been designated
Priority 3. inis includes Some very important properties, several of
SOURCE: Coastal Zone Management Policies and Areas of Concern,
Pinellas County, Florida - 1976, 31
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which are expected to ~Itimately qual ify for the National Register of
Historic Sites. This group also includes some properties of dubious
value.
........
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Scecific Site Locations
The individual historical sites are located on the quadrangle maps
by means of the following mapping key.
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Priority 3
Site #98
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~ CLEARWATER AREA
# 2. The Kapok Tree
North Haines Road, Clearwater
Local landmark
Cited - National Arborist Association
Planted by D. C, McMullen from seeds
sent from Brazil by his brother,
Dr. Brown
Priority 3
# 3. Ward McMullen House - 1896
McMullen Booth Road - County
Served as first Sylvan Abbey Church
Hard pine, tongue and groove, 20 acres
Occupied - descendant original family
Fair condition - typical of period
Priority 2
e
# 4, Sylvan Abbey Cemetery
Oldest cemetery in Pinellas County
Gravestones date to 1850's
Early pioneer families
3-acre pioneer section surrounded
by moder cemetery
Well maintained
Priority '3
#12, McMullen/Coachman Cabin - 1856
Oldest house in Pinellas County
Homestead of Capt. James P. McMullen
First of seven McMullen brothers,
Came from Georgia in 1851
House in good condition - unoccupied
Preserved by Coachman Properties,
Clearwater
Priority 1
e
#13, The McMullen Cemetery - 1881
Northeast Coachman Road, Clearwater
Private cemetery of the extended
McMullen family, Many pioneer settlers
Well maintained
Priority 3
#16. Site of Fort Harrison - 1841
Turner Street - Clearwater
Built towards the end of the Seminole
Indian War to house troops ill with
sub-tropical diseases,
Wooden stockade - Names for General
William Henry Harrison - Abandoned 1842
Priority 3
33
~ #17, Plumb Sisters House - 1890's
1070 Lakeview Road, Clearwater
Home of first teacher, Clearwater
Public school and present occupant
Miss Jenny Renolds Plumb
Fair condition
Priority 3
#18, Clearwater Harbor Post Office Site - 1859
Turner Street, Clearwater
Site of Pinellas County's first Post Office
Historical marker
City park - well maintained
Priority 3
e
#19. Best Bar - 1880's
South Fort Harrison Avenue, Clearwater
Typical commercial structure of the period
Occupied - fair condition
Priority 3
#21. Eugene Pierce/Kidder House - 1890's
602 Lime Street, Clearwater
Two of Clearwater's former mayors
lived in this house
Occupied - good condition
Priority 3
#23. South Ward School - 1906
The original Clearwater High School
Contains four classrooms
In use - good condition
Priority 3
#24. Old Fire House
North Fort Harrison Avenue, Clearwater
Converted to modern law offices
Occupied - good condition
Priority 3
#25. Morton F. Plant House - 1890's
1570 Alexander Road, Belleair
Victorian House owned by the son of
the railroad magnate
Good condition - occupied
Priority 3
e
#26, Gray Moss Inn - Pre-1914
215 South Fort Harrison, Clearwater
Elegant turn of the century hotel
First in downtown Clearwater
Formerly called the Verona Inn
Occupied - good condition
Priority 3
34
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#27. Sea Captain's House
North Osceola Avenue, Clearwater
Distinctive turn of the century
architecture. House has'~idow's walk,
Occupied - good condition
Priority 3
#28. The Pinellas County Courthouse - 1918
315 Haven Street, Clearwater
Local landmark
In use - fair condition
Priority 3
#29. Harbor Oaks, Historic Neighborhood - 1920's
South Fort Harrison Avenue - Clearwater
Neighborhood of distinguished homes
most designed by individual architects
representing post World War I architecture
Priority 3
#30, Spottis Wood/Old Roebling Estate - 1931
Harbor Oaks, Clearwater
Donald Roebling of Roebling Steel -
Inventor of the "alligator" amphibious
tank of World War II
Priority 3
#31. Century Oaks/the Brown Estate - 1928
Harbor Oaks, Clearwater
Distinctive architecture
Occupied - good condition
Priority 3
#32. The Taver Bayly House - 1920's
Harbor Oaks, Clearwater
Typical of the "Florida bungalow"
style of architecture popular in area
Priority 3
#36. The Masonic Temple
402 Garden Avenue, Clearwater
Now Lawyers Title Insurance
Noteworthy Architecture
Good condition
Priority 3
#37. The Fort Harrison Hotel - 1926
South Fort Harrison Avenue, Clearwater
Florida "boom time" resort hotel
Important landmark in downtown Clearwater
Occupied - good condition
Pirority 3
35
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#38. Calvary Baptist Church
331 Cleveland Street, Clearwater
Distinctive Architecture
Local landmark '~
Good condition
Priority 3
#39. The Coachman Building - 1916
Cleveland Street, Clearwater
S. S. Coachman was a pioneer merchant
who settled in Clearwater in 1886;
built the largest store in town on
this site.
Local landmark
Good condition
Priority 3
#40. Peace Memorial Church - 1922
110 South Fort Harrison Avenue, Clearwater
Dedicated in 1926 as a memorial to the
heroes of World War I
Windows pictorially depict this theme
Good condition
Priority 3
#41, Guarantee Trust Bank - 1920
411 Cleveland Street, Clearwater
Interesting architecture of the period
Presently houses a brokerage firm
Good condition
Priority 3
#42. Clearwater Post Office - 1933
650 Cleveland Street, Clearwater
WPA project. Distinctive pressed shell
block and Spanish tiles.
Local landmark
Good condition
Priority 3
36
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38
APPENDIX IV
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Chapter 1.
Historic Conserlation Chapter
Section 1:
Purpose and Inten~.
It is intended to ?e=-~: the cie~i~at~cn 0: i~d~vic~al
sites and str~ctures having historic or cultural si~ificance ~,d
the creation of historic dist=icts in general areas or for indivi-
dual struc~es and premises officially designa~ed as hav~ng historic
or cultural significance. Such designations and districts are
intended to protect against destr~ction of or enc=oac~ent upon
such sites, s~ructures and dist=icts, to encourage uses which will
lead to their continuance, conservation and imp=ovement in a manner
appropriate, to the preservation of the cultural and historic
heritage of ~~e City, to prevent creation of envi=onmental influences
adverse to such pu.~oses, to stabilize and renew historically and
culturally significant patterns of land use to assure that new
str~ctures and uses wi~~in such districts will be in keeping with
the cha=acter to be preserv-ed, and to assure that the older parts
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of the City remain economically competitive with newly developing
areas of the City as desirable places in which to live, to work
and to locate co~icy facilities.
Section 2;
Sho=t Title.
~is Chapter oay be know~ and shall be cited as the
Historic Conservation Chapter of Clea~Nater, :lorida. ~
Seecian 3, De'igoocian a; Hi,carie Sire,. sc~ec""e~ ~od Di'rrie~ . ("
!he City Coc:dssion may as part 0= a zon~ng ord~nan~i
c.esignate one or =re historic sites. structures or c.istricts ~'
wi tl:1in the area subj ec t to c::e ora~nance. Such o=c.inance :JaY .
t=eat historic sites, st=uc~es 0= dist=icts eitl:1er'as a sepa~e
use-district classification ~r as over-lay districts which ~~?
other zoning dist=icts. wnere historic sites, structures ~ ~y
districts are designated as separate use-districts, tl:1e zoning
ordL,ance may include acong pe~tted uses those uses found by che
?l~~ing Board to have existed during the period sought to be re-
stored or conserved, cr to be compatible with authentic restoration
or conserva:ion of t~e si:e s:=uc=~e ~= distr~ct.
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39
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3.01 Preparation of Application and Reco~~endations for Histori:
Designation.
Applications for Historic Designation shall be prepared bv
the Planning and Zoning Board. Each application shall contain i~for-
mation and recommendations as indicated below concerning the areas,
sites, structures and'buildings proposed for such district.
3.01.1 Proposed bo~~daries shall in general be drawn to include all
appropriate properties reasonably near to each other within the area,
to include both sides of streets, and to divide the proposed district
from other districts at rear lot-lines or at other poin~s where such
divisions will create minimum L~ter-district frictions. Internal
boundaries may divide the district into subareas as appropriate fOT
regulatory purposes.
3.01.2 Proposed boundaries for transitional areas. If the proposed
Historic Designation is visually related to surrounding areas in such
e
a way as to require transitional regulations to control potentially
adverse environmental influences, proposed boundaries for such
- -
transitional areas shall be shown. Transitional areas may be
subdivided for regulatory purposes.
3.01.3 A report shall be submitted with the application, establish-
ing and defining the historic and cultural features of the Historic
Designation and describing the structures and features of substantial
public significance, present trends and conditions, and desirable
public objectives for conservation, development~ or redevelopment.
-
Such report shall include, among other pertinent matters:
a. An analysis of existing sites, structures and bUildingS~
by period of construction (if, kno..-n), archi tectural ~ (fJ
'1'"e (if ,ignificant), condition, pTe,ent use, a'~~d, ~
valuation, <L"ld- other matters relating to planning it/ ,./
regulating future development, such as location..... - ~'i;Qr
~ "'"".
lots, location of yards and other open spaces" ~~essf1:r
to interior of the block, and off-street par~pr~
vided. In additional general analysis, two~i~
and detailed classifications shall be established:
40
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(1) A classification of individual sites, str~ctu=es,
~"d buildings or substantial public interest, with
maps, photo~~phs, and other data indicating the
p~lic i=portauce of preservation and par:ic~lar
features it is desired to preserve.
(2) A classification of existing sites, structures,
and buildings, and uses likely to have an adverse
effect on the desired character of the district
including those near and visually related to the
district, with maps, photographs, and other data
indicating the reasons for such classification,
b. An analysis of lands not occupied by structu=es, in-
eluding lands near and v~sual1y related to the district.
For public lands, o'Nnership, use, and location shall
be indicated. For private lands, assessed valuation
shall be added.
e
c, Recommendations concerning detailed regulations to be
applied within the Historic Designati~n and its trans-
itional areas, to supplement or modify general regulations
set forch herein, including pe~itced and prohibited
principal and accessory uses and st~~tures, cini~
lot and yard requirements, maxi~ lot coverage by all
buildings, maxi~ height of structures, cini=uc open
space, caxicuc density, off-street parking and loading
requirements, control of signs and exterior illumination,
control of exterior character of buildings ~~d sites,
~~d control of additions to or removal of existing
buildings. Such reco~endations shall be based on the
character of the neighborhood, and will have the intent
of insurL"g consistency 'Nith existing development patterns.
In the report, the Plar~ing and Zoning Board may indicate
special regulations which would apply to subareas within the district
or its transitional areas,
Such report ~y also include plans 'for public action
in or adJo~~~ng the district and likelv to affect its character or
e
development.
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41
3.02 Action by the City Commission.
~ Upon receipt of the report and recommendations or the
Planning and Zoning Board the City Comcission ~y establish an
historic landmark or district,-'~;d if it does so establish an historic
lana:ark or district, its action shall include a declaration that the
landmark or district is L~ fact of historic and cultural significance
requiring protection against descruction and encroachment, chat the
classifications of L~dividual sites, struc~~es and building of
substantial public L~terest and of sites, structures, buildings,
and uses likely to have an adverse effect shall be used as an ad-
mL~istrative guide, and that all or stated recommendations of the
Planning and Zoning Board supplementing or modifying general
regulations set forth herein are adopted by reference, and are to
,be applied with the district, its transitional areas, and the
subareas indicated for each (if any), If City Co~ssion action
involves changes from the reco~endations of the Planning and Zoning
Board such changes shall be subject to review and report by the
Planning and Zoning Board before fi."1al passage..
e
Section 4,01 Historic Lan~rk Review Board - Created, Co~osition
Qualifications, etc.
Subsequent to designation of one or more historic land-
marks or districts in the City, a historic landmarks review board
shall be created and established, The Board shall consist of five
(5) members. All Board members shall be residents and t~~ayers of
the City and a majoricy of ~~e membership shall be qualified by spe-
cial ~owledge, interest, academic degrees or professional practice of
history, archeology, architecture, visual arts, historic preservation
or urban planning.
Section 4.02 Historic Landmark Review Board - Appoin~ent, terms
. of offic'e.
Members of the historiclandcark board ahall be appointed
by a majority. vote or the City Commission and shall serve without com-
pensation for terms of three (3) years, the terms of no more than
three (3) members thereof, to eX?ire in anyone year, except that
under the initial creation of the board said te~ of office shall be
e
42
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of app~opriate leng~~ to coO?ly with the foregoing req~remen~. At
the expiration of t~e term of office of anyone of the members of
the board, as herein provided,,;heCity Co~ssion shall reappoint the
me~e~ or shall ap?o~t a successor who shall serve from January
of that year fo~ a full tere oi three (3) years.
Three (3) mechers present constitutes a quo~. A quorum
shall be required to consider any matter or take any action.
Section 4,03 Same Vacancies and Removals
In case of a vacancy occuring on the beard, from any
cause, the City Co~ssion shall appoint a member to fill such
vacancy for ~~e ~expired term. ~,d the City Commission shall have
the power to remove any mecher cf the board for cause upon written
charges and after public hearing.
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Section 4.04 Same Organization
At its first meeting of the year, the board shall or-
ganize by electing a chair person and a secretary, who shall
serve until their successors are selected. The secretary mayor
may not be a member of the board, and shall be responsible for
keeping such records and perfor=dng such notiIication duties as may
be required by law. Meetings of the board shall be held at the call
of the Chairperson, ~,d at such other times as the board may c.eter:nine.
Section 4.05 Same Pawers
The historic lanC::lark review board shall have the
power to grant or deny certificates of appropriateness in designated
historic areas. Approval or denial of the request shall be decided
by a majority vote of members present.
Section 5: Certificate of Appropriateness Required.
From and after designaticn of an historic landmark or
district, no exterior portion of any building or other structure
(including stone walls, fences, light fix~~es steps and pavement,
or o~~er appurtenant fixtures) nor above-ground utility structure
nor any type of outdoor advertising sign shall be erected, alterec.,
restored, or moved within such designation cntil after an application
e
43
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for a certificate of appropriateness as to exterior architectural
features has been submitted to and approved by the Historic Landmark
Review Board. The Ci~ of Cl~~~water shall re~ui=e such certificate
of appropriateness to be issued by the Board prior to the issuance
of < ;uilding per=dt or other- pe~t granted for purposes of con-
struction, altering or moving structures. A certificate of appro-
priateness shall be required whether or not a building or tree
removal permit is required.
The Board shall not consider interior arrangement and
shall take no action under this section except for the purpose of
preventing construction, reconstruction, alteration, restoration, or
moving of buildings, structures, appurtenant f~xtures, or outdoor
advertising signs in the historic designation which would be incon-
gruous with ~~e historic aspects of the designation,
5.01 Applicable Criteria
For purposes of ~~is chapter, "exterior architectu=al
,features" shall include the architectural style, general design,
.
and general arrangement' of the exterior of a site, struct~re or
building, including the color, the kind and texture of the building
material, the height and bulk, and the type and style of all ~n-
dows, doors, light fixtures, signs, and other appurten~~t fixtures.
!n the case of outdoor advertising signs, "exterior architec::ural
features" shall be construed to mean the style, material, size and
location of all such signs.
5.02 General Certification of Appropriateness for specific classes
of cases may be issued by the Board if it is found that particular
~aterials, designs, architectural features or other characteristics
are generally acceptible and appropriate for the landmark or district
or its transitional areas, and that continued requirement of applications
involving only such matters would be more efficiently replaced by
reference to manuals issued bv the Soard. At such t~e as the Board
dete~es construction styles and materials which generally meet
the criteria stated in 5.02, it will cocpile such specifications and
sub:dt them to the City Co~ssion for inclusion as part of this
e
ordinance.
44
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5.03 11aterial to be Submitted ::::lr Review.
The Board may require submission of any or all of the
following in connection with the application: architectural pl~~s,
site plans, landscaping pl~,s, sign plans with appropriate detail
as to character, plans for exterior lighting arrangements, elevations,
of all portions of structures and buildings (with indications as to
construction materials, design of doors and windows, colors, and the
like), photographs or perspective drawings indicating visual relation-
ships to adjoining structures and spaces, covenants and restrictions,
and such other exhibits and reports as are necessa=y for its dete~na-
tions.
Section 6:
Admi..~is tra ti ve
6.01 Upon receipt of an application for building perQit which would
if granted, allow such exterior modifications as covered in this
ordinance L, a historic landcark district, the building official shall
noti~ the applicant that such permit shall not be granted until a cer-
tificate of appropriateness is received.
e
Application for a certification of appropriateness is
made to the secretary of the board. The application shall~~~ist
consist of a completed fore giving location of the property, legal
description, proposed alterations and the like, and review materials
as outlined in Section____ of this ordinance. The secretary shall
review the application for completeness and upon making that dete~ina-
tion, notify the chairperson of the.board,and transmit to him/her
a complete application.
Upon receipt of such notice, the chai=?erson shall call
a meeting of the board for a time not later than ~wenty (20) days
hence, The applicant shall also be notified of the ~eetin~.
6.02 The board shall, at its meetin~, review the request of the
applicant, The board may approve the request as submitted, approve
the application with such modifications as it deems appropriate, or
deny the applic~'t's request for a certificate of appropriateness.
Such denial shall be without prejudice, unless otherwise specified
by the board, An applicant denied a certificate may appeal the
--
board's decision to the City Comcissicn.
45
6,03 Issuance of Cer~ificate of Appropriaceness.
~ After examination of t~e Qaterial presented and field examina-
tion if necessary i:1 the case, the 30ard shall issue a certificate of
appropriateness only if i~ fin~ that the proposal is in fact ap-
propriate to the character, appearance, and efficient functioning of
the district and meets require~ents established by the City Cocmission.
Any action by applicancs following issuance of a perQit requiri~ a
certificate of appropriateness shall be in accord with the application
and material approved. The Board shall not authorize issuance of any
permits if it finds that the action proposed would adversely affect
the primary character of the district. ~fuere certification is denied,
the Board shall s~ate its reasons for denial.
Section 7:
Demolition and Destr~c~ion of Sites, Structures or
e
Buildings of Substan~ial Public Interes~.
From and after designation of a historic landmark or
dis~rict, no permit for demolition or removal of ~~y site, strUcture
or building of substantial public interest shall be issued until the
owner thereof shall have given the Historic Landmark Review Board
three (3) months written notice of his proposed action. The only
exception to this is when the structure has been damaged ~y fire,
wind or f:ooding to the 'extent that it constitutes a clear hazard
to the public welfare,
The Board shall review the circumstances ~~d the condi-
tion of the site, structure or building to determine the physical
and economic feasibility of preservati~n, and may negotiate with the
owner ar.d with any other oarties in an effort to fL~d a ~eans of
oreservin~ the site. structure or buildine.
7.01 Remedies.
In case any site. structure or building of substantial oublic
interest is about to be demolished Nhether as a result of deliberate
neglect or otherwise. materially altered, remoldeled or removed,
except in compliance Nith this chapter, the City of Clearwater, or
the Historic Lan~rk Review Board may institute any appropriate
action or proceedings to prevent such unlawful demolition, ~terial
alteration, remodeling or removal, to restrain, correct or abate such
--
violation, or to prevent any illegal act or conduct with respect to
46
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such historic ~roperty.
Section 8: Development in Accordance with Zoning.
wnere historic landmarks or districts are i:posed as an
over-lay overlapping other zoning districts, and not as separate
use-district classifications, the requirements of the ~~derlying
zoning district classification shall apply in addition to the
=equirements of this chapter. Such requi=ements ;nay', howeve= be modi-
fiedto insure that development will be consi'stent with neighborhood
characteristics.
Section 9:
Certain Changes Not Prohibited,
Nothing is this C.apter shall be construed to prevent the
e
ordinary maintenance or repair of any exterior architectural feature
L~ a historic district which does not involve a change in design,
caterial, colo=, or outer appearance the=eof, nor to prevent the
Building Director from ordering that unsafe or d~~gerous structures
be brought into full compliance with the provisions of the'Southern
Standard Building Code, 1975 Edition as amended, or ordering that
unsafe 0= dangerous structures be demolished,
Section 10: Econcmic Viability of Historic Lanci::1arks and Districts".
Nbthing in this Chapter shall be construed to pr~vent his-
toric landmarks or districts from re:aining economically competitive
with other areas of the City as desireable places in which to live,
work and do bU$L~ess. A certificate of appropriateness shall not be
denied where such deniarwould act to unreasonably prevent historic
landma=k or district =enewal or restoration, or where such denial
would prevent the historic landmark or district from being eco-
nomically competitive with other areas of the City.' A certificate
of appropriateness shall not be denied where such denial would pre-
vent constr~ction or ~rovements or needed cocmunity facilities,
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47
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1/-..s1 '
",V'
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U CITIZEN PARTICIPATION
Input in preparing this plan came from
,many sources. Interested citizens, such
as those affiliated with the Volunteers
In Preservation and Save South Ward
School organizations have had a highly
visible presence in the City within the
past several years. These groups actually
lead the City in initiating preservation
efforts. Other highly visible preservation
activities have included establ ishment
of the Pinellas County Historical Park
and moving a notable structure, the
Seven Gables House, to the park.
Broader publ ic input efforts focused on
distribution of questionnaires on needs.
Survey forms were prepared for each of
the plan elements. They were distributed
door-to-door in target neighborhoods
and by civic associations. Forms could
be picked up and dropped off at City
Hall and the main library. The full text
and survey forms were also reprinted in
the Clearwater Sun.
Over 4,000 copies of the needs state-
ments were printed and distributed. A
copy of the statement and the results
are included as part of this Appendix.
- '~ .'
APPENDIX V
FINAL NEEDS SURVEY TALLY
Historic Preservati on
As of May 20th
27 Newspaper
242 Needs Surveys
269 Combined
1. Do you favor official designation of
historic landmarks and districts in
Clearwater?
Yes 200
No 40
No Opinion 19
2. Do you favor a program of economic
re-use of old buildings?
Yes 208
No 33
No Opinion 20
3. Would you like to live in a restored
historic neighborhood?
Yes 136
No 86
No Opinion 42
4. Would you like to see Clearwater
establish a local history museum?
Yes
No
No Opinion
164
59
38
s
;
O~
TOtft 48
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auto travel, At best they can augment such a network, but the
core of such a network must be constructed of Class I and II
bikeways if the city is to facilitate safe and efficient bicycle
transportation,
lq
METHODOLOGY
Clearly, the present bikeway network is deficient from the 4It
standpoints of both safety and utility when bicycling is considered
as a means of transportation.* This was to be expected, however,
given the fact that the existing bike routes were not designed to
meet Clearwater's future transportation needs seen developing as
a result of current long-range social and economic trends,** The
proposed bicycle transportation network presented in this plan is
designed for this future, The routes shown have been chosen for
maximum utility using three criteria, First, expeditious travel is
insured by placing the routes along through streets, Second, the
routes together form a city-wide network enabling the cyclist to
travel virtually anywhere in Clearwater in speed and safety. Third,
the routes have been chosen to connect people and their residences
with their most common trip destinations, i.e.; schools, shopping 4It
centers, places of work, parks.
In terms of economic feasibility, most of the routes designated
in this plan are on roads recommended for improvement in the
ongoing Pinellas County Transportation Improvement Program,
and/or Clearwater's Thoroughfare Plan. This will keep construction
costs to a minimum if the bikeways are added at the time of road
reconstruction. Further, the rights-of-way, existing or to be
purchased, for all such roads will be adequate for the inclusion
of the proposed bikeways without additional right-of-way acquisition.
*
See pp. 5,6,8
See pp, 2-4
- 10
*~~
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Class IV
Class IV bikeways consist of streets which have been officially
designated as bike routes, usually with signs along the route, No
attempt is made to separate bicycle from automobile traffic. Such
streets may be designated as bike routes because they carry extremely
low volumes of relatively slow moving auto traffic, or because they
may provide a link to a Class I, II or III bikeway. No street class-
ified above a minor collector (250-1,500 vehicles per day), should
be so designated, Since the traffic volumes are so low, bicycling
on such streets is relatively free of hazard whether the streets
,
are designated as bike routes or not,
CLASS .N. 81KEWAY
17
Lastly, some of the Class II routes proposed will not require any
road widening at all, but only the elimination of on-street parking 4It
and/or the restriping of existing roads.
Although the problems of bikeway design and traffic engineering
are novel for mos t American ci t:ies, they are not so for Europe, nor
for a growing number of American cities which have built or are
building transportation oriented bikeway systems,* During the
actual design and implementation of Clearwaterrs bikeway network,
the vast experience and technical expertise available from both
European and American sources should be utilized as fully as
possible. In all cases, the separation of bicycle and automobile
transportation modes supplies the key design element of safety,
achievable only in Class I and II bikeways.
Because Clearwater already has an existing system of Class
III bikeways, which will (in effect) continue to expand under 4It
existing laws and city policies, and because residential streets
can be safely utilized as Class IV bikeways without being officially
designated as such, this plan does not include expanding routes of
either of these two classes in developing Clearwater's future
bikeway network. Neither Class III or Class IV bikeways can, in
fact, become an effective basis for a citywide bikeway network
developed to encourage bicycling as a serious alternative to
* See pp, 10-15
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5,
A physical barrier, such as a curb or concrete buttons,
placed between the automobile lane and the bicycle lane
is safer than merely using a painted line to designate an
extra lane for cyclists, (Denmark, 1969).
6. At intersections, through traffic bike lanes should
shift away from the main traffic flow, to more closely
parallel pedestrian crosswalks than the through auto
lanes. (France, 1962).
7. In making left turns, bicyclists should be made to assume
the pedestrian mode, crossing around the outside perimeter
of the intersection.
(w. Germany, 1963)
<#J
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llnllti
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Bl kE: LANE:
CLASS .IC' BlkE.WAY
15
Class III
Class III bikeways are less desirable than either Class I
or II, in that they require mixing bicycle with pedestrian modes. ~
Clearwater's existing sidewalk bike route network is largely a
Class III system, with all of the inherent drawbacks previously
mentioned (pp. 5,6). A somewhat improved Class III bikeway would
consist of separating bicycle and pedestrian traffic by the use
of lane striping on the sidewalk. This does not overcome other
problems, such as steep ramps, and can only be applied on sidewalks
six feet wide or wider (employing minimum bike/ped lane widths of
3 feet each),
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hS'~~A~
C L.ASS :Dr 5\ ~ E:. WA Y
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BIKEWAY CLASSIFICATIONS
Class I bikeways are completely separated,paved rights-of-way
tt designated for the exclusive use of bicycles, and provide for the safest
most efficient bicycle travel. For this "ideal" type of bikeway to be
an effective transportation route, traffic crossflows by pedestrians
and motorists must be minimized. Class I bikeways are usually designed
to carry two way bicycle traffic. The minimum West German standard
width for a two lane Class I bike path is 1.8 meters, or roughly 6 feet.
Class I bike paths are typically found in parks, scenic areas, rural
e
areas, and in new developments where the paths can be laid out in the
initial platting to be completely separate from both automobile and
pedestrian traffic, In existing built-up urban areas construction of
Class I bikeways is often unfeasible due to the lack of sufficient
right-of-way, the high cost of land acquisition, and the frequent and
heavy cross-flow of auto traffic where the bikeway must intersect
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C t..^ S s.I. B I K'E. wAY
13
--.~ -------
Class II
The European accident studies quoted earlier in this section 4It
were made for streets provided with Class II bikeways, Class II
bikeways are the safest solution to the problem of separating modes
along routes in existing built-up urban areas. In addition bikes
are given the same advantages of through travel which automobiles
have, Class II bikeways are on-street lanes designated for exclusive
use of bicycles, and separated from auto traffic lanes by the use
of painted striping and/or a physical barrier such as curbing or
concrete buttons. In Europe the lanes are placed one lane on either
side of the road, each lane traveling with traffic, between the outside
auto lane and the curb. Typically, the curb separating auto and
bike lanes is broken at intersections and at driveway exits and
entrances, allowing crossflow auto traffic. The minimum standard
width for such lanes is 4 feet. On roads provided with Class II
bikeways all on-street parking is prohibited,
Some of the key European design findings for Class II bikeways
e
are as follows:
1. The number of accidents involving bicycles and automobiles
decrease substantially on roads which provide lanes exclu-
sively for bicycles, (All studies)
2, However, the number of bicycle/auto accidents continues
to be a function of automobile traffic density.
(Netherlands, 1963).
3. The numbers of accidents increase when mopeds are allowed
to utilize the bicycle lanes.
(France, 1962).
4, Construction of two-way bike lanes on one or both sides of
the road should be rejected in favor of one-way lanes
traveling with traffic on both sides of the road,
(Netherlands, 1963)
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14
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compul~ory bike lanes were provided. A similar study was under-
taken again in 1963 which confirmed these findings. A French
study conducted in 1962 found that the accident rate was reduced
45 percent on streets where bike lanes were provided, A Danish
study made in 1969 indicated that accidents were nearly 60 percent
lower on streets with bicycle lanes than on streets without them.
As these studies indicate, motorized and non-motorized traffic
systems can be designed to safely coexist.
The Europeans never had to make the kind of transition from
a ground transportation system completely dominated by automobiles
to a multi-model system which the United States will have to make
if present energy, economic, and population trends continue,
Nevertheless, valuable lessons can be learned from the European
countries, where automobiles have for decades had to share the
road with other modes of public and personal transportation, Thus,
in developing a proposed citywide bikeway network for Clearwater,
four types or classes of bikeways were modeled on West German
bikeway standards,
11
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"bike routes" which will provide logical tie-ins to a citywide
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bicycle transportation network of the future.
BICYCLE SAFETY
One of the major design factors to be incorporated 1n a city-
wide bikeway network for Clearwater must be safety. In Clearwater
in 1976, there occurred 4568 reported automobile accidents, yielding
a ratio of one accident for every 23 people in the ci ty. In the
same year there occurred 52 reported bicycle/automobile accidents,8
yielding a ratio of one accident for every 2,034 people. Thus, it
1S nearly one hundred times less likely for a person to be involved
1n a bicycle/automobile accident than in an "ordinary" automobile
accident. In keeping with other bicycling data which indicates the
primary users of bi~ycles are between the ages of 6-19, 67 percent
of the bicycle accidents involved bicyclists 19 or younger, while
4It 84 percent involved bicyclists 29 or younger.
When individual bicycle/auto accident reports were reviewed it
was found that 79 percent involved turning movements at intersections
or at the entrances and exits to parking lots, when the automobiles
were traveling at considerably reduced rates of speed while negoti-
ating turns. Because most accidents occurred when both bicycle and
auto were traveling slowly, with the vehicles intersecting at acute
(rather than at oblique or "head on") angles, thE: severity of 1n-
juries sustained by the cyclists were largely minimal "type B"
injuries, amounting to minor cuts and bruises, or "type Crr injuries,
in which the cyclist had no visible injuries and was just "shaken up".
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8All Clearwater accident statistics derived from Clearwater Police
Department accident records for the year 1976.
9
In 1976 no traffic fatalities resulted from bicycle/automobile
accidents, in Clearwater. This will not always be the case,
e
however. As Clearwater's population increases, and as greater
numbers of people choose bicycling as their primary mode of
transportation, the number of bicycle/auto accidents will in-
crease, along with the chances that some percentage of those
accidents will be fatal to the cyclist,
What, then, can be done to minimize these chances? In
33 percent of the accidents occurring in Clearwater, the cyclist
was clearly at fault, either in failing to yield the right-of-way
at an intersection (20%) or by making an improper turn or lane
change (13%). In 44 percent of the accidents the automobile driver
was clearly at fault, usually in failing to yield right-of-way.
Thus, 77 percent (or 40 of the 52 accidents) were due to judgmental
errors on the part of the operators of either vehicle, Such a high e
percentage of judgmental error seems to indicate a need for increased
cyclist/driver traffic safety education and awareness programs, but
seems to rule out a pure "design" solution to the problem of bicycle/
auto accidents.
This leaves the remaining 23 percent of accidents presumably
amenable to some kind of engineering solution, which, in fact,
turns out to be the case, In 1952 a survey was .conducted in the
Netherlands (9) to determine the number, of accidents on two and
four lane roads with and without bike lanes. The results showed a
substantial decrease in the number of accidents on roads where
9All European bikeway statistics derived from Bikewa~
Criteria and Guidelines, School of Engineering an
Science, University of California, 1972.
Planning
Applied
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BICYCLE REGULATIONS
J;'
-
Bicycle traffic in Clearwater is currently regulated under
Florida state statutes pertaining to uniform traffic control. The
statute requires that bicyclists must utilize designated off-street
bicycle routes wherever they are provided, rather than riding in
the adjacent street. Because Clearwater's sidewalk bike route
system was designed for children and is inadequate for adults,
however, it is suggested that the City maintain a tacit policy
of nonenforcement of this portion of the law.
Since the inception and completion of Clearwater's sidewalk
bike route system in 1973, other laws adopted by Clearwater in
the subdivision ordinance require that all new subdivisions have
sidewalks and that the curbs be ramped at intersections. (7)
Further, City policy requires that any addition or repair of side- _
walks by the City, undertaken as a part of Clearwater's ongoing
pedestrian safety program, include the ramping of curbs at inter-
sections, Thus, as these policies continue to be enforced, Clear-
water's system of sidewalks nominally accessible to bicycles as
alternate off-street routes continues to expand, Since the same
state regulation governing uniform traffic control permits children
under 15 to ride on sidewalks anyway, it is not recommended that
all such new sidewalks be officially designated as bike routes, or
that "bike route" signs be erected along all such routes, Instead,
it is suggested that only such sidewalk routes be designated as
----
7Chapter 72-242, Senate Bill No. 227, State of Florida
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8
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percent) than does the nation as a whole (31 percent).6 Thus,
while the absolute number of automobile trips mayor may not
decline, the percentage of trips made by other means of trans-
portation will increase. The private auto as we know it will be
replaced by a smaller, lighter vehicle, a percentage of the cars
in the city will run on electricity or other non-fossil fuels,
existing or improved public transportation systems will experience
greatly increased patronage, and the bicycle will become a viable
transportation mode for larger segments of the population. In order
to allow the bicycle to become a realistic alternative to the auto-
mobile, rather than a child's toy or an adult's eccentricity, a
safer, more practical, and more extensive bikeway system than the
one which currently exists must be planned.
THE PRESENT BICYCLE ROUTES
At present, Clearwater's bicycle routes cover 29 miles of side-
walks and streets designated as bicycle routes by signs. Most of
the routing is on sidewalks, the curbs of which are ramped at the
intersections of minor streets. All of the existing bike transpor-
tation routes are located west of U.S. 19, north of Nursery Road and
south of Union Street.
This system was designed primarily for use by school children;
to keep them off the streets and out of traffic when riding bicycles.
The system was not designed to be used by serious (adult) cyclists
attempting to use bicycling as an alternative to auto travel. For
these cyclists sidewalk bike routes hinder rather than expedite
efficient travel. Aside from the safety hazard created by mixing
pedestrian and cycling modes, the cyclist must assume the pedestrian
6Florida State Energy Office, 1977.
5
mode at major intersections and must frequently yield to automobiles
even when crossing smaller streets. Further, steeply ramped curbs
are a cause of potential damage to a modern multi-sneed bicycle, as
well as a cause of bone-jarring discomfort to the adult cyclist.
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6
Table
e
TARGET AGE' GROUP DISTRIB1ITION OF RESIDENTS,
CLEARVJATER STUDY AREA, 1975-2000
Percent of Total, B'7 Age Group
,
0-24 25 - 44 45-64 65 or Hore
1975 30.2% 17.1% 23.5% 29.2%
1980 30.1% 15 0 9% 23.8% 30.2%
1985 29.5% 14. 5% 23.4% 32.6%
1990 28.5% 13.0% 23.0% 35.5%
1995 27.0% 13.2% 23.1% 36.7%
2000 24.5% 13.3% 23.2% 39.0%
Source: Estimates by Hammer, Siler, George Associates.
Lie declining percentages in the 0-24 age category indicate that
this segment of the population will remain almost the same in
actual numbers as it is today; thus, all of Cleanvater's net population
growth will be in the older age groups. This trend of increasing
numbers of older poeple is not unique to Florida. Overall, the
tt effects of increased birth control and better health care are
working to increase the national median age.
Though the percentage of people in the present primary bicycling
age group will decrease in the future relative to the overall DOp-
ulation, greater economic pressures will be brought to hear on older
people to adopt more economical modes of transportation than auto-
mobiles. Proportionally, f~er elderly are in the work force.
therefore their incomes are frequently fixed or not rising as
fast as the rate of inflation. Pressure to stabilize pension fund
debt will increase due to the decreasing ratio of workers to non-
\vorkers. A recent Time magazine article noted that the present
ratio of three workers for each social security recipient will
e
3
decline to two to one by the early part of the next century.S
Another certainty for the future is the increasing scarcity
of fossil fuels. The debate as to the best way to allocate these
resources continues. Currently the price mechanism regulates
allocation, with each person able to buy as much as is affordable
at continually rising prices. The impact of this on those with
fixed incomes is to reduce the amount of fuel they can afford to
purchase. If rationing or other regulated allocation means are
not adopted, persons on fixed incomes (nearly 40 percent of
Cleanvater's population in the year 2000) will be faced with their
desire to travel constrained by their ability to pay for gasoline.
If rationing is instituted it can be expected that the non-working
segment of the population will receive smaller allocations than the
working segment. Politically and economically, a high priority
will be placed on getting workers to their jobs, \'7ith the burden
of conservation falling on discretionary travel. Public transit
will probably make up for some of the decrease in mobility, yet
it can be expected that the conditioned desire for personal
transportation modes will continue.
Within the time perspective of the plan, it can be expected
that the conditions outlined above will work to alter the trans-
portation/mobility options of Clearwater's residents. In fact,
Clearwater, with a significantly larger segment' of older persons
than the national population, can expect to feel these conditions
earlier and with greater impact. In addition, Clearwater is likely
to be still more effected because Florida expends a greater pro-
portion of its total fossil fuel supply on transportation (38
STime, "Revolt of the Old," Oct. 10, 1977
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INTRODUCTION
In spite of the fact that at present there are over 100
millionl bicycles in America, bicycling has yet to become an
important mode of personal transportation. In 1973-74, bicycle
sales peaked at 15 million bicycles and have been on the decline
since then to just slightly over 8 million bicycles2 last year.
This trend indicates that the bicycle boom may have been nothing
more serious than any other recreational f~d, such as jogging or
riding skateboards, both of which enjoy current popularity.
In creating a bikeway plan for Clearwater, it will be
important to determine present bicycle usage; to find answers,
that is, to the questions;, who actually rides bicycles, and
where are they ridden? In Tennessee, the only state for which
such data was available to this study, it was dicovered that over
73 percent of all bicycle trips were confined to short distances
within the neighborhoods of the cyclists. Also, it was found that
84 percent of all bike trips were taken by persons between the
ages of 6 and 19 years old.3 In Tennessee this amounts to about
24 percent of the population, in Pinellas County the same primary
bicycling population group comprises only 20 percent of the general
population.4 Fewer than 12 percent of all bicycle trips are made to
work, school, or over any long distances; trips, in other words, which
could be expected to utilize some portion of a citywide bikeway system.
lBicycle Manufacturer's Association, Hashington, D.C.
2Ibid.
3BiCbling in Tennessee: ~ Planning and "Design Hanual, Barton and
Asc an Associates, Inc., Hay lQ7 .-
It 4Pinellas County Planning Depart~ent
Although bicycling is an inexpensive and healthful mode of
travel, and although Clearwater's climate and terrain are almost
ideally suited to easy, year-round bike travel, the vast majority _
of people, as in Tennessee, choose not to consider bicycling as a
serious means of transportation. The reasons for this are multi-
fold. Though bicycling is good exercise, many people perceive
bicycling as "too strenuous", especially during the surmner.
Though bicycling is extremely economical, the cost of automobile
travel, at l5-20~ per mile, is still considered cheap for the
convenience and comfort it provides. As additional disadvantages,
bicycles are considerably slower than automobiles, bicycles are not
designed to transport passengers, are more exposed to wind and
weather, and are unable to carry much luggage or many goods when
compared to automobiles. Lastly, bicycling is unsafe when the
cyclist must share the road with automobiles, yet mixing with
pedestrians by riding on sidewalks is not a safe or adequate ~
solution either. Because of these reasons bicycling is not now
a major alternative to automobile travel.
BICYCLING IN THE FUTURE
The future, however, may paint a different picture. By the
year 2000 Clearwater's population will have grown to approximately
137,000. This population, is expected to become progressively older.
By 2000, 39 percent of the City's population is expected to be 65 years
of age or older. The projected age breakdo~m is shovm in Table 1.
e
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and ?i:l~llas-r-::.:ls:'o:-::l-1s:: Cour..~y li:-:'.i::s; :ne:lce c<..:.e 501.1:':"1
to t:"e Cou~:::1ey Ca..::-.o.?oell CaU3e\f....ay; ~;:e::c e ~.11 ~5-ce:'lyJ
SOl.:':n.\ves::e!"ly, a::c. Sou~~-:e=l:.r along :.~e s~or:::l.i:1e of Old
Tam?a 3a~J' to :.~.:: centerli::e ai _~llen( 3 Creek; c-~e~ce East
to U.S. 19; thence North to Bellair Road extended; t~ence
due West on Bellair Road to t..'1.e Seaboard Coast Line Railroad
tracks; t..'1ence c.ue i'-iortn to and along Ft. Earrison Avenue
co D Street; t~J,ence due ~'vest ap9:::'oxL""':::.ately 150 feet; t..."'ence
due North to B Street; thence due West to 4th Avenue; the:1ce
due North to A Street; thence due East to ::t. Harrison Avenue;
thence due North to Watkins Street;, t.'1.ence due "\Test to Waters
Street; t..1.:ence clue North approxi.rnacely 700 ieet; t...'-lence ~/Vest
to the Intracoastal Waterway; thence South--Southwest
approxirnately 6,000 feet; t.'1.ence due West to L'1.e Gulf of Mexico.
Section 4. All required and optional elerr.ents and parts or t...'-1.e
Comprehensive Plan as required or allowed by tr..e .'Local Gover:L":".ent
COI'!"'..?rehensive Plau-1'1ing _-\ct of 197srr, 3.S 3.I:-le::.c.ec.. ';v::ic:: are set :ort:: ~:l ~h.e
attached exhibit ado?ted !J.erein, are he~e'oy ado?ted as ?a~t 01' this or::.i::a::ce.
Section 5. ..-\11 dev-eloS'I:"'..ent \.:...."'lc.ertake:1 a::d all3.c:::,or...s tak~n ~-: ::-ega=:::.
:0 d.evelopment orders, all land develop:alent regula:ions enac~ed or ar":1e~c.ed
snail be consister..t ..,vit.'1. ::ll.s ?lan and. such ele:r"ent a::c. -;a::': :"~e=eoi ; - .:-eg.3..:c..
~o :.he la:1c. covered by ~=.is ele:::ent a:z:d ?ortions or i:..~e C.:lrr:?renensive ?~.?.:l
as hereby adopted s~all be consister..t \vit..'1. this ?lan a~d eac~ ele~ent a::.d
?art t...l.:e:- eal.
Section 6. Notice oi ':..1.:e ?roposed e:lac::-r:e::: 0: ~~i5 crc.i:lanc~ :--4as
been ?r0gerly advertised :n a ne\V5?aper 0: ge::eral ci.::c'J.lation
, .
:.n ac=o:-c.a.::ce
wi~h Section 166.041, Florid.a Sta:utes.
Sec:ion 7. ..-\ll ?ublic ~e3.=:.::g 5 a::d ?u~lic ?a:,:::.c:.?a:ion :-eau.ireci
'::)ursuant to Section 163.3131, ?loricia Sta:u:es, ~::c. :'eC~l:J~ 163.313";, =-::::-:.-:.3.
.3 ca :....:..~ e s ,
, , c'.
.:las ?:-~cec:.e
:::1::s~::.e:-a.:i.o!': 0: ....._~
or :..:...'":a.::c e,
':.-~e
Sec:i':J:1 S. r:.....is :J:-:::.i....-:a::c: :'5 ::e:-eS:f c..'::C;Hc-:' ?.:'.c. s:;.a.U b-= ::or:5l::.e:-ec.
r_e:lce:o:::-:~ ac.o?ted :o-=, =-~e ?l;.=?cses .~= ,:,ec:l.O:l 163.3134 1:7), ?l~:,i.c.a 5:a:'''::2:::,
a:1C shall Qec:Jr::e e.:.:ec:lve i....-:::7'..ed.iately :..1:Jon i.':s ?a.ssage.
?ASSED 0::\ .;: is.::, J. S.E-;'DI::\G
October 2. 1980
?_.1...33'::~ 0>" 5~C:::<D ..;,:<D ::::<A!...
S.E-A.DL';G X:\'D .A.DC.?-:-'::D
October 16, 1980
.-\:: e 5:::
51 Charles F. LeCher
5 I Lucille Willia ITS
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ORDI~...-\:--~C::-' 2'.;-0. 2215
AN ORDINAC'iCE OF T::iE C:TY O? CI..E_.i..R',liA:r::::p,, ?LORIDA,
COMPLYI:>iG WITH T::i:::: "LOCAL GOVERNMENT COMPE\E-
HENSIVE PLANNING ACT OF 1975", AS AMENDED;
ADOPTIC'rG THE BICYCLE ROUY:::: SLSlv1ENT AS PAR T OF
THE CO~iPREHENSIVE PL.i,,:;.I FOR THE ENTIRE CITY OF
CLEARW_-\TER, FLORIDA; ADOPTING THE ATTACH::::D
EXHIBIT; PROVIDING FOR PRO?SR NOTICE OF PROPOSED
ENACTMENT; AND PROVIDu'iG FOR THE EFFECTIVE
DA TE OF THIS ORDI:-.rANC::::,
BE IT ORDAINED BY THE CITY COMlviISSION OF THE CITY
OF CL::::ARW_.i"TER, ?LORIDA:
Section 1. Tb,e Bicycle Route Element of the Comprehensive Plan as
required ':Jy t....'-le :ILocal Governrr.ent Corr:.pre::.ensive ?lanning ~-\ct or 1973f!, as
amended, a:ld 3..5 5 et .:or:..'-: L';. t.~e a~L::ac:-..eci ~x.;.~ibit, -:.esc:ibed as:
COIT-posi:e E:x..."-ibit _-\ - Docu-T.enc entitled "Clearwater
Bike\vay Plan", consisting of a table of contents sheet
a.:lc. 68 ?ages,
is ac.o?ted iZl accordance ~Nit.:"l the !'Local Governr:1ent COrr':?!"ehensive Plar:.:1i~g
...:\ct of 1973'1, 2-5 a~e::c.ed, for t.h.e encire Ci.~;l or Clea=v.ta:e:-. ~ :,,'::J:-:.c.a.
S~ction 2.. T:;.~ attached ex::.i"~lc ,iesc=:~ed as:
Composi:e 2..xhibit _~ - Doc'..lo.~..e::~ ~!1ci:leci :IClea:-"vate=
3ike~.va;r ?!.3.:1 r, cor...sist:::.g ,:)i 3. :asle ',)1 cor..:e~t5 5r:ee~
and 68 pages,
...:I adc?teci 2..5 ?a=-: ::Ji :l-ti.s ordi:l3.:lce 3..5 :.i ~': \vas see .:ort..~ :.n i::ll ':le=-e~::..
Section 3. Fo:: the purposes or :..~is ordi~ance, t:le area e~cc:r::?aS5eci.
by this orcii.::a.:1ce' sl:all be desc!'ibed as:
The entire a:::-ea \~lic:bin ~e ?rese::: b01L~ciar:es oi t..:.'1e
City of Clea=",va:e= as 3\';'C~ bot;...-;..::.a:-:es a:-e ex?a.::c.ec. ~-,-
::edeii:J.ed '~y :UC1..:..:e a.n!".exa=io~.s, a:1d the Ci;;y or Cle2.=..va.:-~:
5e::-~.rice a:-ea ';v~icl-1 3e:-"'r:ce: a.=e~ is :"-=.=:::er c.esc::.be~ as :~ll~\vs:
3ou.::c.ed :J~ :..~e ~,Ve5t: by :::;'8 G~.: 0: :\l:=x,:,CO, OD. :.';.e ~':G:-::-.. ~;T-
tn.e centerli.:le vi Dw~edin :2.55; :.;:e~ce S01..:.:~eas::e::L~/ :c,=- ?Ol.::t
::1 St. Jose?~l s Sour~c. a?p':8xi:::a;:el~l 700 iee: Sou::::eas: or
).,[oonshL:!e :31a.:1c., excl'.:.d.i:1g ;y[oor...s~i:le :sla::c.; ::-_e::c~ ="-='~ ~2..s::
:..~=()ug~ St. J-osepn: s Sou...~c. a::d aiong :"-r.ion Sc=e~c ::> ?(ee.:'.2 ?C2.c.;
::..ence c.'.;.e =':0'::""-:. :0 Co1..:.-~C'Y ?",;)ac. 3..;; =-:":..e~c~ c.'...:e ~a5:: :8 =-"-1e
S01..:~~erly ex-:e::sion of Countj" ?"oad 70; ':~1.ence c...le ),.0':::: alo:;.~
COl;....~:y .;<.oad. ~O :0 S:a::e ?.oad 3,30; ::.e:-.ce :::.t:.e '::2.5: :0 '--~. 5. :-::.~::'.,;a'/
17, exclT-=.c.:...........g :"'-:e C1;.!:ec..:.:: ::.c:-=.s::~al ?a:<..:::; ::..:.e::c; :.'-=.e ;..~o.:::.-: :0
Curle'.v C:-eek; ::'"le:lce ~aste:-ly :0 )'ic:\<~clle:1-3co:::-.. ?-oas.;
:::e::ce ::...:e .so'.::...~ a??:'ox:.:-:--.2..:e:~t :, .;.2C fee: :0 Ci:;:--:;'..v::e::. ?:"::~e:-:~::
~::e:;,ce .::.t..:e "::.a.s: 2.??=ox:"'7~a::ely 2, JCO iee;:; ::...e::ce :-:o:":..~ 33:
:ee:; ::'''''..e::ce ~a.5:: -S70 :ee:; :~..e:-.:.e s.'...:.e SO''':':'~ 2.??:-o.'<::.=-_a:elT': 3, :.:>::
.:ee: :0 State ?'.oa..=. :.30; :...'-:e:-..ce ',';-:s: ar.c. SO'':':::',,:=:5: ::J _.:c:,~'.;.i:~::~
300':h ?,oa.c.; :::'c::ce :::.';,e .sc1':'::'--:' ::J :::2 ::c:::e.:i:.::-= :;:' _j,.~l:.~~::;:- :::2c~:;
:..~e:-:c~ ~:.5: =-~o::g _;'lli~<3.::::- C:,~-=~: ~~::. :::e s:J'_::::-:-=:":::5~~C:2 0:
_-\ll:,'.;a::'J:" :....a.~~2 ?.::=. _':"=::':.= ='::":~ ::l:oo;;e:- 3 3.a.::~'''': ;::c.' ::"-??e~ --:......
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CLEARHATER B IKEHAY PLAN
The citywide network outlined in the map on the previous page
has been designed to encompass Clearwater's existing city limits ~
and planning area. The routes shown are parallel to the traffic
flow of the major thoroughfares, giving priority to existing patterns
of trip destinations so that the major malls, sho~ping centers, schools
parks, the downtown area and the beach may all be safely reached from
any point in the city by primary utilization of Class I and II
bikeways. This proposed network links with the existing or proposed
bike routes of the county, Dunedin, and Largo. The link with the
county system is provided by the proposed Class I north-south route
along the Florida Power right-of-way. This route, for the most part,
closely parallels U.S. 19 and connects Clearwater's Countryside
section with the rest of the city. Preliminary talks indicate that
the Florida Power Corporation is sympathetic to the establishment of
a bikeway on the power right-of-way provided they can be adequately ~
relieved of any liability for possible accidents which might occur.
The link with Dunedin's bike routes is provided by the Class II
north-south bikeways along Alternate U.S. 19 (Edgewater Drive) and
Highland Avenue.
The Edgewater Drive route would provide good access to the
dOvmtovm business district and to the t1emorial Causewav-Clearwater
.I
Beach route. This route, approximately 2.5 miles long could be
made a Class II route along much of its length by eliminating on-
street parking on North Fort Harrison and providing 4 foot \vide bike
lanes along either side of the road. From the intersection of Myrtle
and Fort Harrison to Stevenson's Creek however, (a length of
approximately 2,100 feet) the road narrOHS to tvlO lanes, necessitating
~
22
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e
e
the use of a sidewalk bike path on the east side of the road. A
Class I bike path could be constructed along existing city right-of-
way between the sidewalk and the road all the way to the bridge.
After the bridge, which must be crossed in the pedestrian mode until
it is rebuilt, the western side of the road provides an ideal right-
of-way for a Class I bikeway along the bay to Union Street, where
it could be joined by the Dunedin bike route.
The Highland route would run through the approximate geographic
center of Clearwater, connecting several parks, schools, and shopping
areas, and providing older, already built-up residential areas of
Clearwater with a safe link with the rest of the bikeway network.
The appropriate time to establish Class II bike lanes along this
route will be when Highland is widened to a divided four lane road,
scheduled for inclusion in the next county five-year transportation
Improvement Program, 1983-88. When Class II bike lanes are designed
and built-in to a road widening project the costs are considerably
lower than when additional road widening 1S required to provide
bike lanes after a road is built.
The link with Largo's bike system would be provided by the
east-west Class II bike route along Belleair Road, also to be built
at the time of future widening. The proposed Class II bikeway
along Sunset Point Road, between U.S. 19 and the Alternate U.S. 19,
should also be added when Sunset Point Road is widened, as recom-
mended in the City's thoroughfare plan. Because the engineering and
design studies for road widening projects takes place several years
1n advance of the actual reconstruction, Clearwater must move soon
1n order to get the Class II routes incorporated into the County
improvement program.
23
The route shown paralleling State Road 60, facilitating east-
west travel across to~vn from u.S. 19 to beach, was the most difficult
to design from the standpoint of having to create an efficient, ~
safe bike transportation route through already built-up and largely
stabilized areas of the city. The need to eventually widen Drew
Street, as stated in the City's thoroughfare plan, makes this route
an ideal candidate for the inclusion of a Class II bikeway, yet it
was felt that since this \videning \ilould not be completed until the
late 1980's that an alternate route which could be completed within
two or three years would bring more of the network into full
utilization at an earlier date. In order to make this crucial link
in the system, this route includes both Class I and Class II bike-
ways, and even, in some segments, Class III bikew'uys, though the
largest of these (along Memorial Causeway) could be later converted
to a Class I route at a minimal expense. The most essential link
in this route lies along Cleveland Street from Hillcrest to Belcher. ~
Along this section, Cleveland Street is an undivided four lane road,
which is designated as a thoroughfare arterial in the city's thorough-
fare plan. However the existing traffic volumes carried on this
section of Cleveland (6,400) vpd at Duncan Avepue)IO do not justify
this classification, and ~vhen Drevl is v7idened pressures on Cleveland
Street shoud decrease even more. Therefore, it is recommended that
this section of Cleveland Street be reduced to ,three lanes (two
through lanes and one turning lane) with the remaining lane space
divided into t~vo four foot wide Class II bike lanes placed on either
side of the road.
This completes the description of the basic transportation
net~'70rk. There remain t"!O optional links in the network, shown
lOCity of Cleartilater Thoroughfare Plan, 1977.
~
24
'e
".
CONVERS ION OF CLEVELAND STREET
TO ACCOMMODATE CLASS II BIKELANES
BEFORE
40'
i
existing
~
J
t
J L-
road width -
--- --
4' bicycle
e
11' through
10' turning
11' through
4' bicycle
~, ~
lane"---.~ J1t
lane~ ~ n_.~ ~=~=._.~-aos.--d-:~=~.=-
lane > _~l 1-- r ___~____.::_ I.- r ./.
..._----.
AFTER
e
25
on the map by dashed lines. Both of these should be considered
now, however, as they should be included at the time the roads are 4It
scheduled for construction or widening. Along Sunset Point Road
east of U.S. 19, Class II bike lanes would be most appropriate.
Along the yet to be constructed extension of Landmark Drive advantage
should be taken of the opportunity to design a Class I bikeway,
particularly as modern subdivision design provides increasingly
selective access to major collector streets, thereby limiting the
amount of cross-flow traffic with which the cyclist will have to
con tend.
RECREATION ORIENTED BIKEWAYS
Clearwater owns nine properties In close proximity, and
In a scenic and lightly populated area; warranting connecting
these properties with a bike trail of a strictly recreational
nature. The area is located mainly east of U.S. 19, north of
the proposed Drew Street extension. The nine properties are:
1) Del Oro Park, 2) a small area of city owned land east of
Bayshore Boulevard on the Cooper's Bayou waterfront, 3) the
recently acquired "performing arts center" property abutting,
4) a small area of undeveloped, dedicated parkland along the
southern bank of Alligator Creek,S) Wood Valley Park, 6) the
Moccasin Lake dedicated park property (the site of a proposed
small animal zoo) adjacent to and along either side of the
S.C.L. Railway right-of-way, 7) the "transfer station" property,
8) Carpenter Field, both west of U.S. 19, and 9) Northeast
Coachman Pa rk. (See the accompanying map.)
4It
4It
26
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27
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The City Parks and Recreation Department has recently con-
structed a bike path through over half of Del Oro Park, and obtained
$25,OOO-CETA labor to continue construction of this scenic route.
Completion of the entire route (approximately 5 miles) depends on
the success of negotiations for right-of-way to build the path
through private property, and upon additional funding of approximately
S50-75,OOO. Should the City decide to complete the route, this would
provide the only purely recreational bicycle paths in Clearwater.
.
Otnerwise, the City presently has no parks large enough to accomodate
more than a few hundred yards of bike nath in anyone park.
Because bicycling has long held a traditional nlace in
America as a popular recreation pastime, however, it is recom-
mended that future parkland acquisition and development, par-
ticularly in the developing northern planning districts, be
considered for possible linkage bv recreational bike naths.
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28
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ECONOMIC FEASIBJLITY
Cost estimates for a 6 foot wide two-lane Class I bike path
came from two sources: the City of Gainesville's Engineering De-
partment, and from local landscaping and paving companies. The
City of Gainesville maintains an extensive system of Class I bike
paths built primarily for use by students of the University of
Florida. For university students, living on small or fixed incomes,
bicycling is an inexpensive mode of personal transportation. The
Cj j" of Gainesville's bicycle :,ath specifications call for asphaJ
paths between 6 and 8 feet wide, depending on the available right-
of-way and other factors. According to Gainesville's Engineering
Department, costs vary between $25,000-35,000 per mile of asphalt
path. The department also estimates that for concrete paths the
cost per mile would vary between $40,000-50,000 per mile. Concrete
was not recommended by the Gainesville Engineering Department, how-
ever, because the increased initial costs do not seem to justify the
slight decrease in maintenance costs over a good quality asphalt
path.
The cost estimates for a 6 foot wide asphalt path glven by
the local landscaping and paving companies were for "golf-track"
type paths, the same kind of paths, that is, that are built to
carry electric golf carts 9n golf courses. The City of Tampa has
recently had some "golf-track" type paths constructed for exclusive
use by bicycles, and reports that these paths are quite adequate
for use as Class I bikeways. The per mile cost estimates for this
type of path comes to roughly $15,000, considerably less than the
Gainesville figures. The Gainesville estimates are higher for
29
three reasons. First, the per-mile Gainesville costs are for
Class I routes being built through already developed areas of
the city, rather than through undeveloped areas as proposed in
Clearwater's bike plan. The additional costs involved in building
a bike path through developed areas come from having to purchase
additional right-of-way where needed, as well as from having to
construct the paths around existing obstacles and traffic hazards,
such as trees, telephone poles, sidewalks and streets. Second,
the estimates received from the paving companies include only the
actual paving costs, which include 1) making a 5 inch deep bed
cut out, 2) laying a 4 inch bed of rock, 3) prime coating
the rock surface, and 4) laying one inch thick topping of hot mix
asphalt. The estimates do not include any fill or grading which
may be needed (over low ground for instance), or spanning any
ditches, or any landscaping. Third, the "golf-track" routes are
lower because the paving companies have the construction methods
and technologies geared to keep costs to a minimum. They have
special narrow mechanical spreaders, for instance, designed for
the standard golf cart track width of 6 feet. The narrowest
road-width mechanical spreaders can only lay a path with a minimum
width of 8 feet.
The costs for the Class I bikeways sho\VTI on the plan use this
$15,000 per mile figure with a minimum grade and fill preparation
cost of 8-9 percent added to this. Another $2,500 per mile was
added to this to cover the cost of route signs, benches, litter
barrels and similar amenities, which brought the per mill cost to
$20.000. Costs of right-of-way acquisition were excluded.
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1------------ - - --- ---- _
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Should the city have to actually purchase right-o:-way for its Class
I route now shown utilizing the Florida Power right-of-way, the per
mile costs would increase substantially. Likewise, any liability
insurance which the city might need to carry for the use of the
F.P.C. right-of-way is not included in the cost estimates.
Cost estimates for the Class II bikeways shown on the plan,
consisting of two 4 foot wide bike lanes on either side of the
roads designated, and separated from traffic by use of striping
and/or concrete buttons, were derived from surrent construction
bids for widenir:?, roads from two lanes undivided to four lanes
divided. The bids were made available to the city by the Pinellas
County Engineering Department, and were for the widening of a
1.54 mile length of Belcher Road from B~Tan Dairy to Ulmerton Road.
Construction materials, grading and labor costs were calculated
to the square yard, and then applied to the increased road surface
area of a mile of widened road provided with Class II bike lanes.
The cost per mile for a two lane road widened to four lanes
divided is $1,034,272. The cost per mile for widening the same
road with the addition of Class II bike lanes is $1,090,272, or
approximately $56,000 more per mile. Since the actual widening of
the roads proposed for Class II bike\V'ays will take place in the
future (1983-1988) the dollar costs may be greater due to inflation.
The p~rcentage of costs for the additon of Class II bikeways can
be expected to remain the same, however, at slightly greater than
one-half of one percent of the per mile road widening cost. Of
course, ~vhere Class II bikelanes are added simply by the elimination
of onstreet parking (as recommended for U.S. 19A) or by the
31
reduction of a 4 lane road to 3 lanes (as recommended for Cleveland
e
Street) the costs are drastically reduced and need include only the
cost of restriping, adding concrete buttons and adequate route
signs, and perhaps minor surface repair work.
LOCA TION
Florida Power Right of Way
(Belleair Rd. to Curlew
Creek Rd.)
Clearwater Beach to F.P.C.
R.O.W.
East/West Core Axis
(Memorial Cuaseway Bay,
Turner, Court, Hillcrest
Cleveland, Belcher and
Drew)
Alternate U.S. 19
(Union St. to Memorial
Causeway)
Sunset Point Rd.
(.Uternate U.S. 19 to
R.P.C. R.O.W.)
Highland A.venue
(Union St. to Belleair
Rd. )
Belleair Road
(Highland Av to F.P.C.
R.O. W.)
Del Oro Park
Recreation Bikeway Loop
(~ortheast Coachman Park
to Bayshore Drive)
S~~set Point Rd. Extension
(From F.P.C. R.O.W. to pro-
posed Landmark Drive)
Landmark Drive
(From S.R. 580 to Recrea-
tion Bikeway Loop)
Prio ri ty 1 To tal
Priori ty 2 To tal
Total (Without Options)
Total (With Options)
SUMMARY TABLE
PROPOSED CLEARWATER BIKEWAY NEn~ORK
CLASS
I
APPROX.
DISTANCE
EST. COST
$200,000
1
PRIORITY
10 miles
I, I I,
III '"
7 miles
$ 90,000
1
I, II,
III'"
$ 50,000
1
2.5 mi
II
$220,000
3.8 mi
2
II
e
$230,000
4.1 mi
2
II
$140,000
2
2.5 mi
I
5 miles
$ 75,000
1
II
$ 70,000
1. 2 5 mi
Optional
I
3 miles
$ 70,000
Optional
24 miles $415,000
10.3 miles $590,000
34.3 miles $1,005,000
38.6 miles $1,145,000
"'All Class TIr 3ike~avs included in this plan sho~ld be scheduled for
~uture conversion to Class r BikeWAYS
--
32
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BIKEHAY P!LJ\SING
The bikeway plan presented here falls naturally into two
construction phases, illustrated in the map which follows.
The first phase includes all those routes which could be under-
taken immediately, given adequate funding. Additional funds for
the completion of the recreational bike route connecting the three
park properties already discussed can be applied for to the Bureau
of Outdoor Recreation in the U.S Department of the Interior, which
does have money available specifically for recreational bike routes
under the Land and Water Conservation Act. Funds for construction of
Class I bicycle route along l1emorial Causeway (State Road 60), for
the modification of U.S. Alternate 19 to include Class II bike
lanes, and possibly for the Class I route paralleling U.S Highway
19 in the Florida Pmver righ t-of-1;.7ay, might be availab Ie from the
Federal Highway Administration. Though the Federal-Aid funds for
bikeways are neither new or guaranteed, the Federal Highway Act
of 1968 provides for matching funds (70% federal-3n% state of local)
for bikeway construction on all new highway work except interstate.
There is $2.5 million cutoff for each state, and the state highway
department must make a request for funds for bikeways, othenvise
no funds will be granted. The remainder of the first phase con-
struction, and the necessary matching funds, will have to come
from the city. Possible sources could be 1) the city's capital
budget, 2) a special millage tax levied specifically for con-
struction of bicycle routes, 3) a city bond issued for bikeway
construction. There are no federal restrictions on where the
local money must come from.
33
The second phase consists mainly of Class II bikeways which
must be built as an integral part of future road widening projects:
Belleair Road (County Road 116), Highland Avenue (County Road Ill),
Sunset Point Road (County Road SO-State Road 580). Because these
are designated county and state roads, the city should request that
the Class II bikeway be included when these roads are scheduled for
widening as part of the county's ongoing Transportation Improvement
Program. It is possible that Federal Highway Funds could be acquired
for some portion of these routes. The proposed Class I Landmark
Drive route lS the only link which might require complete local
funding. However, since construction of the Phase II routes would
take place during the 1980's, Federal money might be available in
the form of the Bicycle Transportation Act now before both houses of
Congress. This act would provide $45 million for bikeway projects
around the country, and could become law pending the results of a
Senate study on bicycling and energy conservation.
34
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Probably the biggest hurdle a transportation oriented bikeway
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plan must pass is that of funding. As already intimated, it is
unlikely that Clearwater would have to bear the entire burden of
cost, or even necessarily the greatest portion of the cost of build-
lng a bikeway network. Yet the proposed expenditure of hundreds of
.
thousands of dollars still requires justification in terms of worth.
Designating bike routes on existing streets and sidewalks with
signs (Class III and IV bikeways) * while extremely inappropriate for
the provision of a transportation oriented bikeway network, is
relatively inexpensive. By comparison the cost of providing Class
II bike lanes at $56,000 per mile seems high.** Yet everything is
relative. It costs approximately one million dollars to widen one
mile of two lane road to four lanes; by comparison the per mile cost
of Class II bike lanes, (approximately one-half of one percent of
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road widening) seems quite reasonable. Thus, for the same amount of
money it would cost to rebuild just one mile of two lane road to a
divided four lane Toad, the city could be provided with a 38 mile
network of bikeways.
The justification used to decide whether to widen a road is
typically a quantitative one of traffic volume versus capacity.
Extensive research and testing has yielded a set of accepted stan-
dards by which to judge the level of service required. No such
standards of quantification are available to justify establish-
ing a citywide bikeway network, however. The study of bicycle
*See pgs. 14, IS
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** See pg. 27
36
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transportation 1S in its infancy in the United States. Indeed,
serious consideration might never have been given to bicycling
as a viable transportation alternative had this country not been
faced with an immanent energy shortage.
The State Department of Transportation, through the
Metropolitan Planning Organization process, serves as the lead
transportation planning agency in Florida. In its comprehensive"
plan element, one of the stated policies 1S the improvement of
bikepaths. "This (bikepath improvement) policy is favored by
energy, safety, and recreational considerations, and recognizes
the fact that bicycles have become a mode of transportation as
well as a form of recreation."ll However, even the State does
not attempt numeric justification for this policy.
One of the stated goals of the policy of bikepath improve-
ment is energy conservation, by encouraging the substitution of
"pedal power" for petroleum. It seems reasonable to assume that
the absence of adequate bikeways deters some people from using
their bikes for transportation purposes. If establishing the
bikeway network encourages replacement of automobiles with
bicycles, even to a very limited degree, a net savings to the com-
munity can be demonstrated. By 1995, Clearwater is expected to
have a population of roughly 137,000 people. Assuming only 1,000
people per week (less than 1 percent of the population) use bicycles
to replace just one-third of one percent (0.3%) of their weekly
auto trips, the following savings would be realized:
lIThe Florida State Comprehensive Plan Transportation Element.
37
Net travel miles replaced:
10,000 miles per week*
or:
520,000 miles per year
Net fuel savings at 20 mpg:
26,000 gallons per year
e
Overall dollar savings at
20~/mile: $104,000 per year
These savings would accrue to the individual bicyclists. Savings
to the city could be realized from a decreased demand on roads,
which could result in reduced road maintenance requirement and
.
less traffic congestion, which could possibly result in postponing
or eliminating road improvements which might have otherwise been
needed, depending on the number of people who take to their
bicycles.
At present however, neither the existing bike routes nor the
roads are overcrowded with bicyclists. ~\fuile there is no question
that such a network would be utilized, there is as yet no clear
answer to the question of' what amount of utilization would justify e
establishing such a network. Likewise, there are as yet no
quantified standards of utilization which could be used to evaluate
the success of such a network once it is completed. For this reason
the figures used in the preceding paragraph are conservative
estimates of potential savings. Nonetheless, it is proposed that
attempts be made to learn more about bikeway users. Once phase I
of the bikeway network is on the ground, an evaluation program can
be instituted. This evaluation should follow traditional traffic
engineering practices.
Using such methods as traffic counts and
origin/destination surveys, it will be possible to discover
characteristics of bicyclists and bikeway users. The knowledge
*Rate derived assuming 15,000 miles per year total vehicular travel e
per person
38
thus gained could be used to reevaluate and redesign the remainder
of the plan as needed. Though inferences will still be necessary
tt to assess the number of potential bikeway users, such inferences
will be able to be drawn from a local data base, making it possible
to establish a bikeway network more closely tailored to the transporta-
tion needs of Clearwater's citizens.
CONCLUSION
The traditional argument against building good bikeway networks
is that not enough people presently utilize their bicycles for
transportation purposes to justify the expenditure. The traditional
reply is that more people do not utilize their bicvcles for trans-
portation because they lack safe and efficient bikeways. The question
of how many bicyclists are enough cuts both ways and remains
unanswered. The success of European bikeway networks are pointed
tt to by both sides of this argument; by the latter as an example of
the transportation-role bicycles can play in a modern western
industrial society, and by the former as an historically unique
solution not applicable to American cities. Facts and figures are
used to swamp both arguments.
In the last analysis, cold facts and hard figures elude the
problems of justifying and evaluating bikeway networks. Yet out of
the bikeway planning experience certain conclusions can be drawn
which are relevant to making the decision to establish a bikeway
network in Clearwater. First, there is a difference between
recognizing the fact the bicycling is a mode of transportation and
actually encouraging increased utilization of this socially and
tt
39
economically desirable mode. Second, no plan, however soundly
based on safety statistics, design data, or interpolations of the
coming economic and social future, can encourage bicycling as a mode
of transportation unless it is actually carried out. For too many
counties and municipalities, a mere plan, ostensibly adopted yet
never implemented, is the only recognition or encouragement extended
to bicycling as a mode of transportation. Adoption of this plan
will expand the future transportation options available to Clear-
water's citizens only if such adoption carries with it the force of
genuine commitment to this end.
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66
SELECTED BIBLIOGRAPHY (Cont.)
Hayes, James J., "Planning a Bikeway", Bicycle Manufacturers
Association, Washington, D. C., 1976
--
International City Management Association, "Planning and
Development of Bikeway Systems", Washington, D.C., no date
Institute of Transportation and Traffic Engineering, Bikeway
Planning Criteria and Design, School of Engineering and
Applied Science, University of California, Los Angelos, 1972
Iroquois Research Institute, "The Guidelines and Criteria for
Bikeway and Bike Path Network Planning in Metropolitan
Centers", Environmental Protection Agency, Office of
Transportation and Land Use Policy, Washington, D.C. ,no date
Kentuckiana Regional Planning and Development Agency, Applicati.on
for Bikeway Demonstration Program, Louisville, Kentucky, 1976
}lid-Ohio Regional Planning Commission, Regional Bikeway Plan,
Columbus, Ohio, 1975
National Technical Information Service, "Bikeways, State of
the Art, 1974", Springfield, Virginia, 1974
Office of Management and Budget, Catalo~ue of Federal Domestic
Assistance, Washington, D.C., 1 76
Oregon S ta te High1ilay Divis ion, "Bikeway Des ign Manual", Salem,
Oregon, no date
--
Percival, John 0., "Checklist for a Community Bikeway Program",
Pinellas County, Florida, 1972
Pinellas County Planning Dept., Pinellas County Bikeway Plan,
Pi.nellas County, Florida, 1972
Pinellas County Planning Department, Pine11as Area Transportation
Pinellas County, Florida, 1972
Pinellas County Planning Department, Pinellas Area Transportation
i~~fY Tran~portation Improveme~t pro~ram FY 1977-78 Through
-82, Plnellas County, Florlda, 1 77 .
Voorhees and Associates, ~ity of Clearwater Thoroughfare Plan,
Clearwater, Flori a, 19}7
.
68
SELECTED BIBLIOGRAPHY
-
American Association of State Highway and Transportation 'Officials,
"Guide for Bicycle Routes", Washington, D.C.
Barton, Aschman and Associates, Bicycling in Tennessee: ~
Planning and Design Manual, St. PaUl, Minnesota, 1975
Barton, Aschman and Associates, ~ Bicycle: ~ Plan for Its Use
as a Mode of Transportat~on and Recreation, (done-rGr-cne
Atlanra-Regfonal Commission)~t. Paul, Minnesota, 1976
Bicycle Manufacturer's Association, "A Review of the 1976 U.S.A
Bicycle Market,", Washington, D. C. 1977
Bureau of Outdoor Recreation, Planning for Statewide Bicycle
Routes The North Carolina Experience, U.S. Dept. of
the Interior Bureau of Outdoor Recreation, Technical
Bulletin No.5, 1977
City of
City of
e City of
City of
City of
Dunedin Planning Department, Dunedin 2000, CitI of
Dunedin Comprehensive Plan, Dunedin, Florida, 977
Largo Recreation Department, ~tty of Lar~o Bicycle
System Study (Draft), Largo, orioa, 19 7
St. Petersburg Planning Department, "St. Petersburg
Bicycle Route System", and "St. Petersburg Bicycle Route
Map", St. Petersburg, Florida, 1976-7
Tempe Planning Department, Tempe Bikeway Study,
Tempe, Arizona, 1972
Tempe Planning Department, Te~e Bikeway Study
Preliminary Plan and Recommen ations, Tempe, Arizona, 1973
Cleckner, Robert M., "The Nuts and Bolts of Bikeways", Bicycle
Manufacturers Association, Washington, D. C., 1976
Florida Department of Transportation, Manual of Uniform Minimum
Standards for Design, Construction ana-Maintenance of
Streets and Highways, Tallahassee, FTOrida, 1976 --
Florida Department of Transportation, The Florida State co~rehensive
Plan Transportation Element, TarIahassee, Florida, 977
Hamil, James P., "Planning and Development of Bikeway Systems",
Urban Land, 1973
.
67
e
OR.QI:\_-\~-;CL :\0. 2796-32
~-\~; ORDI!'-:..D:..NCE OF .:--EE CrT"':!:," I:JF CL.2.A.R \V~A.. TER, FLORIDA,
COMPL YI!'iG WITH THE "LOCAL GOVERNME"-'T COlvlPRE-
HE"-'SIVE PLANNlNG ACT OF )<)75", AS A?\lEeJDSD;
ADOPTING THE COASTAL ZONE MAKA.GEME!'iT ELEME"-'T
AS PART OF THECOMPREHSN8VE PLAN FOR THE ENTIRE
CITY OF CLEARWA TER, FLORIDA; ADOPTlI'\G THE ATTACHED
EXHIBIT; PROVIDING FOR PROPER NOTICE OF PROPC:S ED
ENACT?-fENT; AND PROVIDI:'iG FeR THE EFFECTIVE
DATE OF THIS ORDINA.:-iCE,
BE IT ORDAINED BY THE CITY COMMISSION OF
THE CITY OF CLEARWATER, FLORIDA:
Section 1. The Coastal Zone Management Element of the Cornprehensi,'e
Plan as required by the "Local Government Comprehensive Planning Act of
1975", as amended, and as set forth in the attached exhibit, described as:
Composite Exhibit A - Docwnent entitled "Coastal Zone
Management Element", consisting of a table of contents
sheet and 54 pages,
is adopted in accordance with the "Local Government Comprehensive Planning
Act of 1975", as amended, for the entire City of Cleawater, Florida.
Section Z. The attached exhibit described as:
e
Composite Exhibit A - Document entitled "Coastal Zone
:Aanagement Element", consisting of a table oi contents
sheet and 54 pages,
is adopted as part of this ordinance as ~f it was set forth in full herein.
Section 3. For the purposes of t.l:1is ordinance, the area encorrpassed
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by this ordinance shall be described as:
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The entire area within the present boundaries of the
City of Clearwater as such boundaries are expanded and
redefined by future annexations, and the City of Clearwater
service area which service area is furth"r described as follows:
Bounded on the West by the Gulf of Mexico, on the North by
the centerline of Dunedin Pass; thence Southeasterly to a point
in St. Joseph's Sound approxi.-naLely 700 feet Southeast of
?vfoonshine Island, excluding Moonshine Island; thence due ':::ast
through St. Joseph's Sound and along union Street to Keene Road;
thence due North to ':ounty Road 34; thence due East to the
Southerly extensi,m of County Road 70; thence due North along
County Roa.: 70 to State Road 580; thence due East to U. S. Highway
19, excluding the Dunedin Industrial Fark; thence aue North to
Curle"" Creek; thence Easrerlv to McMullen-Booth Roa.:;
thence due South. approxi.mately 5, -too feet '0 City-owned prope::ty;
thence due E:ast app:-oxL'"Tlately 2, QOO feet; t...~ence Z--iort."-1 330
feet; thence E:ast 670 feet; trence due South approxirr:ately 3,000
feet to State Roa.: 580: :..;"ence West and Sout.'owest to ?vfc~\1uller.-
Booth Road; ~hence due Sour.,., to L'J.e cE:-!te:i::"l:ne of ...;lligatc r C:reek;
thence East along A.ll.igator C:::-~e~ anc: :::e SOUt....1e:-:: share of
Alligator Lake and Arlie Drive te Coope.r's 3ayot; arlC C"p?er Old
Tarr.pa Bay a:l the way to t1:e Cl"ar".vater_ Tarr.pa City LiIT..its
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and ?inellas-Eil:i.sbcrough County limits; thence cue South
to t.he Courtney Campbell Causc\vay; L':ence \Vesterly,
Southwesterly, and Sou:herly along the shoreline of Old
Tampa Bay to t..~e centerline of A'\llen: 5 Creek; thence East
to U. S. 19; w'1ence NorL.'-l to 3ellair Road extended; thence
due West on Bellair Road to the Seaboard Coast Line Railroad
tracks; thence due North to and along Ft. Harrison Avenue
to D Street; thence due West approximately 150 feet; L.'1ence
a".le Nor-th to E Street; ~hence due Vlest to ~th AVE:2.ue; :hence
due North to A Street; L.'1ence due East to Ft. Harrison Avenue;
~e=-lcC due :\ort.b. to 'yVat.l<;.ins St~eet; thence due \Vest to \\"aters
Street; thence due North approxi..'"!1ately 700 feet; thence West
to the L'ltracoastal Waterway; thence South--Southwest
approximately 6,000 feet; thence due West to the Gulf of Mexico.
Section 4. All required and optional elements and parts of the
Comprehensive Plan as required or al1nwed by the "Local Goverrunent
Comprehensive Planning Act of 1975", as amended, which are set forth in the
attacr.ed exhibit adopted herein, are hereby adopted as part of this 0 rdinance.
Section 5. All development undertaken and all actions taken in regard
to development orders, all land development regulations enacted or amended
shall be consistent with this Plan and such element and part thereof in regard
to :he land covered by t..!].is element and ?ortions of the Comprehensive ?lan
as hereby adopted shall be consistent with this Plan and each element and
?ar: thereof.
Section 6. Notice of the proposed enaconent of this ordinance has
been properly advertised in a newspaper of general circulation in accordance
with Section 166.041, Florida Statutes.
Section 7. All public hearings and public participation required
pursuant to Section 163.3181, Florida Statutes. and Section 163.3184, Florida
Statutes, has preceded the consideration of this ordinance.
Section 8. This ordina:J.ce is hereby adopted and shall be considered
henceforth adopted for the purposes of Section 163.3184 (7). ?l.orida Statutes,
and shall become effective immediately upon its passage.
PASSED ON FIRST READING
AUG 5 lS82
PASSED ON SECOND AND FL.'iAL
?E.o\DlNG AND ADOPTED
AUG 1 9 :932
_;. tte s t:
S/Lucille Williams
S/Charles F. leCher
Mayor- Commi5sioner
City Clerk
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CITY OF CLEARWATER, FLORIDA
April, 1982
CITY COMMISSION
Rita Garvey - Commissioner
James Berfield - Commissioner
Paul Hatchett - Commissioner
James Calderbank - Commissioner
Charles F. LeCher - Mayor-Commissioner
Anthony L. Shoemaker - City Manager
PL~NING AND ZONING BOARD
Jan Regulski - Chairman
Robert Bickerstaffe - Vice-Chairman
Sallie A. Parks
C. Michael Canan
William R. Goodwin
John Kuntz
Edward Mazur Jr.
George Anderson
William Turner
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COASTAL ZONE MANAGEMENT ELEMENT
TABLE OF CONTENTS
Natural Environment
Intergovernmental Coordination
Goals and Policies
CQastal Neighborhood Analyses
Implementation
Bibliography
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31
48
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, NATURAL ENVIRONMENT
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COASTAL ZOiJE HANAGEHENT ELEvIENT
Natural Environnent
Introduction
Clearwater's coastal zone contains varied geologic and
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biologic communities, which form distinct yet interrelated
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parts of the coastal system. These include exposed barrier
beaches, vegetated bluffs, salt marshes, estuaries and tidal
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flats. Each of these systems will be examined in depth, and
its importance in the coastal environment nade explicit.
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However diverse Clearwater's marine systems may appear
they do not nearly encompass the gamut of marine environments.
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Beaches in other parts of the world are composed of rock cliffs,
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or pebbles, or coarse sand. Offshore environments elsewhere
are composed of rock substrate or coral reefs, atolls or man-
grove islands.
Climatic and wind conditions in other parts of
the world may result in drastic tidal changes, or radical seasonal
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shifts in storm patterns. Chemical and thermal environments
differ from area to area. Because the number of different
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coastal environments is so vast and the breadth of man's know-
ledge is relatively shallow, the study of marine environments is
a constantly expanding field, one which frequently presents more
questions than answers. The information contained in the
following section of Clearwater's Coastal Zone y[anagement Plan
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represents the current state of generally published kno\~ledge
concerning the local coastal environments. However, at this
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point it is important to acknowledge that much is yet to be
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learned. An underlying assumption of the City's plan will be to
anticipate that the future will provide better information
regarding coastal processes. Until such time as expanded
knowledge provides better guidance for man's influence on
nature, the degradation of such finite resources as are
currently available should be avoided.
Barrier Beach Systems
The retreat of the sea during the Wisconsin glacial era,
40,000-50,000 yea~s ago, resulted in the emergence of the land
mass which is today recognized as Pinellas County.l Prior to
that time, much of what is now Clearwater was under water.
Formation of the barrier islands is believed to be the result
of the sorting action of waves and littoral currents. The
sources of littoral materials which formed these islands is
not known;2 however, they appear to be derived partly from the
off-shore bottom and partly from the erosion of other beaches
and islands in the area.
Although the origin of local barrier islands rema~ns
unclear, a comparison of maps charts their location. Barrier
islands and shorelines are not static. Their changing shape
1. Beach Erosion Control Study, Pinellas County, Florida,
U.S. Army Corps ot Eng~neers, 1966 p. 10.
2. IBID p. 11.
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is a function of several factors.
Studies have shown that
the sea level is rising along the U.S. Coastline at a rate
of 6-12 inches per century.3 Although the absolute rise may
seem insignificant, when the relatively low relief of Gulf
Coast beaches is considered, a one foot increase in water
level can result in a significant incursion of tidal waters
into previously dry sand area. Sea level rise occurs
independently of the effect of littoral forces, commonly
referred to as erosion.
FI GURE 1
*ILLUSTRATION OF SEA LEVEL RISE
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BEACH AREA 1.0SS
- APPftOx. 100x~
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PREVIOUS_S..tI2.R~~NE
'::. ----
PREVIOUS MEAN SEA !..Eva....
The amount of beachfront lost due to sea level rise is a
function of both the absolute increase in sea level and the
beach slope. Where the beach is relatively flat, a small
increase in sea level can result in a significant loss of
beach land.
Source: Clearwater ?lanning Depart~ent, from Coastal
Environmental .\fanagement, John Clark, ea.
*~ote: Illustration not to scale.
.).. Coastal Environmental ~!ana<;;ement, The Conservation
Foundation for the Council on environmental Quality,
;~.ashington D.C., 1930 p. 82.
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Due to wave diffraction from irregul~r topography, waves
tend to strike the shore at an oblique angle, however, they
recede from shore at a perpendicular angle. The result of
this action is the creation of a longshore current which runs
parallel to the shore.4 Sand and other fine sediments are
carried in this longshore current, the velocity of which is a
function of wave height and angle. This sediment transport
is commonly called beach erosion. Although the rate varies
with wave patterns, erosion is a constant process. Waves,
which are formed by wind traveling over water, are themselves
of function of the distance the wind travels over water and
the water depth. The narrow radius of the Gulf of Mexico
and the shallow off-shore depths result in a lower energy
wave pattern than that generated ln open oceans.
4. Principles of Oceanography, Richard A. Davis, Jr.
Addison Wesley Publishing Co., 1972 p. 110.
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FIGURE 2
DYNA..\IICS OF LITTORAL DRIFT
BEACH
Source: Clear~ater ?lanning Depart~ent, =~om Coas,ai
Ecosvstem ~ana~ement. John Clark.
From the area of Indian Rocks Beach northward, littoral
drift in Pinellas County generally runs from south to north.
Along a smooth, straight coast, littoral drift acts in a fairly
predictable fashion carrying sediment continuously up the
beach. Where the coastline undergoes an abrupt change in
direction such as at the location of bays or inlets, sediment
is carried into open water and deposited to form a sandspit.
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Refraction of waves around the end of the spit causes a
characteristically. recurved (landward) pattern.S Examples
of a recurved spit are the northern tip of Clearwater Beach
island, and a sandbar which has been created by littoral
drift just west of Hurricane Pass. Pinellas County's beaches
have been described as a closed system6, with little net change
in the total amount of beach sand, but with continuous, gener-
ally predictable, changes in its location. Erosion along the
beach face is generally matched by accretion elsewhere in the
beach system. Natural systems adapt easily to such changes;
rigid man-made systems do not.
Immediately behind the water's edge, there generally
forms a single berm, which marks the upper limit of ordinary
high tides.7 Then one encounters the area known as the beach
ridge; this is the dry sand area which is commonly referred
to as "the beach". Landward of the beach ridge, a natural
dune system tends to develop on high energy sand beaches.
Dunes are formed in large part by windborn conduction of
sand particles which are deposited or become trapped in
vegetation. Due to the low energy level of most of Clear-
water's beaches, the dune system is not very extensive. Use
5. The Earth Sciences, Arthur N. Strahles, Harper & Row,
New York, 1971, p. 682.
6. Andy Nicholson, Telephone Conversation, 1/29/81.
7. Coastal Ecosvstem Management, John R. Clark, John Wiley
& Sons, New York, 1976 p. 14S.
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of the beaches for housing, commerce and recreation has re-
moved all but a few of the area's truncated natural dunes.
Dunes tend to develop in fields, in ridges parallel to the
ocean. Each successive dune ridge is higher, with vegeta-
tion systems ranging from delicate grasses on the foredune
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to mature hardwoods in the rear. Dune systems in south-
western Florida generally lack this final forest zone.8
On a narrow barrier island, the dune system tends to
merge almost immediately into the bay-influenced shorefront.
Because of the protection afforded by the seaward land mass,
the bay system has extremely limited wave action, although
bay waters do have (often significant) tidal influences. Bays
and estuaries such as Cooper's Bayou are among nature's most
productive ecosystems.
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8. ~Stabilization of Beaches and Dunes by Vegetation in Florida;'
John H. Davis, Jr. Florida Sea Grant Program, Report ~umber
i, 19i5, p. 17.
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FIGURE 3
BARRIER ISL~~D FO~\~TION
-----...
..l .~. :.....:;" . ;. :'.: . :.d-:t.~"....
--
. t:;: " ';' ',." .....~ ."....
..';~~_T.- . ..
Stage 1 - Littoral forces result in emergence of a sand
bar. Grasses trap wind-borne sediments to be-
gin creation of a dune.
Stage 2 - Trapping of sediment continues. Overstory vege-
tation begins to grow in the protected area be-
hind the primary dune. Marsh grasses continue to
establish community on the landward side o~ the
barrier island.
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Stage 3 - Protection provided by the pri~ary dune allows I
trees to grow to full height. Saltwater swamp
emerges on the protected landward side of the island.
Stage 4 - Climax stages emerge in overstory and swa~p en-
vironments. Accretion process concinues, with
the beginning of a new dune system on the sea-
ward side of the island.
Source: Clear.....ater Planning Derart:nent, from De-si"n. ',lith \i;;tur!', ran ~tcl!ar;\.
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Estuarine Systems
There are several general characteristics of estuarine
systems. Waters are brackish, reflecting the mixture of salt-
water inflows and upland drainage. Vegetation types are
varied, and reflect adaptation to a changing environment.
The limits of vegetation are more extensive than on barrier
beaches; often a solid band composed of varying vegetation
types will start on the upland and carryon into the water.
The richness and diversity of plant species is also apparant
ln the animal life.
Upland areas form the bulk of the land mass in Clearwater.
Although coastal waters influence the climate and wind patterns
of uplands, only "in those low lying areas identified as flood
plains do marine forces directly (and then only occasionally)
affect uplands. The converse of this statement is not true.
Because rainfall on upland areas flows into estuarine areas,
development and modifications to uplands can have serious
impacts on marine life.
As water is gathered into streams and ponds and continues
its flow to the sea, it carries with it both organic and
inorganic sediments. Intermediate settling areas may be
provided in freshwater swamps or marshes such as those along
the upper reaches of Alligator Creek. Where these freshwater
lowlands exist they form an important part of the estuarine
system. During periods of heavy rainfall, they absorb and
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detain runoff, allo'ving nutrients and silt to settle out.
At all times, roots of vegetation stabilize soil preventing
erosion. This thick vegetation provides habitat for birds
and other wildlife which are frequently displaced by urban-
ization.
Saltwater swamps and marshes have soils which are
composed of sand, silt and a high proportion of organic
materials. These soils are wet and unstable. Saltwater
swamps are generally composed of mangrove trees. Mangroves
occur In progression, with buttonwood or button mangrove
found In transition areas between uplands and tidelands.
White, black, and red mangroves occupy successive seaward
areas, with the red mangrove frequently being submerged at
low tide. Two other plant species which occur in saltwater
swamps are the non-native Australian Pine and Brazilian
Pepper. Due to the thick overstory, swamps have few grasses
or shrubs.
.Saltwater marshes have hydrolgic and soil conditions
similar to those of saltwater swamps, however, the marshes
lack extensive overstory vegetation. Saltwater marshes are
dominated by cord grasses and the saltwater rush. Marshlands
frequently occur near and make a transition to saltwater
swamps.
Research has shown the importance of estuarine systems
In the overall health of the marine environment. 0[arine
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wetlands perform many of the same nutrient storage and filtra-
tion functions as freshwater wetlands. In addition, they play
a vital role in the life cycles of marine animals. Estuarin~
waters present a unique set of components. Decomposition of
mangrove leaves yields micro-organisms which live on this
floating detritis. These micro-organisms, in turn serve as
much of the protein food of smaller aquatic animals.9 In
addition to supplying feed for game and other fishes, estuaries
also support larval stages of fish species. Were it not for
the links in the food chain provided by estuarine resources)
both sport and commercial fishing would be essentially non-
existant.
Saltwater wetlands often are not vegetated all the way
to the low tide level. In several portions of Clearwater's
~oastal zone, the diminished (or absent) wetlands give way to
tidal flats, which are exposed at low tide. Flats can provide
feeding grounds for birds at low tides and fish and crustaceans
at high tides. Theyalso serve a nutrient storage function.10
A notable feature of estuarine waters are submerged grass
beds composedof turtle grass and shoal i.,reed. Grass beds are
highly sensitive to changes in turbidity and salinity, and
provide habitat in a fashion similar to saltwater wetlands.
In addition, both saltwater wetlands, tidal flats and grass
beds augment water quality providing filtration and settling
areas for upland drainage.
9. Coastal Ecosystem Management, Clark p. 36.
10. Coastal Environmental Management, Clark p. 52.
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FIGURE 4
DIAGRA~{ OF MANGROVE COLON'Y
ADVEHTTTlOUS ROOTS......
Note the location and configuration of mangrove roots,
whi~h physicalLy assist in stabilizing shoreline soils,
decreasing .energy of incoming waves. The biological
function of mangrove colonies is shown schematically.
Much of the biological functioning of mangrove areas
is carried on at the microscopic level.
Source: Clearwater Planning Department
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The Hand of Man
As illustrated in Figures 5&6,much of Clearwater's coast-
line was not formed by nature, but by man. Memorial Causeway,
Island Estates, part of north Clearwater Beach and Clearwater
Point are several examples of man-made areas. Dredge and fill
operations have provided more land for housing and commerce,
however, they introduce a two-fold negative effect on the
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environment. First, ecologically productive areas such as
the mangrove islands which were used as the basis for Island
Estates and the eastern shore of Clearwater Beach were
destroyed. In addition, drainage run-off carrying fertilizers,
pesticides, oil and metal, now flows from the created
urban area. The creation of long narrow finger fills results
in dead-end canals which suffer decreased tidal flushing, Silt
and pollutants eventually build up in canals, and require
mechanical dredging.
In addition to the creation of new land, engineering
solutions have been sought to modify the effects of littoral
drift. Although the net annual changes in sand volume on the
barrier islands are relatively small, localized changes are
significant. For example, the net annual change on Sand Key
is 200 cubic yards of erosion over the entire barrier island,
however, the net annual change on the northern end of the island
is a loss of 33,000 cubic yards of sand.ll Corrective actions
taken in the past have included placement of 30,000 cubic yards
of fill on the public portion of Clearwater Beach in 1950,
11. Beach Erosion Control Study, Pinellas County Florida,
U.S. Army Corps of Engineers, 1966, p. 19.
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,and construction of a 500 foot concrete pier-groin in 1952.12
The objective behind construction of groins, concrete or wood
barriers which extend seaward perpendicular to the beach, is
interception of sediment trapped in the longshore current.
Under the best of circumstances, groins accumulate sand by
starving the updrift areas. When groins are improperly built
they may actually divert the longshore current and cause sediment
to be deposited offshore) resulting in a net loss of sand. Pri-
vately built groins were placed on Sand Key and Clearwater
Beach. It appears that most of these groins have had little
long-term effect on littoral processes. The only instance
where groins have had an appreciable effect on beach profiles
are at the Pier 60 and in the vicinity of Mandalay Park,
where they have enlarged the beach.
Historical information included in the beach erOSlon
control study completed by the U.S. ,-\rmy Corps 0:: engineers
in 1966 sho\I/"s accretion on the northern tip of Sand Key at
Clearwater Pass. Providing for continued navigability of the
pass has required extensive improvements. The U.S. Army
Corps of Engineers recommended the construction of a stone
revetment along the southern end of Clearwater Beach. This
reve tmen t \<las no t buil t, but pro13e rty owne rs di d depos it
rock and rubble along the shoreline to provide very limited
shoreline protection. In 1975 a 4200 foot stone jetty was built
extending seaward from the northern end of Sand Key. Currentl;'
12. IBID p. 17.
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additional work is underway in Clearwater Pass. Based
on research conducted by the University of Florida, the City
is dredging sediment from the eastern and western ends of the
pass. This material (an estimated 1 million cubic yards of
sand) will be used to stabilize the bridge pilings and create
a beach system on Sand Key. This beach system will include
vegetated dunes with provisions for pedestrian walk-over
structures. In addition, a 550 foot long jetty has been
built on the south end of Clearwater Beach. The objective
of these improvements is the stabilization of Clearwater Pass
and protection of the bridge.
Summary
With a 1980 census population of 85,528 in the incorporated
City of Clearwater and an estimated 25,000 visitors and part-
time residents in the City during peak tourism periods, it is
not surprising that Clearwater's coastal environment has been
extensively modified. Although maps can depict the physical
modifications to the environment, the degradation of natural
systems is less well documented. That the early Indian settlers
subsisted primarily on a diet of shellfish is apparant from
archaeological surveys of the Clearwater harbor area. Reports
from early white settlers tell of mullet runs so thick that
housewives could catch fish in their aprons at the foot .of
Turner Street. But it takes a vivid imagination to visualize
lush mangrove shorelines instead of the bays ide seawalls on
Clearwater Beach. Likewise shellfish harvest is now limited
-17-
to areas off the Anclote River, and mullet fishing in
Clearwater Harbor is diminished by both scarcities of fish
and conflicts with residents of land adjacent to waterways.
Clearwater's population has grown from in-migration
rather than by natural increase. New residents have increased
the overall wealth of the area and their influence has largely
been responsible for transforming the economy from a seasonal
to a twelve month basis. However, many residents lack an
awareness of or sensitivity to the natural processes which
operate ln a subtropical coastal environment. This is parti-
cularly critical in the area of hurricane preparedness, but
also pervades other aspects of collective decision-making.
In describing tile effects of a beachfront storm, Ian :.Icdarg
makes the following observations:
" Fro m the f i f t h tot h e e i g h tho f ~!a r c h 196 2, t he r e
came retribution. A violent storm lashed the entire
northeast coast from Georgia to Long Island. For
three days sixty-mile-an-hour winds whipped the
high spring tides across a thousand miles of
ocean. When the storm subsided, the extent of the
disaster was clear. Three days of storm had pro-
duced eighty million dollars worth of damage,
twenty-four hundred houses destroyed or damaged be-
yond repair, eighty-three hundred houses partially
damaged, several people killed and many injured in
New Jersey alone. Fires subsequently added to this
destruction; roads were destroyed, as were utilities.
There were, of course, other significant losses,
not least the expectation of income from tourism,
which is the major economic base of the New Jersey
Shore. In addition, this place, thought to be a
resource for the region, looked a sorry sight. For
the majority of people the damages were compounded
because little was recoverable by insurance. ~lany,
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13.
many people now make mortgage payments on houses
that were bulldozed into the bay. Yet all of
this disaster was caused by man through sins of
commission and omission.
Immediately after the disaster, giant bulldozers
pushed the wrecked houses into the bay or burned
them in great funeral pyres; sand dunes were
re-formed, streets exhumed from under the over-
burden of sand and slowly houses reappeared to
fill the selfsame sites of those that had been
swept away. The commonest problem was the
exposure of foundations; those houses that had
sat high on the dune commanding a view of the
sea, found the sand swept from under them and
there they stood, floors fifteen feet above the
sand, grotesquely leaning, supported on their
exposed telegraph pole foundations. But not all
of them. In a remarkable example of wisdom and
virtue rewarded, in those rare cases where the
dune was stable and unbreached, clothed in
grasses, the houses endured, suffering only
broken windows and lost shingles.
The evidence is there to be read. The record of
cause and effect constitutes the common knowledge
of natural scientists. But the status quO ante
is being reconstituted without direction-Gr----
constraint. The future seems clear; the New Jersey
Shore lies in the path of hurricanes. Winter storms
are even more regular. Sandbars are recent and
ephemeral, there is no assurance that they will
endure. There is no reason to believe that the last
storm was the worst. In the ~etherlands it was a
thousand-year storm, which took almost two thousand
lives and caused untold damage, all but inundating
this best prepared of people. What can the most
unprepared people of New Jersey expect? We hope
for the best, but it would be sanguine to expect
anything less than disaster.
May it be that these simple ecological lessons will
become known and incorporated into ordinance so
that people can continue to ~njoy the special de-
lights of life by the sea. Ill.)
Design with \ature. Ian ~!cHarg,
Garden, \ew York, 1969 pp. 22 &
Doubleday & Co.,
23.
-19-
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INTERGOVERNMENT AL
COORDINA TION
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Intergovernmental Coordination
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Federal, state and local regulations have increased
dramatically since the last half of the 1960's In the areas
of environmental protection and quality. Much of the in-
crease in regulating activity was due to acknowledgment
of the fragile nature of the nation's coastal zone and the
intense conflicts WhICh were occurring there. 1'>[any of the
federal regulations have designated state and local agencies
to implement their objectives. Thus, state and local govern-
ments have created agencies and programs aimed at providing
appropriate planning and management for coastal areas.
The matrix on the following page was created to summarize
the complex and diverse roles and responsibilities for coastal
area regulation. The matrix outlines regulated activities
in the coastal zone and the appropriate governmental agenCIes.
The extent and nature of agency activities are also included
in summary form. A complete discussion of regulatory acti-
vities in coastal areas is included as Appendix B of this
report.
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. GOALS AND POLICIES
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Goals and Policies
OVE~~LL GOAL
All public and private actions taken in the coastal
zone shall have the effect of preserving or enhancing
existing natural and man-made systems.
OVERALL POLICY
Review of all applications and ~lans for public and
private development ln the coastal zone shall consider the
effect of the proposed action on the interrelated natural
and man-made systems.
ENVIRON~~NT
GOAL:
~laintain or enhance the quality of fresh and salt
water bodies in the city.
POLICY: Point source discharges shall be encouraged to use
the best treatment practices which are economically
and physically possible prlor to discharge in surface
waters.
POLICY: New development shall, to the maximum extent feasible
provide on-site detention of surface runoff to allow
for settling of pollutants prior to discharge. Where
on-site detention is not feasible or where determined
preferable by the City, payment to the City by the
developer of a monetary fee in lieu of detention may
be approved.
POLICY: Retrofit of existing storm water draihage systems shall
be undertaken, where feasible, to treat stormwater before
discharge. ~on-structural trea~~ent methods shall be
preferred.
-22-
POLICY: Any application for dredge, fill or shoreline
alterations shall demonstrate that the proposed
activity will not significantly degrade water
quality or other aspects of marine habitat,
either during or after construction.
GQ~~: The natural shoreline shall not be altered,
except in those areas where erosion threatens
public or private structures.
POLICY: Dredge and fill,other than maintenance dredging,
shall be permitted only when an overriding public
need for the proposed project has been demonstrated.
POLICY: Retention or enhancement of vegetated shorelines
shall be encouraged and extended where possible.
Seawall construction shall be limited to those
portions of the shoreline which are already pre-
dominantly protected by seawalls.
POLICY: Beach nourishment and/or establishment of natural
vegetation shall be preferred methods of protection
of those shoreline areas where erosion
threatens existing construction. Maintenance
dredging to provide beach nourishment shall not
be considered in conflict with foregoing policies.
~~~~~: Existing natural vegetation and related ecosystems
shall be preserved and enhanced.
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POLICY: Tidal swamps and marshes, tidal flats, mangrove
and related vegetation communities shall be
preserved from any public and private development
(except essential utility systems) which would be
expected to have significant, long-term impacts.
POLICY: No public or private development activity shall
alter or encroach on areas of marine grass beds
unless it can be shown that no degradation of
water quality or damage to grass beds is expected
due to such alteration or encroachment.
POLICY: Efforts shall be made to reconstruct environmentally
significant habitat areas, such as saltwater marshes
and grass beds.
GOAL: Increased use of landscape planting shall be en-
couraged to beautify existing and proposed de-
velopment in the coastal zone.
POLICY: Tree planting programs shall emphasize those areas
of the coastal zone which lack overstory vegetation.
POLICY: Landscaping shall be incorporated in design improve-
ments for arterial and collector streets in the
coastal zone. Landscape designs shall consider
the maintenance costs of landscaping, and shall
favor low maintenance trees and grass.
-24-
ECONOMY
GOAL: Maintain and enhance the existing tourism activities
in Clearwater.
POLICY: The scale of new or expanded tourism facilities shall
be consistent with the existing built and natural
environments.
POLICY: Tourism and related activities located in the coastal
zone shall be functionally linked with other sectors
of the community.
GOAL: Only those retail and services businesses which
serve resident or tourist populations shall be
located in Clearwater's coastal :one.
POLICY: Neighborhood-serving retail establishments sllall be
located to conveniently serve residents of the
coastal zone.
POLICY: No community or regional shopping facilities should
be located in districts where they would consume
coastal resources or add to traffic loadings in
the coastal :one.
?OLICY: Tourism-dependent retail and serVIce facilities shall
be located near or in hotel and motel areas.
GOAL: Industrial activities in the coastal zone shall be
limited to coastal-dependent uses.
POLICY: Boat repaIr and outfittin~ facilities shall be
buffered from adjacent non-industrial land uses.
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POLICY: Limited mariculture and fishing activities shall be
encouraged in Clearwater's coastal zone.
POLICY: The City shall actively oppose the exploitation
of off-shore mineral resources in instances when
there is reason to conclude that such exploitation
will significantly degrade near-shore marine waters.
PUBLIC SERVICES
GOAL: A pr1mary focus of the coastal zone shall be the
provlslon of recreational opportunities for
Clearwater's residents and tourists.
POLICY: Public recreation areas shall be located through-
out the coastal zone.
POLICY: Access to recreation sites shall be afforded bv
public and private transportation, and by foot
and bicycle paths.
POLICY: Recreation progra~s shall be offered at multiple
sites within the coastal zone.
GOAL: Transportation within and to areas ln the coastal
zone shall afford access to all of Clearwater's
residents and tourists.
POLICY: Alternatives to private auto~obile t~ansportation
(buses, vans, bicycles, walking) shall be encouraged
iG the coastal zone.
-26-
POLICY:
POLICY:
GOAL:
POLICY:
POLICY:
GOAL:
POLICY:
POLICY:
POLICY:
Where possible, major arterial streets should be
located outside the coastal zone as consistent with
State and County Coastal Zone Management and Thorough-
fare Plans.
Desian factors which facilitate use of public transit
o
(bus stops, adequate turn radii) shall be included
when any new parking facility is being considered.
Utility serVIces In the coastal zone shall be pro-
vided consistent with consumer demand and sound
principles of environmental management.
Sewage treatment facilities shall be constructed and
maintained so that water quality in areas receiving
treated effluent will not be significantly degraded.
New construction in the coastal zone shall provide
for on-site detention of storm water.
Public safety services provided in the coastal zone
areas of Clearwater shall provide for maximum pro-
tection of life and property and shall recognize the
unique attractiveness of waterfront areas.
Adequate fire fighting equipment and personnel shall
be maintained at centralized locations to serve
coastal zone areas.
Crime prevention activities shall focus on areas with
a high percentage of transient population.
Traffic control and enforcement activities shall be
used to facilitate iraffic flow through areas of high
traffic con~estion.
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POLICY: Design of improvements to major arterials within the
coastal zone shall include provisions for non-
vehicular access.
g9~~: Uses of iand in the coastal zone shall be consistent
with adopted city policies and plans and existing
natural and man-made systems.
POLICY: Wherever possible, transition between different uses
shall be facilitated by buffering mechanisms such as
opaque fencing and landscape strips.
POLICY: Density or intensity of permitted development shall
be consistent with patterns established on adjacent
parcels, natural and man-made infrastructure, and
oublic oreference.
. .
GOAL:
The long-term viability of the coastal zone as a
residential environment shall be ensured.
POLICY: Where residential redevelopment occurs, new housing
shall be consistent in scale and density with exist-
ing residential development.
POLICY: To the maximum extent feasible, housing for a variety
of income and tenure types shall be offered in the
coastal zone.
GOAL: Public and private develooment in the coastal zone
shall be conducted consistent with sound principles
of urban design.
POLICY: Consideration of proposals for new development shall
include the integration of the proposed project with
other. elements of the urban landscaoe.
-28-
POLICY: Publicly-owned properties (street ends, sidewalks)
shall be improved so as to provide continuity, link-
ages, vistas and other visual and ~hysical unifying
elements in the urban environment, as appropriate.
POLICY: Development of shore front property shall. to the
maximum extent possible, retain elements of the
existing natural' landscape.
GOAL: Cultural and educational opportunities which support
the effective functioning of coastal areas shall be
encour'aged.
POLICY: The City shall support, and encourage others to
support, the activities of the Clearwater :Vlarine
Science Center and like resource-oriented organizations.
POLICY: Public and semi-public institutions shall be so
located as to provide necessary serVlces to neigh-
borhoods located in the coastal zone.
POLICY: Preservation of archaeological sites, historic struc-
tures and coastal neighborhoods shall be encouraged.
GOAL: Limited expanSlon of marlna capacity, designed and
operated consistent with established techniques of
environmental management, shall be considered con-
sistent with Clearwater's coastal zone plan.
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POLICY: Marina construction shall not be permitted in or
adjacent to areas with active submerged grass beds
unless replacement grass areas in excess of area
lost are established, and unless it is demonstrated
that no significant degradation or water quality
will result from marina operations.
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POLICY: Expansion of marina capacity which utili:es the
existing shoreline shall be preferable to construction
which would require dredging and/or filling areas of
the shoreline.
POLICY: Any marina construction or expansion shall integrate
landside facilities (parking, landscaping) T,'I'ith sur-
rounding elements of the urban environment.
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GOAL: The City of Clearwater shall work to achieve maXImum
protection of life and property in case of natural
disaster in the coastal :one.
POLICY: The City shall cooperate \vith civil defense officials
and other concerned agencies in the development or
hurricane evacuation plans and procedures.
POLICY: The City shall periodically conduct training exerases
to insure that personnel are familiar with disaster
procedures.
POLICY: The City shall make available to residents and business
~eople in the coastal :ones information as to procedure5
to be followed in the event of an impending hurricane.
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I COASTAL
, NEIGHBORHOOD ANALYSES
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Coastal Neighborhood Analyses
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Because Clearwater's Coastal Zone is heavily urbanized, it lS
appropriate to consider the different areas as unique neigh-
borhoods. In the following sections of this plan the functional
design and environmental characteristics of the Coastal Neigh-
borhoods are considered. For purposes of analysis, eight coastal
neighborhoods have been delineated:
Sand Key
Clearwater Beach
Island Estates
North Harbor
Downtown
Harbor Oaks
North Tampa Bay
South Tampa Bay
The following maps contain recommendations for land use, public
works and private sector activities in coastal neighborhoods.
Appendix A of this plan element provides the analysis which
serves as the basis for these recommendations.
-31-
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Sand Key Neighborhood Analysis Summary
I. Functional Analysis
Current Conditions
Size: 233.7 acres
Population: 549
% vacant land: 32.9
Age of structures: less than 10 years
Road access: Gulf Boulevard, 2 lanes
Public facilities: none
Type of development: predominantly high density residential
Future Conditions
Population: 3527
Road access: Gulf Boulevard, 3 lane with landscaped medians
Public facilities: county park, Coast Guard Station
Type of development: predominantly high density residential
II. Main Design Features
Gateways: good entrance demarcation at north end, little at
south
Linkages: small trees planted along road, no continuity for
pedestrian usage
Scale: many tall buildings, some with inadequate setbacks which
overpower people and vistas
III. Natural/Environmental Features
Gulf frontage: seawall is being buried in beach re-nourishment
Bay frontage: southern 2/3 seawalled, some beach east of seawall
Erosion: severe along gulf shore, nourishment currently underway
Control structures: jetty at north end of key, some old groins
near the southern city limit on gulf
Grass beds/tidal flats: both present on bayside, mid and north
sectors of key.
Mangroves: limited, some in vicinity finger fills and Bayside
Gardens
~lajor drainage outfalls: localized drainage only
Areas of poor flushing: vicinity of finger fills, southeast
portion
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'- SAND KEY
I KEY I S SUE S
1. Protect grass be ds.
I 2 . Protect ti dal flat.
3. Protect exis ting
I dun e s .
4. Protect mangroves.
I 5 . Add/preserve vistas,
access po in ts (loca-
tions app ro xima te) .
I 6 . Monitor water quality
in outfall locations
I and finge rfi lIs.
7. Renew beach and dune s .
I OBJECTIVES ~N
, A. Provi de limited
neighborhood
commercial de ve 1 -
apment.
I B. Con tin ue existing
low-rise deve lop-
I ment pattern.
C. Landscape improve d
roadway. Consider use
I of landscaped medians,
Bo ulevard eras s - .
section.
I D. Develop j 0 0' O'in 0,/
'::'0 .::.
recreation path.
I E. Provide gateway.
F. Provi de pram/sail ing
I center launch site.
G. Provide public
safe ty facil i ties.
~ H. Develop compa ti b Ie ) ','\
County park. ~/.. "i,
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Clearwater Beach Neighborhood Analysis Summary
I.
Functional Analysis
Current Conditions
Size: 569 acres
Population: 3423
% vacant land: 2
Age of structures: varied, primarily from 1950's and newer
Road access: Mandalay Ave., Gulf Boulevard, Memorial Causeway
Public facilities: churches, parks, public beaches and marina
slips, post office, branch library, civic
center, fire station
Type of development: commercial/tourist in south and mid-
beach, residential in north beach
Future Conditions
Population:
Road access:
4063
maIn
ment
Public facilities:
network as existing. Intersection and align-
imurovements
as existing, with possible addition of
marina slips
Type of development: as existing. Redevelopment of older
parcels expected consistant with esta-
blished use patterns
II.
Main Design Features
Gateways: existing at Gulf Blvd. and Sand Key entrances, but
lack definition
Linkages: generally poor In south beach, somewhat better in mid
beach area
Scale: Massive scale established at south end of beach, lessens
in mid beach. Vast paved parking areas need more land~
scaping. Overall, inadequate pedestrian environment.
III.
Natural/Environmental Features
Gulf frontage: groin/piers at Pier 60 and ~!andalay beaches, older
groins elsewhere
Bay frontage: completely seawalled
Erosion: south beach face experienced erosion; north has accretion
Grass beds/tidal flats: some in bay opposite north and south tips
~langroves: none, were displaced by seawalls in 1930' s
Major drainage outfalls: vicinity public marina, Devon/Brightwater
Drives
Areas of poor flushing: old yacht club, public marina, Brightwater/
Bayside Drives.
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CLEARWATER BEACH
KEY ISSUES
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1. Protect dune areas.
2. Beach nourishment/
protection criti-
cally important.
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desirable.
4. Pretreat storm drainage.
S. Protect Grass Beds.
OBJECTIVES
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A. Preserve single-
family neighbor-
hood.
B. Maintain low/mid
rise developmen t
and neighborhood
commercial uses.
C. Develop boat basin.
D. Consider one-way
pairs/landscaping lmprovements
E. Enhance street-
scape wi th land-
scaping/street
furni ture.
F. Landscape parking
are as.
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Island Estates/Memorial Causeway Neighborhood Analysis Summary
I. Functional Analysis
Current Conditions
Size: 327 acres
Population: 2740
% vacant land: 4
Age of structures: less than 20 years
Road access: Island Way, 2 lanes divided; Memorial Causeway,
4 lanes divided with access road
Public facilities: one church, playground, Marine
Science Center, public marina slips
Type of development: primarily low density; high density and
commercial uses along Island Way
Future Conditions
Population: 4300
Road access: Island Way, Memorial Causeway as improved
Public facilities: church, playground, 0larine Science Center,
public marina slips
Type of development: some additional condominium units
II. Main Design Features
Gateways: well defined entry with landscaping islands providing
demarcation between types of uses, Memorial Causeway
has well defined gateways at both ends
Linkages: landscaped medians along length of Island Way and Memor-
ial Causeway, low scale bridges join islands
Scale: predominantly suburban residential scale; wide boulevard
somewhat offsets impact of tall structures on Island Estates
III. Natural/Environmental Features
Gulf frontage: none
Bay frontage: completely seawalled on Island Estates, no seawalls
on Memorial Causeway.
Erosion: some accretion along Memo~ial Causeway
Grass beds/tidal flats: tidal flats S. of Causeway, grass beds N.
of causeway and E. of Island Estates
Mangroves: present along N. and S. sides of causeway E. of Island
estates
Major drainage outfalls: located at connector bridges on Island
Estates and in vicinity of ~Iarine Science
Center
Areas of poor flushing: vicinity Ross Yachts, vicinity Palm Islands
E. of Island Way
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ISLAND ESTATES/MEMORIAL CAUSEWAY
KEY ISSUES
OBJECTIVES
1. Protect Grass Beds.
A. Expand capaci ty.
Maintain park llke atmosphere
2. Retain natural shoreline.
3. Consider structural/non-struc-
tural methods of stormwater
treatment to improve water
quality.
4. Require on-site detention
in developing high-density
area.
B. Develop Marine Science Center
C. Cons i de r traffi cope ra tion
improvements to reduce
acciden ts
5. Protect Mangroves.
-37-
North Harbor Neighborhood Analysis Summary
I.
Functional Analvsis
,
Current Conditions
Size: 226.8 acres
Population: 3302
% vacant land: ~.~
Age of structures: 1920's to 1970's
Road access: Ft. Harrison Ave. primary N/S artery, Osceola
Ave. N/S collector street
Public facilities: boat launch, marina, school playhouse,
shuffleboard/lawn bowling club
Type of development: older homes, some apartments. Commercial
along eastern boundary
Future Conditions
Population:
Road access:
3511
Ft. Harrison Ave. (as improved), Osceola Avenue
(with intersection improvements)
Public facilities: boat launch, marina, school, playhouse,
shuffleboard/lawn bowling club,
Type of development: redevelopment of some older parcels ex-
pected.
II.
Main Design Features
Gateways: upgrading of bridge approaches necessary; this serves as
northern visual Jemarcation line
Linkages: Good visual links along Edgewater Drive. Oak canopy/
narrow street serve as visual links along Osceola Ave.
Scale: Primarily low rise, with trees dominating landscape. Some
deteriorating commercial and residential properties.
III.
Natural/Environmental Features
Gulf frontage: none
Bay frontage: rip-rap placed to stabilize shore N. of Stevenson's
Creek; seawall line existing but discontinuous south
of Creek.
:rosion: along non-seawalled portions where vegetation is absent
Grass beds/tidal flats: located south of Seminole Marina and in
vicinity of Stevenson's Creek Outfall
~langroves: Limited; some along Edgewater Drive and vicinity Osceola
Ave. -Many in Stevenson's Creek E. of bridge
:.lajor drainage outfalls: Seminole Marina, other localized outfalls
Areas of poor flushing: Venetian Point, Seminole Marina
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NORTH HARBOR
KEY ISSUES
1. Monitor water
qualit~ retain mangroves.
2. Stabilize shore.
3. Preserve/
enhance vis tas.
OBJECTIVES
A. Develop linear
park, bicycle
path.
B. Develop landscape/
gateway.
C. Institute zoning
compatible with exist-
ing development scale.
D. Potential redevel-
opment area.
Eo Preserve existing
,tructure.
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Downtown Neighborhood Analysis Summary
I. Functional Analysis
Current Conditions
Size: 76.4 acres
Population: 780
% vacant land: 0
Age of structures: primarily 1950's to 1975, some older
historic structures
Road access: SR 60, Ft. Harrison Ave., Pierce St. loop
Type of development: government center, high density resi-
dential, commercial
Future Conditions
Population: 893
Road Access: possible improvements to SR 60 and Memorial
Causeway
Public facilities: improved bayfront park
Type of development: new/expanded hotel facilities
II. Main Design Features
Gateways: strong gateway at foot of bluff, no defined eastern
gateway. Entire neighborhood serves as gateway to
Downtown
Linkages: better N/S greenbelt linkage needed
Scale: predominently low and massive, several notable architec-
tural structures
III. Natural/Environmental Features
Gulf frontage: none
Bay frontage: seawalled, except for S. of Pierce 100 condominium
Erosion: some controllable erosion in unseawalled area
Grass Beds/tidal flats: both present S. of Pierce 100.
~~ngroves: none
Major drainage outfalls: several, primarily S. of Memorial
Causeway
Areas of poor flushing: none
-40-
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KEY ISSUES
1. Pro te ct grass beds. A.
2 . Monitor i.,r a te r quality.
B.
3. Stabilize dirt pile,
moni tor erosion, siltation.
C.
4. Introduce stormwater pr~-
treatment (in conj unctlon D.
wi th area improvements) .
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OBJECTIVES
Enhance utilization, Coachman
Park.
Improve utilization/provide
landscaping.
Delineate pedestrian connector.
Develop/enhance Gateway area.
Incorporate into bay front park
system landscape, enhance for
recreational use.
F. Enhance vistas, provide addi-
tional passive recreation.
G. Clean-up/enhance for recrea-
tional use.
Harbor Oaks Neighborhood Analysis Summary
I.
Functional Analysis.
Current Conditions
Size: 150 acres
Population: 815
% vacant lanu: 3%
Age of structures: 1920's to present
Road access: Ft. Harrison N/S Arterial, Druid Road collector
Street
Public facilities: school, hospital, churches
Type of development: scenic older neighborhood core, high rise
construction along bayfront, offices at
N. and S. perimeters, commercial along Ft.
Harrison
Future Conditions
Population: 982
Road access: as ~xisting
Public facilities: school (possible eventual re-use), hospital,
churches
Type of development: . increased high rise pressures on bayfront,
increased hospital expansion in SW portion
of neighborhood
II.
Main Design Features
Gateways: not well defined
Linkages: vista down Turner St. links view of bay, oak canopy pro-
vides visual continuity, particularly along Bay Avenue
which has landscaped medians
Scale: previously consistent scale of older, prosperous residential
neighborhood~is threatened by redevelopment which does not
respect established farms
III.
Natural/Environmental Features
Gulf frontage: none
Bay frontage: seawalled
Erosion: small delta has formed from accretion where creek empties
into bay S. of Jeffords St.
Grass beds/tidal flats: numerous near shore grass beds, some tidal
flats
Mangroves: very limited
Major drainage outfalls:
Areas of poor flushing:
creek S. of Jeffords Street, Turner Street
none
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A. Maintain limits of office,
hospital expansion.
B. Develop/enhance waterfront
vistas.
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KEY ISSUES
OBJECTIVES
1. Protect grass beds.
2. Monitor shoreline.
3. Retain shoreline/bluff features
and topo graphy
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4. Retain dense tree canopy
throughout entire area.
C. Designate as historic
district.
5. Moni tor water quali ty/ trea t
runoff.
D. Curtail high-rise \.;aterfront
developmen t.
6. Protect ~.fangroves
-43-
North Tampa Bay Neighborhood Analysis Summary
(Includes Courtney Campbell Causeway)
I.
Functional Analvsis
,
Current Conditions
Size: 742 acres
Population: 2032
% vacant land: 48
Age of structures: 1960's to present
Road access: SR 60, 4 lanes, maj or E/W arterial, ~lc:.rullen-
Booth Road, 2 lanes, N/S arterial, Bayshore
Blvd., 2 lanes~ N/S collector.
Public facilities: Performing Arts Center, active and passive
parks, college, churches
Type of development: primarily low density residential, com-
mercial along SR 60, major open space
along Alligator Creek
Future Conditions
Ponulation:
Road access:
2783
SR 60, 6 lanes; ivfc~lullen-Booth Road, +-6 lanes,
Bayshore Blvd., 2 lanes
Public facilities: Performing Arts Center, active and passive
parks, college, churches
Type of development: primarily in-fill residential and com-
mercial
II.
~la i n De sign Fe a t u re s
Ga tew ays: trans i tion from caus eway ve ge ta tion to comme rcial
along SR 60 is jarring
Linkages: visual link along Bayshore is provided by open space
along east side of road. Potential pedestrian link
along Alligator Creek,
Scale: primarily low scale of development
II I.
Natural/Environmental Features
Gulf frontage: none
Bay frontage: no seawalls, rip-rap fill along S. side of causeway
Erosion: S. side of causeway subject to erosion; some erosion on:".
side of causeway where recreational activity destroyed vege-
tation. Some natural erosion in Alligator Creek due to steep
land contours
Grass beds/tidal flats: numerous in vicinity of Cooper's Point
~langroves: extensive all along bay shore, Cooper's Point, \. side or
Causeway
01ajor drainage outfalls:
Areas of poor flushing:
Alligator Creek Outfall, just
limit
Cooper's Bayou; entire area of
Tampa Bay
upper
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FUNCTIONAL ANALYSIS - NORTH TAMPA BAY NEIGHBORHOOD
KEY ISSUES
OBJECTIVES
1. Retain green belts.
A. Permit only low intensity land
uses.
2. Monitor water quality
3. Retain productive estuarine
system.
B. Develop bicycle path.
4. Protect grass beds.
C. Enhance scenic/recreational
opportunities.
5. Protect ~.langroves
D. Encourage ~nnexation/sewage
treatment for unincorporated
enclaves.
E. Deve lop scenic/ recrea tion
potential of Performing Arts
Center.
-45-
South Tampa Bay Neighborhood Analysis Summary
I. Functional Analysis
Current Conditions
Size: 595 acres
Population: 4881
% vacant land: 15
Age of structures: generally late 1960's to present, small
old neighborhood vicinity McMullen-Booth
Road
Road access: SR 60, E/W arterial~ 4 lanes; US 19, N/S arterial,
4 lanes divided; no internal circulation
Public facilities: fire station, branch library, sewage treat-
ment plant, church
Type of development: commercial along arterial roads, multi-
family along bayshore, historic area re-
mains low density residential
Future Conditions
Population Conditions
Population: 6641
Road access: SR 60, 6 lanes; US 19, 6 lanes with overpass at
Belleair Road, service roads. Possible extension
of ~lcMullen-Booth Rd. across bay to 49th street.
Public facilities: relocation of branch library out of neigh-
borhood, other facilities as existing
Type of development: limited in-fill medium and high density
residential
II. Main Design Features
Gateways: poorly defined along roads
Linkage: connec t ion along bayshore have no t been ar t icula ted
Scale: along roads, scale is oriented to high speed automobile
traffic, internal scale of individual projects varies,
Bayview area retains scale of original development
III. Natural/Environmental Features
Gulf frontage: none
Bay frontage: seawalls along finger fills and at isolated locations
along shore
Erosion: some erosion from stormwater runoff along bluff areas
Grass beds/tidal flats: extensive flats
Mangroves: scattered beds, thick in some places
Major drainage outfalls: unnamed creek
Areas of poor flushing: area contains gyre, circular flow of water
which keeps particles in suspension and
prevents good flushing
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KEY ISSUES
SOUTH TAMPA BAY NEIGHBORHOOD
OBJECTIVES
1. Monitor discharges
from treatment plant.
2. Monitor water quality,
sedimentation.
3. Retain shoreline
ve ge ta tion.
-4i-
A. Develop Historic District.
B. Preserve/Research Indian
mounds.
C. Develop linear ~ark-trail.
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D. Encourage low rise development.
E. Expand recreational
opportunities.
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P IMPLEMENTATION
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Inplementation
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Most of the develo~ment which is undertaken in cities is the
result of private investment. Where the plans of governing
jurisdictions require or indicate land development, it is clear
that much of that development will be done by private parties.
In this sense, much of the implementation of public plans is
actually done by the private sector. Where the public and private
interests coincide, there are few obstacles to successful plan
implementation. Since private investment seeks to maximize the
individual investor's return, while public plans are directed
toward maximizing the benefits to the overall communi ty, the
happy coincidence of public and private goals is rarely realized.
Instead, a balancing between public and private objectives must
be made by elected officials. There is no more significant area
for this balancing test than issues of development of coastal
zone properties. By the promulgation of appropriate laws, rules,
and ordinances, it is possible to insure that current and future
landowners are treated uniformly and equi tably. Where imp lemen-
tation of the coastal zone management element will be conducted
by the private sector, a set of land use controls which is fair
and predictable will allow the optimum framework for private
investment decisions.
The most obvious mechanism of local government control is
zonlng. The zoning categories applied to coastal area properties
should be examined in light of the goals and policies and the map
-48-
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pages labeled "1(ey Issues/Objectives." Permitted uses, density,
height, bulk, and setback requirements may need to be ad-
justed to meet the specific needs of coastal areas. Overlay
zones, which modify the requirements of the base zoning, may
be appropriate to meet land use and design objectives In
some areas of the coastal zone. Specific items which need to
be addressed in the land development code are historic pre-
servation and flood plain zoning.
Other ordinances and policies regulate land subdivision,
annexation, utility extension, signs, docks, drainage, land
dedication and building safety. All of these topics impact
on, and, for the most part, reinforce coastal zone manage-
ment objectives. A review of existing ordinances and policies
is indicated to determine any areas of conflict with coastal
zone objectives, and whether the degree of regulation is appro-
priate. It is expected that the land development code revi-
sion project currently underway will perform this necessary
review and result in specific recommendations for appropriate
code amendments.
Municipal investment IS directly under the City's control,
and plays a key role in plan implementation. Currently there
are no special provisions for public improvements in coastal
areas. Once approved for funding, project engineering and
design proceed under the direction of the operating department
responsible for the improvement. Frequently the Engineering
-49-
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.division of the Public Works Department is called in under
their role as staff designers, and coordination among depart-
ments is conducted on an ad hoc basis. Although an attitude
of cooperation exists among the various departments, the
objectives of the Coastal Zone Management Plan could be more
easily met if a coordination mechanism were formalized.
Currently, the City has employed a water quality manage-
ment specialist and an ocean enoaineer. It is suaaested that
00
these key staff members form the nucleus of a standina committee
o
established to provide technical advice on water quality and
design impacts of improvements proposed ln coastal areas. Other
staff support would include representatives of the traffic engi-
neering, parks and recreation, planning, marina and police de-
partments. This committee would review proposed projects which
would increase the health and safety of coastal zone areas and
implement the objectives of the Coastal Zone Management Plan.
...\. key staff member is missing from this proposed commi ttee.
At this time, the City has no staff position which is specifi-
cally directed toward furthering aesthetic design objectives.
Since so much of the public and private value placed on coastal
areas lS based in the aesthetic pleasure to be found there, the
absence of a design professional is significant. Successful
implementation of the Coastal Zone Management element requlres
a heightened design sensitivity on the part of public and private
individuals. The population of Clearwater is approaching 90,000
people, and neglect of design considerations has already contri-
buted to significant aesthetic degradation. The visual analysis
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surveys conducted as part of this plan have revealed numerous
ins tances where opportuni ties for envi ronmen tal enhancemen t
have been lost due to insensitive design of improvements. As
the City approaches a mature stage of development, it can not
afford to waste such opportunities in the future.
Other programmatic recommendations included in this ele-
ment include water quality monitoring and historic preserva-
tion activities. The mechanisms have been established in the
Public Works Department to institute a water quality monitor-
lng program. Had this program been functioning prior to
preparation of this element, a more complete data base would
have been available, enabling better targeting of areas where
storm water treatment needs are most critical.
Historic preservation was covered in depth ln a separate
plan element. Further research has yielded information re-
sources, but mechanisms for resource preservation are lagging
behind.
In particular, attention needs to be paid to the
Bayview Indian ~Iound.
In the 49th Street Bridge Environmental
Feasibility Study Report, Dr. Stephen Gluckman finds that:
The site is probably significant and therefore
eligible for nomination to the ~ational Reaister
of Historic Places. Its undisturbed condition,
size and the fact that it is one of two black
dirt and shell middens presently known to exist
in this part of the bay, indicate that it contains
informatiqn important to the study area's pre-
history.l...
Public sector activity in historic preservation in Pinellas
County has traditionally been minimal. lvith increasing rea-
li:ation of the scope of resources which remain, and aware-
ness of the importance of these resources, some level of
increased public activity should be implemented.
1-1.. "Em'ironmental Feasibility Study Report" Dr. Stephen J.
Gluckman et. al., Dia:, Sickinaer :=. -\ssociates Inc
__ _ ~ '"1. ,.,
prepared tor Board of Commissioners, Pinellas Countv,
\ovember 1930 PC--1.-13. .
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~lost of the public improvements recommended in the Key Issues/
Ob j ec t i ves s ec t ions 0 f the Co as tal Zone ~Ianagement El emen t re 1 a te
to increasing service capacities of existing City functions. A
summary of recommended improvements and the lead operating depart-
mentes) lS shown below.
TABLE 2
Recommended Public Improvements, Clearwater Coastal Zone
NEIGHBORHOOD
CLW. BCH.
S. of Pier 60
Various locations
Old Yacht Club
Gulfview/Coronado
Gulfview, Pier 60
5 ..ld\i D KE Y
Gulfview Blvd.
Gulfview' Blvd.
Toll Booth & S.
City Limit
E. of Toll Booth
~lid Key
:-i. ',v. Tip
!\\'. edge
ISL.~~D ESTATES
Bridge & Causeway
Old Sewage Tr.
Facility
Intersection
I s land \\.a;'
Public :.[arina
DIP ROVE'IE:-.iT
Beach nourishment
Trea t storm wa ter ,
where feasible
Deve lop Marina
Study One way Pairs,
Correct alignment
Add landscaping, street
furniture
Expand capacity and
landscape
Develop jogging/recrea-
tion path
Deve lop ga tew.a v
Pram fleet and sailing
center launch site
Public Safety Facilities
Develop compatible park
Renew & preserve beach
& dunes
Expand capacity
Develop Science Center
Channelization
Storm water pre-treatment
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OPE~~TING DEPT.(S)
Public Works
Public Works
Marina/Public Works
Traffic Eng./Public
\'10 rks
Parks/Traffic Eng./
Pub 1 i c W' 0 r k s
Traffic Eng./Public
W 0 r ks
Traffic Eng./Parks
Parks
Parks
Fire/Police/U.S.C.G.
County Parks Dept.
Public Works/Parks
F.D.O.T./Public ~orks
Private, Public Support
Traffic Eng.
Public l,';orks
NEIGHBORHOOD
N. HARBOR
Edgewater Dr.
Edgewater Dr.
S & E of bridge
DOWNTOWN
E. of City Hall
Coachman Park
E. of lvlaas Bros.
Intersection area
S. of Pierce St.
N. of Pierce Blvd.
HARBOR OAKS
IMPROVEMENT
Stabilize shore
Develop bicycle path/
linear park
Develop gateway
Stormwater filtration
Enhance utilization
Pedestrian ways and
landscaping
Develop gateway
Develop park potential
Enhance recreation
opportunity
N. TAMPA BAY
Area ~!orton Plant Treat stormwater runoff
where feasible
Bayshore Blvd.
Courtney Campbell
Causeway
P.A.C.T. site
S. TA}.!PA BAY
Shoreline
Bicycle path
Beautify/Enhance
recreation
Scenic/Recreation
imp rovemen ts
Develop scenic/recrea-
tion path
OPERATING DEPT. CS)
Public Works
Parks
Parks
Public Works
Parks
Traffic Eng./Parks
Par ks
Parks
Pa rks
Publ ic;iorks
Traffic Eng./Parks
F.D.O.T./Parks
Parks
Parks
Sufficient needs and cost data are not available to prepare a
schedule of priorities for improvements at this time, nor is it
appropriate to consider the above-mentioned list of improvements
aside from the other functional improvements. Upon adoption of
this plan element, these projects should be cycled back through
the planning/capital budgeting process for prioritization and
individual cost estimates.
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It BIBLIOGRAPHY
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BIB L I 0 G RAP H Y
Ci ty of Clearwater Code of Ordinances. Dredge and Fill Permi ts. Clear-
water, Florida: City Code, 1950.
Clark, John. Coastal Ecosystem Management. New York, New York: John
Wiley and Sons, 1980.
Clark, John, et ale Coastal Environmental Management. Washington, D.C.:
The ConservatIOn Foundatlon, 1980.
Davis, Richard A. Principles of Oceano~raphy. New York, New York:
Addison Wesley PublIshIng Company, 1S/72.
Davis, John H. Stabilization of Beaches and Dunes by Vegetation.
Gainesville, Florida: FlorIda Sea Grant Program, 1975.
Diaz, Seckinger and Associates, Inc. 49th Street Bridap. Environmp.nt~l
Feasibility Study Report, Appendix C, Cultural Res5urces Assessment.
Tampa, FlorIda: by the Author, 1980.
Florida. Beach and Shore Preservation. Statutes, 1980.
Florida. Coastal Construction Permits. Statutes, 1979.
Florida. County Organization and Intergovernmental Relations. Statutes,
1972.
Florida. Florida Coastal Management Act. Statutes, 1978.
Florida. Florida Coastal Management Program. State Hearing Draft.
Tallahassee, FlorIda: Department of EnvIronmental Regulation, 1980.
Florida. Governmental Reorganization Act of 1969. Statutes, 1980.
Florida. Joint Permit A 1ication for Dredae, Fill and Structures.
Tallahassee, ori a: Department 0 Environmental Regulation, 1977.
Florida. Internal Improvement Trust Fund. Statutes, 1975.
Florida. Local Government Comprehensive Planning Act of 1975. Statutes,
1979.
McHarz, Ian. Design With Nature. New York, New York: Doubleday and
Company, 1969.
Nicholson, Andrew M. Develo ment of a Coastal Construction Code In
Pin e 11 as Co un tv , F lor 1 a. C 1 e a rw ate r, Fl 0 rIa, t r an s c rIp tot
speech give at Beach Seminar, 1979.
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Future of the Region. St. Petersburg,
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Pinellas County Code of Ordinances. Pinellas County Water and Naviga-
tion Control Authority. . Special Acts, 19S5.
Pinellas County Planning Council.
Florida: by the Authors, 1979.
Conservation and CZM. Clearwater,
Pinellas County Planning Council. Intergovernmental Coordination
(First Draft). Clearwater, Florida: by the Authors, 1981.
RMBR Planning Design Group. Clearwater Coastal Zone Management Plan.
Tampa, Florida: by the Authors, 1972.
Strohles, Arthur N.
and Row, 1971.
The Earth Sciences.
New York, New York: Harper
Tampa Bay Regional Planning Council.
Florida: by the Authors, 1981.
Tampa Bay Regional Planning Council. The Tampa Bay Region...Priorities
for the Eighties. St.Petersburg, Florida: by the Author, 1979.
United States Army Corps of Engineers. Beach Erosion Control Study,
Pine1las County, Florida. Jacksonville, FlorIda: by the Author, 1966.
Volunteers in Preservation. Bayview, An Architectural and Historical
Inventory. of the Built Erivironment. Clearwater, FlorIda: by the Author
1981.
Volunteers in Preservation. Clearwater Beach, History and Architectural
Inventory of the Built Environment. Clearwater, FlorIda: by the
Au tho r, 1980.
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COASTAL ZONE HGHT. ELEMENT
Adopted Aug. 19, 1982 -
Coastal Zone
Management
8ement
Clearwater Comprehensive Plan
ADDENDA: APPENDICES TO COASTAL ZONE MANAGEMENT ELEMENT
L!. r
,
Page 3 Paragraph 1,. ins ta1la tion of Coas t Guard Station to
read: proposed for construction in 1982-1983.
Page 21 Paragraph 1, add sentence to read:
Dredging of Dunedin Pass to permit navigation is an
improvement which has long been supported by the
cities of Clearwater and Dunedin, as well as the
Pinellas County Commission.
Page 35 Objective A to read:
Expand capacity, maintain parklike atmosphere.
Page 43, Paragraph 2, sentence 2 amended to read:
Stevenson's Creek, which empties into Clearwater
Harbor drains a large urban area and receives
treated effluent from the city's Marshall Street
Sewage Treatment Plant.
Page 50 Paragraph 1, Sentence 1, delete:
date "(1980)" whiCh follows State Road 60 Relocation
Feasibility Study.
Page 67 Paragraph 2, add sentences to read:
A similar proposal, the Pinellas Parkway, was submitt-
ed for countywide referendum in the mid 1970's and
was de~eated. Subsequent feasibility studies under-
taken at the request of the Board of County Commission-
ers indicated that, under the proposed toll structure,
revenues generated would not be sufficient to cover
annual cos ts .
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appendices
...
Coastal Zone
Management
Bement
Clearwater Comprehensive Plan
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COASTAL ZONE ~~NAGEMENT ELEMENT
CLEARWATER COMPREHENSIVE PLAN
Prepared by:
Clearwater Planning Department
City of Clearwater, Florida
Ma y, 1 9 8 2
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TAB LEO F CON TEN T S
Appendix A: Neighborhood Analyses
Sand Key. . . . . . . . . . . . .
Clearwater Beach. . . . .. . . . . . . . . .
Island Estates & Memorial Causeway.
North Harbor. . . .. ..... . . . . . . .
Do'Wll to'W1l . . . . . . . . . . . . . .
Harbor Oaks . .. . . . . . . . . . .
North Tampa Bay . . . . . . . . . . . .
South Tampa Bay . . . . . . . . . . . .
Page
. . . 1
. 0 .10
. .26
.36
. .
. . . .48
. . . . 057
. . . .66
. . . . . ~75
Appendix B: Intergovernmental Coordination
Intergovernmental Coordination. . . . . . . . . . . . . . .84
Appendix C:
A History of Clearwater Beach .
Bayview: A History~ . . . . . . . . . . . . .
. . .
. . . 101
. 109
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I APPENDIX A:
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I NEIGHBORHOOD ANALYSES
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NEIGHBORHOOD ANALYSIS SAND KEY
Functional Analysis
Sand Key's linear configuration requ1res that Gulf
Boulevard provide all of the neighborhood circulation as
well as arterial access to this neighborhood. Land uses
indicated in the table below allow the derivation of
estimated traffic loadings onto the boulevard:
TABLE 1
Existing Land Use, Sand Key
Use
Acres
10.6
16.9
65.0
40.1
76.8
24.3
233.7
% of Total
4.5
7.2
27 . 8
17 . 2
32.9
10.4
100%
Motel
City Park
County Park
Multi-family residential
Vacant
Roads
Total
Based on these land uses, standard tables yield
estimated roadway usage of 4134 trip ends per day. Traffic
counts on Gulf Boulevard reveal that 1978 traffic averaged
8542 vehicles per day; the difference between demand
generated by localized use and reported traffic 1S
attributable to the roadway's arterial function as an
accessway to Belleair Beach and Indian Rocks. Seasonal
variation In traffic patterns is quite marked, with twice
as many vehicles using the roadways in the winter months as
1n the fall. Traffic on this roadway has increased 51%
over counts made in 1974, however, average daily traffic 1S
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Currently below maximum acceptable levels for this two-lane
facility. Congestion is experienced during peak recreation
days due to demand for access to beaches, along with the back-
up at the toll plaza and opening of Clearwater Harbor. Bus
service is provided by the Central Pinellas Transit Authority
with connections to Clearwater Beach, the mainland and lower
gulf beach communities. There are no major intersections on
the Key and none of the locations on the island were reported
by the Traffic Engineering Department as having more than 10
accidents in 1979.
Land uses on Sand Key do not at this time include many
of the facilities which are required in an integrated
neighborhood unit. There are no churches, schools or
community centers serving the 695 dwelling units on the
island, nor is there any neighborhood convenience retail
shopping. Each of the condominium buildings provides
recreation facilities on-site, but no provision is made
for interaction among the various buildings' residents.
Although owner occupancy in this area is high (estimated
85% of total housing units), many of the units are occupied
seasonally, which contributes to anonymity. Due to the
structure type and price range of dwelling units, it is
estimated that most of the population is in the upper and
middle income brackets and of approximately middle age.
It is estimated that less than 10% of the 549 residents of
Sand Key are school age children.
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Based on the City's adopted land use element, it is
expected that 3527 persons will live on Sand Key in the
year 2000. This population will be housed in multi-family
developments. Traffic generated in the Clearwater portion
of the island will grow to 25,000 vehicles per day. This
exceeds the HPO traffic projection of 11,900 vehicles per
day in the year 2000. Improvement of Gulf Boulevard to a
three or four lane facility will be needed to accomodate traffic
flows. No major educational or community facilities are
planned for Sand Key. Public facilities planned for this area
include a fire station, expansion of recreation facilities at
the north end of the Key and the installation of a Coast
Guard station.
Visual Analysis
Until 1972, development on Sand Key was limited to a
small beach ~lub facility at the southwestern city limit.
The road traversed a barrier island covered with Australian
pine trees, with few other alterations to the natural
,
landscape. Although slowed by the 1974 recession, develop-
ment of Sand Key has proceeded rapidly. It is estimated
that about 40% of the privately owned land on the Key is
developed, with plans underway to account for an additional
40%.
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Development on the Key is predominatly high density
residential. Buildings of eight to eighteen stories have
been constructed on the west side of Gulf Boulevard.
Currently, there IS vacant area surrounding the existing
structures. A wide grassy swale separates the sidewalk
from the paved road, providing continuity along the
developed portion of the road. The east side of the road
currently IS dominated by a series of garden apartments,
however, new development at higher densities is continuing
along the east side of the road, thereby providing a some-
what discontinuous design pattern.
The entrance to the north tip of the Key is marked by
large stands of pine trees, creating a pleasing visual
gateway to the developed sectors of the island. The primary
vista is afforded by the openness and change in grade
created by traversing the toll bridge which provides access
to Sand Key. The northern tip of the Key is in public
ownership and IS expected to be developed for recreational
purposes. Along the length of the Key, vistas are provided
across the undeveloped parcels of land, many of which have
no overs tory vegetation. However, these vistas are marred
by use of these tracts as stDrage areas for boats and
construction equipment. Many vacant parcels are surrounded
by 6-foot chain link fencing in varioui stages of
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deterioration. City crews have planted palm trees along
the length of the road right-of-way, however, vegetation on
this strip IS subject to severe salt burn from periodic
storms. Where there are no intervening barriers, only
the Austria1ian pines actually thrive.
Environmental Analysis
There are no maJor stationary sources of aIr or water
pollution on Sand Key. Sanitary sewage is pumped across
the bay for treatment at the Marshall Street Sewage
Treatment Plant. Stormwater run-off is directed tQ Clearwater
Harbor through a series of outfall pipes.
Sand Ke~ with 42 developed acres, generates estimated
pollutants in the amounts listed below. Pollutant load
estimates are based on water quality research done by
Dr. Martin Wana1ista at Lake Eo1a In Central Florida.
TABLE 2
Pollutant Loadings, Sand Key
Pollutant
Existing Loadings
(Pounds/yr)
34,090
4,389
1,460
1,642
Suspended Solids
Biochemical Oxygen Demand
Total Nitrogen
Total Kjeldahl Nitrogen
Source: Clearwater Planning Department
Although information on other pollutants (total organIC
carbon, total phosphorus etc.) is available, only those pol-
lutants listed in Table 2 are considered to be good indicators
of water quality degradation in the Clearwater area.
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Factors which affect the impact of pollutant loads on
receiving waters are extent of detention of water prlor to
discharge, intensity and duration of rainfall, depth of
receiving waters, and tidal flushing action In receiving
waters. Clearwater Harbor, in the vicinity of Sand Key is
wide and shallow, The proximity of this area to Clearwater
Pass insures a strong tidal flushing action, which mitigates
the effect of pollutant loads, and there are healthy marine
grass beds off the north and central shorelines of Sand Key.
Further pollutant filtration lS obtained when sheet flow
runoff passes through the tidal flat which extends approxi-
mately 1200 feet from the northeastern tip of the island.
An exception to the generally productive condition of
Sand Key's harbor waters is found at the southern city limits.
Here dredging activities have produced several finger fills.
Waters surrounding these fill areas are generally shallow,
except for the boat basin near the extreme southern city limit,
where NOAA charts indicate a depth of 16 feet. The shoreline
of these finger fill areas has been stabilized, and are gener-
ally void of vegetation. The single exception to this condi-
tion IS a small area east of the Harbor Condominium, where red
and black mangroves have established a small viable marine
community.
The gulf shore of Sand Key has been severly eroded.
Efforts to stabilize Clearwater Pass and prevent scourlng of
bridge pilings at the northern tip of the island led to
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D~AGE OUTFALLS - SAND KEY
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FIGURE I
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~Stormwater
Outfall
.r... S to rmw ate r
Runoff Ridge
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construction of a jetty extending north east approximately
2500 feet into the Gulf of Mexico. Nautical charts printed
prior to construction of the jetty show shallow (2-3 foot)
depths in the vicinity of the jetty. Although construction
of the jetty has alleviated to some degree siltation of
Clearwater Pass, it was determined that dredging of sands
washed toward the pass by the littoral drift will be neces-
sary to protect the navigation channel. Accordingly, permits
has been issued to dredge 1,000,000 cubic yards of sand.
About half of this dredged material is being relocated along
the gulf shoreline to restore the eroded beaches. Plans are
to dredge a sufficient amount of sand to recreate a beach
dune community - in effect, this project will replicate the
work of nature. A limited dune community formed naturally
near the city limit on the gulf shore, however, this was dis-
placed by condominium development.
In summary, the current levels of development have al-
tered but have not yet seriously stressed the environment of
Sand Key. Future development of the remaining 77 vacant acres
on the Key is expected to be completed within the next fifteen
years, resulting in a fully developed urban residential area.
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SAND KEY
KEY ISSUES
1. Protect grass beds.
2. Protect tidal flat.
3. Protect existing
dunes.
4. Protect mangroves.
S. Add/preserve vistas,
access points (loca-
tions approximate).
6. Monitor water quality
in outfall locations
and fingerfills.
7. Renew beach 'and dunes.
OBJECTIVES
A. Provide limited
neighborhood
commercial devel-
opment.
B. Continue existing
low-rise develop-
ment pattern.
c. Landscape improved
roadway. Cons~der use
of landscaped medians,
Boulevard cross-
section.
D. Develop jogging/
recreation path.
E. Provide gateway.
F. Provide pram/sailing
center launch site.
G.
Provide public
safety facilities.
Develop compatible
Co un ty park.
H.
FIGURE 2
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NEIGHBORHOOD ANALYSIS CLEARWATER BEACH
Functional Analysis
Clearwater Beach, with 569 acres, is not the largest neigh-
diverse.
borhood in Clearwater's Coastal Zone; however, it is the most
Table 3
Existing Land Use, Clearwater Beach
Single family residential
Multi-family residential
Hotel/Motel/Efficiency
Commercial
Institutional
Public Parks & Beaches
Roads & Public Parking
Marina
V acan t
Total
Acres
% of Total
144
87
74
18
10
78
138
6
13
508
25
16
13
3
2
14
24
1
2
IlTO%
The total number of year-round dwelling units In this
neighborhood is 2828, with an estimated resident population of
3423. There are 4410 units of tourist accommodations on Clear-
water Beach. Based on 95% occupancy, it is estimated that
during the peak of the tourist season there are 8380 tourists
staying on Clearwater Beach, yielding peak period population
estimates of 14,480. The population of this neighborhood
decreases approximately 35% during the late summer-early
fall months, which traditionally have reduced tourism. It
is estimated that oniy 42% of the dwelling units on Clearwater
Beach are owner-occupied; tilis IS much less than the Ci ty-wide
owner occupancy rate of 67%.
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Clearwater Beach contains some of the older residential
neighborhoods in the City. Residential and tourist development
started in this area in the early 1900's. Although few of
these "first generation" structures remain, there are numerous
residential and commercial structures worthy of preservation.
Appendix "C" includes a summary of the results of an historic
structures survey of Clearwater Beach. Housing types on the
barrier island are quite diverse, ranging from single-family
homes to condominiums. Neighborhood facilities include a
recreation center, civic center, soccer field, tennis courts,
swimming pool, and library. As time has passed, the tourism
sector has increased in importance, and the emphasis in land
development has shifted to hotels and condominiums and the
types of related facilities (restaurants, lounges, car rental
facilities) common in areas of such usage.
A major community facility located on Clearwater Beach
1S the City Marina. The Marina accommodates 156 boats which
are used for various purposes such as fishing charters, excur-
sions, sailing charters, private recreation, and Coast Guard
activities. A study prepared in 1979 by the Clearwater Planning
and Marina Departments revealed a need for additional slips.
Several sites have been mentioned as possible expansion loca-
tions, one of which is the old Clearwater Yacht Club which is
loca ted on ~landalay Avenue and is owned by the Ci ty.
Traffic estimates based on land use are derived from infor-
mation provided by the Institute of Traffic Engineers. Based on
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this information, an estimated 35,886 trips per day begin or
end on Clearwater Beach. Actual traffic counts taken by the
Florida Department of Transportation at the western end of
Memorial Causeway indicate that the 1978 average daily traffic
was 38,297, slightly above projected internal volumes. FDOT
volumes showed a high degree of seasonal variation. Counts
taken in early September, 1978 totalled 32,634 vehicles per
day, whereas counts taken in late November 1978 totalled
43,959 vehicles per day.
Internal circulation patterns on Clearwater Beach demon-
strate the prominent roles of Mandalay Avenue and Gulfview
Boulevard as collector streets. Gulfview Boulevard also serves
a limited arterial function, via its connection to Sand Key
and southern gulf beach communities. Except on peak days,
traffic flows relatively smoothly north of Marianne Street;
where commercial establishments front on Mandalay Avenue) the
paved right-of-way is wide enough to allow two broad moving
lanes of traffic in each direction. Parallel access relief
IS also available via Poinsettia Avenue and Eastshore Drive
In the commercial district south of Baymont Avenue.
The most serious area of traffic congestion begins in
the vicinity of Marianne Street and continues south to Clear-
water Point. Contributing variables are the attraction of
large numbers of people to beach parking lots on peak recreation
days, the lack of parallel access on through str~ets, and road
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and intersection alignments. The intersection of Mandalay
Avenues and Marianne Street was the site of ten accidents in
1979, and has had over nine accidents reported per year since
1977.
Circulation between the mainland and the beach is primarily
accomplished by means of private automobiles. Bus service
provided by the Central Pinellas Transit Authority connects
Clearwater Beach and the mainland, supplemented by the ser-
vices of the Jolly Trolley. The size and compactness of
Clearwater Beach lends itself well to the development of non-
vehicular transportation alternatives such as bicycling and
walking. Recently, roller skating on the beach has become a
popular transportation/recreation option (although prohibited
by Ordinance) .
Because of the attractiveness of Clearwater Beach, park-
Ing at the beach and marina is a key focus of public interest.
Currently, there are 1320 spaces under public control. Public
parking on the beach includes both traffic control and urban
design considerations.
The Clearwater Police Department provides public safety,
traffic control and parking meter enforcement on the beach.
Traffic control problems are serious on peak recreation days.
Visual Analysis
Development on Clearwater .Beach may be divided into three
distinct categories. The northernmost section of the Beach
consists almost entirely of single family homes. Lot frontages
of 60-70 feet are common and street rights-of-way are generally
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50-60 feet. Very few vacant lots remaIn in this section. The
only exceptions to the single family residential development
pattern are Mandalay Shores, a massive 386-unit apartment
house, and Carlouel Yacht Club.
Residences in this area are well-maintained, with mature
landscaping. Vistas over the water are afforded at several
points; however, where street ends abut the water, additional
or enhanced vistas could be offered. Development in North
Clearwater Beach may be considered to form a dense, coherent
urban pattern with little diversity in use or scale. Points
of orientation in this section are the Mandalay Shores Apart-
ments, Carlouel Yacht Club, and the fence which blocks through
movement along Eldorado, Bruce and Lantana Avenues at Juniper
Street. Through movement along Narcissus Street is blocked
at Aural Street, leaving the access along Mandalay as the
sole gateway to North Clearwater Beach. However, this gateway
lS, for the most part, not enhanced by design elements.
A sharp break in this single family development pattern
occurs south of Acacia Street, where multi-family development
begins. Between Avalon Street and Somerset Street, the pre-
dominant land uses are duplex apartments and small tourist
cottages, with the block between Mandalay and Pointsettia
Avenues south of Somerset Street being used for retail
commercial purposes. The tourist/seasonal cottages found In
this area are generally one to two stories tall, with small
setbacks. M6st have very little off-street parking, and
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CLEARWATER BEACH HISTORIC STRUCTURES ~~p
FIGURE 3
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parking areas often run directly into the street rights-of-way.
Percentage of impervious surface coverage is high with much of
the frontage along Poinsettia Avenue devoted to parking lots.
Vistas across the bay are afforded at several street ends.
Vistas to the gulf are regularly spaced along Mandalay, however
these street ends are 40 feet wide, whereas elsewhere the normal
width is 60 feet.
Public ownership of park and playfields in this area
affords the community and neighborhood recreational oppor-
tunities. Not all of these public areas are developed to
exploit their full use or recreational potential. Landmarks
in this area include the fire station and watertower at the
corner of Mandalay Avenue and Bay Esplanade, and the Clearwater
Beach Hotel, an old wood frame structure at the corner of
Mandalay Avenue and Baymont Street. A significant landmark
rose in the block south of Papaya Street with the construction
of a new hotel and convention center.
The main gateway to the beaches occurs when travellers
cross Memorial Causeway. The curvature of the road and the
change in grade created by the small bridge provide strong elements
of transition. However, the small park area which serves as a
traffic island IS the only green space in the vista thus afforded.
Primary views are an unharmonious collection of low rise motels
and dock space. The City-owned 0iarina is a maJor installa-
tion which lies south of Causeway Boulevard. This 156 slip
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facility lS a high activity center which serves a necessary
function ln the local economy. The marina offices are housed
ln a 1950's structure at the dockside. This building, which
also contains rental space for shops, was designed to look
like a paddlewheel steamer. Architecture of this type. in
which space, structure and program have been distorted into
an overall symbolic form, occurs frequently in the American
landscape. Nearly-every city has a drive-in restaurant in
the shape of a hamburger or a gas station in the shape of a
dinosaur. Such structures are often memorable and frequently
serve to reinforce strong images of the products offered for
sale; however, they do little to enhance the urban scene.
Traffic attempting to move to south Clearwater Beach IS
afforded a limited visual break ln the pavement system by the
green space on both sides of the junction of Mandalay and
Coronado Drive. However. the opportunity of a vista toward
the Gulf of Mexico is partially blocked by the commercial
complex at Pier 60. South of this commercial complex is a
vast City-owned parking space. Although this area includes
bus shelters and sidewalks, there is no landscaping. A
landscaped vista toward the Gulf of Mexico is afforded as
vehicles approach the second of two 900 turns within a distance
of 400 feet. The congested traffic pattern, combined with
turning movements and entry points from side streets and park-
ing areas, detract from enjoyment of this vista.
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Entering south Clearwater Beach, the dominant features are
those west of Gulfview Boulevard. The public beach area extends
for a distance of 200 feet. The view of the beach is obscured
by the parking area, which lies about ten feet from the paved
roadway. There is a strip of landscape area between the side-
walk; however, due to the harshness of the marine-influenced
micro.climate, many of the landscape materials in this area
appear stunted and unhealthy. Opposite the public beach is a
ser1es of medium scale motel structures. These buildings, al-
though massive, were built under earlier provisions of the
zonlng code which required fewer on-site parking spaces than
the present code, so their relation to the street is relatively
obvious. Only one of these structures exceeds five stories
ln height. Along the west side of Gulfview Boulevard, elements
of the architecture seem to have been borrowed from the Las
Vegas strip - vast parking areas, signs in which heraldry ex-
ceeds information, and inflection of buildings toward oncoming
traffic. The public beach and parking area give way to a
hotel and condominium of 13 and two 16 story towers respec-
tively~ These buildings dominate the other lower buildings
nearby. As contrasted with the north mid and northern sec-
tions of the beach. which are best perceived by a person walk-
ing (3 m.p.h.) or riding a bicycle, the scale of the newer
building along the south beach strip is oriented to the auto-
mobile traveler (30 m.p.h.).
Development east of the Gulfview Boulevard frontage is
of a dense low rise nature. Parcels on H~mden and Coronado
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Drives are primarily occupied by one and two story tourist
accommodations, tightly packed and covering nearly all of the
ground with buildings or pavement. Many of the parking areas
have no interior circulation and are constructed so as to
require cars to back into the public street. This prevents
installation of sidewalks, thereby presenting a hostile
environment to the pedestrian and affording no isolation or
setback of structures. Along Harnden Drive there are several
vacant areas between the finger fills which allow access and
limited vistas across the intracoastal waterway.
The southern tip of Clearwater Beach (south of Clearwater
Pass Avenue) is dominated by a single land development which
consists of three story townhouses abutting and precluding
any meaningful view to the water and nlne story towers on
interior parcels. The completion of this development is
underway.
Three finger fills extend eastward from the south end of
Clearwater Beach. Development along Devon and Bayside Drives
consists of single family homes dating from the 1950's and
1960's. Construction along these streets is almost continuous,
with no vistas to the bay. There are no sidewalks along these
streets and overhead utility lines link the residential struc-
tures. Homes are generally well maintained and landscaped,
however many owners have chosen to cover their yards with gravel,
creating large areas of impervious surface. Brightwater
Drive, the third finger fill area, is developed as a dense,
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low-rise tourist acconunodation area. Most of the structures are
one or two stories tall. In very few instances do the structures
occupy more than one platted lot. Each a~artment-tourist
accommodation has its own sign, resulting in a somewhat cluttered
visual appearance. This street has no sidewalks; the private
parking areas merge with the street area.
In summary, Clearwater Beach Island can be considered a
wholly developed segment of the coastal zone. It encompasses
both a tourist-oriented commercial sector, isolated areas of
year-round residential dwellings, and a large community recrea-
tion beach. Portions of the commercial areas in the mid-beach
section serve as neighborhood shopping areas, but the bulk of
the commercial land usage is tourism-related. Urban design
considerations have played a very minor role in development
on Clearwater Beach, although recently-developed properties
have had to comply with landscaping and parking lot beautifica-
tion requiremen ts.'
Environmental Analysis
The natural environment of Clearwater Beach has been
almost completely supplanted by man-made systems. Along the
Gulf of Mexico the forces of erosion and accretion are parti-
cularly visible. Flushing through Clearwater Pass has all but
eliminated sand deposits on adjacent beaches, while littoral
drift has increased sand deposits at the north end of Clear-
water Beach. Several beach dune communities are building at
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the north end of Clearwater Beach; accretion has rendered
Dunedin Pass (between Clearwater Beach and Caladesi Island)
closed to all but very shallow draft vessels. Dredging of
Dunedin Pass to permit navigation is an improvement which
has long been supported by the cities of Clearwater and
Dunedin, as well as the Pinellas County.
Marine waters are influenced by the Gulf of Mexico's
loop current. The shallow marine waters of the Gulf of
Mexico are highly productive of marine life under normal
conditions, and have a high degree of ecological and eco-
nomic significance. Both natural and artificial occurrences
can hamper the productivity of marine water. Periodically,
concentrations of the microorganism Ptychodiscus brevis
reach critical proportions in offshore waters and smother
marine life. Human danger from this red tide (so-called
because of the color of the water when high concentrations
are present) is generally limited to respiratory discomfort
in coastal areas, although eating of most shellfish and all
affected fin fish should be avoided. Economic losses result
from reduced catches by fisherman. reduced tourism, and
clean-up of dead fish from beaches.
The large size and tidal flushing of Gulf waters disperses
many pollutants which stress bay and estuarine waters. How-
ever, significant potential point-sources of pollution, such
as oil rigs and sewage outfalls, can do extensive damage to
open waters. Even in the absence of system breakdowns, off-
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OUTFALLS - CLEARWATER
FIGURE 4
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~Stormwater
Outfall
J'\..Stormwater
Runoft Ridge
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shore oil r1gs deposit drilling fluids and sediment in adja-
cent waters as well as altering bottom conditions through
the dredging of pipeline canals. Ocean outfalls from sewage
treatment plants should be considered only for highly treated
wastes, as the conterclockwise gyre known as the Florida West
Coast Clyclonic Eddy would tend to washoutfall materials back
toward shore. Further, current legislation has only begun to
respond to the problems associated with toxic industrial wastes.
Man has taken some positive steps to enhance the marine
environment. Activities under the supervision of local govern-
ment bodies and interested citizens have resulted in the
construction of artificial reefs at varying distances (generally
3 miles) offshore. Artificial reefs, generally constructed
of old tires, act as "fish nurseries" provide near-shore
breeding grounds for sport and food fish.
On the bay side of Clearwater Beach, most of the natural
shoreline has been altered. Extensive filling along northern
Clearwater Beach in the 1920's removed the mangrove shore, and
seawalls were built to stablize the shoreline. As noted on
map 5, much of the storm water which runs off from the
developed areas of Clearwater Beach enter~ the Mandalay
Channel through storm drains.
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Table 4
Expected Pollutant Loadings, Clearwater Beach
Pollutant
Existing Load
(lbs/yr)
36 7 , 522
58,863
12 , 828
11,392
Year 2000
(lbs/yr)
380,930
61,343
13,220
11,730
Suspended Solids
Biochemical Oxygen Demand
Total Ni trogen
Total Kjeldahl Nitrogen
Source: Clearwater Planning Department
Pollutant volumes are not expected to increase signifi-
cantly, however, estimated pollutant discharges are currently
at very high levels.
Some potential for remedial action
exists on the northern end of Clearwater Beach, where drainage
outfalls discharge at unused street ends, settling/treatment
facilities can be incorporated into the open space. However,
the northern part of Clearwater Beach is primarily developed
with single-family residences. There is a greater need for
pretreatment, particularly the removal of suspended solids and
BOD, in the mid and south beach areas where commercial land
uses predominate and tidal flushing is less pronounced.
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CLEARWATER BEACH
KEY ISSUES
1. Protect dune areas.
2. Beach norishment/
protection criti-
cally important .
3. Beach nourishment
desirable.
4. Treat,- storm drainage.
5. Protect Grass Beds.
OBJECTIVES
A. Preserve sing1e-
family neighbor-
hood.
B. Maintain low/mid
rise development
and neighborhood
commercial uses.
C. Develop boat basin.
FIGURE 5
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D. Consider one-way
pairs/landscaping improvements
E. Enhance street-
scape wi th land-
scaping/ street
furniture.
F. Landscape parking
are as .
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NEIGHBORHOOD ANALYSIS
ISLAND ESTATES & MEMORIAL CAUSEWAY
Functional Analysis
Island Estates 1S a neighborhood of approximately 2740
people in 1681 dwelling units. Most of the housing in the
area is owner occupied (80%) and the estimated vacancy rate
is low (3%). The housing in this neighborhood was built
since 1960, and is of good quality and high value. Land
use in this neighborhood is as follows:
TABLE 5
Existing Land Use, Island Estates
Use
Single family residential
Multi-family residential
Commercial
Institutional
Roads
Vacant
Total
Acres
142
80
11
5
76
13
327
% of Total
49
24
3
2
23
4
100%
Island Estates has, within its borders, a sufficient
amount and range of commercial uses to adequately serve
most neighborhood needs. Included in this shopping area
are banks, grocery stores, drug store, gas stations, restau-
rants, beauty salon, and clothing stores.
Neighborho.od-
serving professional service (doctors, dentists, lawyers) are
not available on Island Estates.
One church has been
established in this area, but there are no schools, public
parks or libraries. The Clearwater Marine Science Center
has recently located in the former sewage treatment plant
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located on Windward Passage, When development of this
facility is completed, it will provide an important community
resource for marine study and research.
Traffic counts are made annually at the entrance to
Island Istates. Counts taken in December 1979 revealed
traffic of 10,000 vehicles per day on Island Way near its
intersection with Memorial Causeway. This is far below the
24,534 vpd predicted value obtained by applying trip gener~
ation rates obtained from the Institute of Traffic Engineers.
There are several reasons why this discrepancy may exist. The
count station used is located south of Island Estates Shopping
Center, therefore internal t!ips would not pass the count station
and a trip from a resident to a shopping area is counted as a
trip end for both the origin and the destination, thus, for
internal trips, some double-counting is introduced. Based on
existing traffic counts, the existing traffic circulation
system on Island Estates is adequate to accommodate internally-
generated traffic. The main collector street is Island Way,
which is a wide two-lane divided road. Its broad landscaped
median areas provide limited left-turn storage for adjacent
land uses. The intersection of Island Way and Windward Passage
has a blinking red/yellow caution light. No locations within
Island Estates are considered high-accident intersections.
The intersection of Island Way and Memorial Causeway had
43 accidents in 1979, making it the ninth highest accident
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location in the City. Although land uses on Island Estates
do not generate a significant number of external trips, all
traffic between Clearwater Beach and the mainland traverses
the Island Way/Memorial Causeway intersection. This causes
significant delay and inconvenience for Island Estates
residents on peak traffic days. In recognition of the
existing and projected traffic demand, the City and Metro-
politan Planning Organization long range thoroughfare plans
indicate future widening of the bridge and causeway to six
lanes. Currently, an access lane has been added to the
causeway for emergency vehicles.
Since most of the land on Island Estates is built-up
and the structures are relatively new and in good condition,
little change is expected in this area during the next 20
years. It is expected that approximately 600 housing units
will be built, increasing the projected population to 4300.
Since the remaining vacant land is planned for high density
multi-family development, it IS expected that many of the
additional residents will be In the middle to upper age
brackets.
Visual Analysis
Memorial Causeway connects Clearwater Beach and the
mainland. There is a small fixed span bridge at the western-
most end of the Causeway; at the easternmost end, a draw
bridge meets the mainland at the foot of Cleveland Street.
The Causeway is a four lane divided highway with intensively
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FIGURE 6 .
N~
DRAINAGE
OUTFALLS
- ISLANDS
ESTATES
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Outt~YIter
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landscaped medians. Median plantings vary in type, with
several medians planted with annual flowers, others with
shrubs and perennials. Vistas are afforded along the cause-
way, broken only by vegetation. Recently the City has added
an emergency access lane on the south side of the Causeway.
The entrance to Island Estates lies about 6000 feet west
of the mainland along the Causeway. Island Estates consists
of man-made islands created in the 1960's. Due in part to
the recent and rapid development of this area, the develop-
ment pattern of Island Estates has a well defined structure.
There is extensive landscaping marking the entry to the
island. Care has been taken to keep underbrush to a minimum,
allowing the shrubby landscape materials to form defined
crowns. The entry vista is marred by a sewage lift station,
which is partially concealed by plantings.
Geographically, Island Estates consists of one large
"main island" and eight interconnected fingers. Island Way,
the main collector street in this development, is a broad
divided boulevard with landscaped medians. Directly west of
the entrance point there is significant cluster of non-
residential development. There is a large boatworks, as well
as marinas providing boat storage. Neighborhood shopping is
provided in the Island Estates Shopping Center and adjacent
small shopping areas. These shopping areas include land-
scapifig, and traffic control provides limited points of
access to Island Way.
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Residential development is the predominant use of the
Island Estates fingers. Much of the main island is devoted
to high density residential uses ranging in scale from
massive high rlses to two story structures located on small
parcels of land. High density residential development on
the north end of Island Estates is separated from the other
high intensity use cluster by the Palm Island fingers which
are developed with single family homes.
The.single family development on Island Estates encom-
passes the north end of Island Way as well as the other
fingers on these islands. Lots In this subdivision section
at approximately 80' x 130' are slightly larger than the
average residential lot in the city. Although these lots
are sited along the water, extensive lot coverage and land-
scaping obscure public vistas. Development of this area In
the 60's and 70's resulted In a heterogeneous assortment of
predominantly single story stucco homes. Mixed architectural
styles favor Spanish-mediterranean ornamentation, however,
Colonial revival and other non-contemporary structures are
also found. Utility lines are strung overhead supported by
wooden poles.
The overall visual impact of Island Estates is that of
a cohesive, dense-urban community. The primary dischordant
features are the intensive boat industry which creates a
certain element of vitality but is not buffered from nearby
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lower intensity uses, and the occasionally inappropriate
architectural treatments found on some residential struc-
tures.
Environmental Analysis
Although it contains 'no structures, Memorial Causeway
plays a significant role in the ecology of the Island Estates
area, as well as performing transportation and aesthetic
functions. The causeway is a 6,500 foot long strip of fill
with bridges at its eastern and western ends. The shores of
the causeway have not been stabilized with seawalls and natural
estuarine vegetation is established along much of this shore-
line, particularly on the north side. The entire Island
Estates-Memorial Causeway area is characterized by shallow
(less than three feet) natural depths. Maintenance dredging
is needed to keep the channel to the main. City marina clear.
Exceptions to these observed depths are the channels off the
eastern and western boundaries of Island Estates, which are
subjected to tidal flushing where the bridges meet the
Causeway and the areas at either side of the entrance to
Island Estates, which served as underwater borrow pits when
these islands were being formed.
Displacement of mangrove areas by the dredging for
Island Estates introduced significant environmental degrada-
tion. Although the tidal flats found adjacent to Memorial
Causeway are productive biological communities, most of the
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waters surrounding Island Estates support little marine life.
These interior waterways are characterized by poor flushing
action, siltation, and high turbidity. It IS estimated that
surface run-off annually contributes to the following pollu-
tion loads:
TABLE 6
Pollutant Loadings, Island Estates
Pollutant
Suspended Solids
Biochemical Oxygen Demand
Total Nitrogen
Total Kjeldahl Nitrogen
Current Pounds/Yr.
178,720
19,894
8,608
7,523
Source: Clearwater Planning Department
When these pollutants are deposited in dead-end canals
or lagoons, their impact on water quality is significant.
Because the fill and seawall construction has destroyed
natural filtration areas, the contaminated surface waters
are generally discharged directly into Clearwater Bay.
Exceptions to these drainage practices are found at newly
constructed sites, where limited controls over runoff dis-
charge have been applied by the City, however, these controls
were instituted too late to affect most of Island Estates.
Pollution enters the water from point sources (pipes,
outfalls) and by sheet flow overland. No pretreatment of
storm water is done to remove pollutants prior to discharge.
Where waters are shallow and/or poorly flushed, pollution
concentrations often reach critical levels. The preceding
map shows locations of drainage outfalls and areas of poor
flushing.
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There are no major generators of air pollution on
Island Estates. A possible source of industrial water
pollution is the boat repair area near the entrance to
Island Estates.
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FIGURE 7
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ISLAND ESTATES/MEMORIAL CAUSEWAY
ISSUES
OBJECTIVES
1. Protect Grass Beds.
2. Retain natural shoreline.
A.. Expand capaci ty
Maintain park~ikeatomsphere
3. Consider sedimentation
filters/pre-treatment
to improve water quality.
B. Develop Marine Science Center
C. Consider traffic operation
improvements to reduce
acciden ts
4. Require on-site detention
in developing h~gh-density
area.
s.
Protect Mangroves.
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NEIGHBORHOOD ANALYSIS NORTH HARBOR
Functional Analysis
The north harbor neighborhood encompasses land west of
Fort Harrison Avenue between Union and Drew Streets. This
neighborhood is divided by Stevenson's Creek. Development
in this district 1S characterized by strip commercial uses
along Fort Harrison Avenue,with residential uses along the
bayfront and interior streets. Land uses in this district
are as follows:
Tab Ie 7
Existing Land Use, North Harbor Neighborhood
Use
Acres
% of total
Single Family Residential
Multi-family Residential
Commercial/Tourist
Public/Semi-Public
Park
Vacant
Roads
Total
95.8
23.4
16.8
13.1
12.3
3.3
62.1
226.8
42.2
10.4
7.4
5.8
5.4
1.4
27.4
100 .0%
This area's owner occupancy rate of 44.4% 1S substantially
below the City-wide average of 62%, indicating a high incidence
of transient population. Currently, there are approximately
880 dwelling units in this district housing approximately.
1725 people.
The north harbor neighborhood contains three public
facilities which provide service to the communtiy as a whole.
The Seminole Boat Dock is the only major boating facility on
the Clearwater mainland. Edgewater Park,located on the
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southern bank of Stevenson's Cree~ contains centralized
shuffleboard and lawn bowling facilities. North Ward Elemen-
tary School, located on North Fort Harrison Avenue, is one of
the oldest operating schools in Pinellas County.
Arterial circulation is provided by North Fort Harrison
Avenue which runs (on varying alignments) from St. Peters-
burg to Tarpon Springs. Traffic counts taken by the Depart-
ment of Transportation indicate average volumes along this
section of North Fort Harrison vary from a low of 8,800
vehicles per day at the intersection of Fort Harrison and
Drew Street to a high of 27,500 vpd near the intersection of
Fort Harrison and Seminole Street. Based on standards
established by the Institute of Traffic Engineers, traffic
generated by land uses in this neighborhood would be expected
to reach volumes of 19,351 vpd. Due to the high predicted
number of internally generated trips, volumes on Fort Harrison
may be expected to be higher than volumes observed. However,
according to the 1970 census, households in this area have
relatively fewer cars than those in the City as a whole; 21%
of the households in this district had no automobiles vs. 13.2%
of households with no automobiles in the entire City.
Local street access in the section north of Stevenson's
Creek conforms to generally-accepted subdivision street lay-
outs, with internal street connectors to Douglas and Milwaukee
Avenues. In the area south of Stevenson's Creek and west of
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Fort Harrison, the street pattern is extremely congested.
This 1S an area which was platted many years ago, and the
streets are narrow and, in some instances, intersection and
curve alignments are extremely poor. Sunrise and Osceola
Avenues form one-way pa1rs south of Sunburst Court, however,
traffic flow is impeded by the presence of vehicles parked
on these narrow streets.
Two identified high accident locations are found at
either end of this district, the intersections of Fort
Harrison and Drew Street and Douglas and Sunset Point Road.
Ftorida DOT has near-terms plans to widen the bridge over
Stevenson's Creek on Fort Harrison (Alt. 19), and long range
plans to widen Alternate 19 from Apache Trail to Sunset Point
Road.
Long range traffic plans project usage of Fort Harrison
at the rate similar to existing traffic on this roadway.
Future land use patterns indicated on the Clearwater Land
Use Plan show little change in density or land use distri-
bution. Some expansion of recreation facilities is indicated
at Edgewater Park on Stevenson's Creek.
Although no major changes in use or density are antici-
pated in this area, the age and condition of many of the area's
structures indicate that some level of redevelopment will
probably occur. A field survey of historic structures
conducted by the Volunteers in Preservation in 1978 indicated
several properties with notable architectural or historic
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characteristics;other structures, however, show evidence of
poor maintenance and neglect. Rehabilitation of existing
structures would increase the neighborhood's stability and
appearance. This is important, due to the wealth of visual
resources in the area.
Visual Analysis
The lands in the harborside coastal zone include portions
of the City's earliest settlements. In most areas, these old
structures have been replaced with new homes or stores.
The city limit between Clearwater and Dunedin begins at
Union Street. Properties along Edgewater Drive in Dunedin
have largely remained in single family ownership, with sweeping
lawns and mature vegetation, allowing a panoramic V1ew of
Saint Joseph Sound. Development along the west side of Edge-
water Drive is limited to public and private recreation,
affording vistas to automobile drivers as well as pedestrians.
South of Union Street, the development pattern on the
west side of Edgewater remains largely the same. Rip rap fill
has been used to stabilize the shoreline, some landscape
materials have been planted and several benches have been
placed along the water's edge. Development on the east side
of Edgewater Drive is primarily devoted to low-rise motels
and apartments along the road frontage with single family homes
on the interior lots. There is no undeveloped land in this
section. Properties along the frontage were largely developed
in the 1950's to 1960's and have a high building to lot
coverage ratio.
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Efforts have been made to landscape the front setback area;
it is evident that some care was taken in the design of these
structure. Views from the interior streets (Commodore, Sedeeva,
etc.) provide vistas of Saint Joseph Sound and serve to
integrate the single family districts with the waterfront. On
the whole, the development pattern along Edgewater Drive north
of Sunset Point Road is visually consistent. Although the land
use is multi-family apartment and motel in Clearwater and
single family residential in Dunedin, the main coordinating
elements,the .open vistas across Saint Joseph Sound and the
green belt along the shore, remain constant throughout this
stretch of road.
The bridge across Stevenson's Creek just south of Sunset
Point Road provides a significant landmark and gateway in the
urban landscape. South of Sunset Point Road there is develop-
ment west of Alternate 19, obscuring vistas available on the
northern portion of this road. Development along this road is
mainly older commercial buildings, motels and offices. Shore-
line development is primarily residential uses.
The area from Venetian Drive to Cedar Street west of
Alternate 19 may be considered a single sub-neighborhood.
Osceola Avenue and Sunset Drive serve as the north-south
collector streets. The distance from Alternate 19 to the water,
approximately 1000 feet, is traversed by side streets which
dead end at the bay. These street ends present opportunities
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for mini-parks and landscape areas, however, very little has
been done to capitalize on these opportunities.
Properties in this area represent many different periods,
architectural styles, and levels of maintenance. Most lots
have 50-foot frontages. Although some homes along the bay can
be characterized as estate-type (with the areas around Spring
Court being especially notable) most of the housing in this
area is older, modest dwellings of frame or stucco construction,
from the 1940's and 1950's.
The streets cape in this area presents a somewhat cluttered
appearance. Osceola Avenue and Sunset Drive are both narrow
streets. Particularly on the portions of Osceola Avenue where
duplex and apartment units are present, on-street parking
creates impediments to traffic circulation. Mature trees
provide elements of enclosure and for small isolated stretches,
uniform vegetation visually links adjacent properties with one
another. The frontage along Alternate 19 is functionally
oriented toward the highway, and is not integrated with the
design or function of the adjacent residential areas.
From Cedar Street south to Drew Street the development
pattern in the North Osceola district becomes more intensive.
Major community facilities in the district include North Ward
Elementary School, the Seminole boat docks, the Clearwater
Woma~'s Club, the Clearwater Garden Club and the Little
Theater. Although some single-family residences remain In
this area, multi-family structures dominate. These multi-
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NORTH HARBOR HISTORIC STRUCTURES ~~p
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family structures range in type from old two-story wood frame
apartments to townhouses to an eleven-story condominium. The
street pattern in this section is very constricted. The
right-of-way for Osceola Avenue is only 40 feet and there are
; ,
three 900 turns in the space of 600 feet. Large oak trees
shade the street and are prime design assets of this area.
Vistas to the water are limited, and several structures in
the area suffer from poor maintenance.
Environmental Analysis
Water quality in Clearwater Harbor adjacent to the north
harbor neighborhood is generally good. Stevenson's Creek,
which empties into Clearwater Harbor drains a large urban area
and receives treated effluent from the City's Marshall Street
Sewage Treatment Plant. Water quality in the Creek can be
categorized as poor; however, the broad mixing zone in Saint
Joseph Sound proviges for dilution of the effluent. Another
potential sources of water pollution is the Seminole Boat
Launch and dock, where oil and gasoline are used.
The harbor waters in this area are generally shallow and
well flushed by daily tidal action, with mean charted low
water depths varying from ~ to four feet outside of navigation
channels. Surveys made for the Clearwater Planning Department
in 1978 show that extensive grass bed can be found in the
harbor, in spite of intensive urban development of nearby uplands.
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Two exceptions to the overall good flushing patterns are
Venetian Point and the Seminole Boat Dock areas, which can be
categorized as poorly flushed.
Urban runoff generated in the north harbor neighborhood
is deposited in Clearwater Harbor 1n the following amounts:
Table 8
Current Pollutant Loadings, North Harbor Neighborhood
Pollutant
Pounds/Yr.
Suspended Solids
Biochemical Oxygen Demand
Total Nitrogen
Total Kjeldahl Nitrogen
209,709
36,663
6,625
5,876
Source: Clearwater Planning Department
Significant amounts of urban runoff are also deposited
from flows into Stevenson's Creek. Although the harmful
effects of urban runoff (turbidity, over-nitrification) are
mitigated by dilution with harbor waters, the generalized
deterioration of Clearwater Harbor has been observed over the
long term.
In summary, the north harbor neighborhood remalns one of
the oldest residential area~ in the City. Its assets include
mature vegetation, pockets of open space, and a low density scale
of development. The neighborhood is hampered by a poor cirucla-
tion pattern, scarcity of off-street parking, deterioration of
some structures, and awkward transitions from the commercial
areas on Fort Harrison Avenue and adjacent residential areas.
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The general pattern of obsolescence, coupled with over-zoning
in some areas and a high percentage of rental households.
indicate tendencies toward neighborhood instability.
Although the overall quality of adjacent waters IS good,
discharges from the Marshall Street Treatment Plant should
continue to be monitored and monitoring in the vicinity of
the Seminole Boat Launch area should be initiated. The
natural shoreline in much of this area has been augmented by
seawalls. Due to decreased wave and tidal action in the
harbor, erosion IS not a severe overall problem, although the
shoreline north of Stevenson.ls Creek is not stabilized by
vegetation. The City of Clearwater is beginning a feasibility
study directed at the reconstruction of a salt-water marsh In
this area. This reconstruction would both improve water
quality and provide a site for deposition of spoil.
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RAINAGE OUTFALLS - NORTH HARBOR
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FIGURE 9
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i\ORTH HARBOR
KEY ISSUES
1. Monitor water
qualit~ retain mangroves.
2. Stabilize shore.
3. Preserve/
enhance vistas.
OBJECTIVES
A. Develop linear
park, bicycle
path.
B. Develop landscape/
gateway.
C. Institute zoning
compatible with exist-
ing development scale.
D. Potential redevel-
opment area.
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E. Preserve existing
structure.
FIGURE 10
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NEIGHBORHOOD ANALYSIS
DOWNTOWN
Functional Analysis
The downtown coastal zone IS bounded by Drew Street on
the north, Fort Harrison Avenue on the east, the Pierce
Boulevard Loop on the south, and Clearwater Harbor on the
west.
With only 76 acres, the downtown bayfront area is the
smallest of the coastal zone neighborhoods, however, it is
the focus of frequent public discussion. Serving as the
gateway between Clearwater Beach and the mainland and as
the westernmost section of the central business district
the downtown bayfront is also the most intensely developed
coastal district, with essentially no vacant parcels. There
are, however, several underuti1ized parcels of land in this
district. Land uses in the downtown bayfront area are as
follows:
TABLE 9
Existing Land Use, Do~~town Bayfront
Use
Public/SemI-Public
Recreation/Open Space
Commercial
Multi-Family Residential
Roads
Total
Acres
26.0
3.4
16.9
9.5
20.6
76.4
% of Total
34
5
22
12
27
100%
Source: Clearwater Planning Department
Almost forty percent of the land in the downtown bay front
area is used for public parks, churches, and public buildings.
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Located in this district are the City Hall, County Courthouse.
the main Clearwater Public Library, and Calvary Baptist Church.
The City's bay front parks provide active and passive recre-
ation activities, with the nine bayfront tennis courts serv-
lng as a community recreation facility.
The downtown bayfront, with approximately 780 residents
ln 500 dwelling units has the smallest population of any of
the coastal neighborhoods. Housing is provided in condominiums
and retiree-oriented congregate living facilities. Nearly all
residential structures in the downtown coastal zone have been
built since 1970, and cater to middle and upper income groups.
The presence of the bayfront park system provides recreation
opportunities for residents; however, the distances are not
as minimal as they appear, since changes in grade and/or high
volume roadways isolate the park areas. Libraries and govern-
mental offices are within walking distance of bayfront reSl-
dences, and speciality and some convenience shopping oppor-
tunities can be found nearby.
There is a high concentration of "landmark" structures
ln the downtown bayfront. A survey made in 1977 identifies
the following structures in the downtown bayfront as notable
due to their architectural or historic characteristics:
Calvary Baptist Church, Clearwater City Hall, Peace Memorial
Presbyterian Church and Roebling Hall and the old County
Courthouse. By virtue of its function as well as its archi-
tectural features, the downtown Bayfront is a key area of
the City. Future land uses in the area were addressed ln
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The Plan for Downtown Clearwater (1977) ; traffic patterns
were examined in the State Road ~ Relocation Feasibility
Study. The impetus for these study efforts has been
the relative decline of the retail function of the downtown
area. The downtown bayfront area is seen as an important
element in any downtown revitalization plans. Public owner-
ship of the much of the property immediately east of the
bayfront, the relative underutilization of parts of this
land for parking lots, and the lack of a coordinated bay-
front park system have lead to creation of a bayfront park
system sketch plan.
Major thoroughfares through the bayfrQnt area. include
State Road 60 and Alternate 19 (Fort Harrison Avenue) .
Traffic counts taken by the State DOT indicate that SR 60
carries an average of 21,100 vehicles per day on this down-
town road link. This 15 slightly below the roadway's
capacity of 24,000 vpd. Traffic congestion is frequently
apparent at the intersection of Pierce Boulevard-Drew Street
and SR 60. This intersection had the City's fifth highest
accident rate (52 accidents) in 1979. The intersection of
SR 60 and Fort Harrison, with 15 accidents in 1979, is also
considered a high accident location.
The State Road ~ Relocation Feasibility Study, issued
1n December 1979, contained additional data and recommenda-
tions regarding traffic circulation. The specific purpose
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of the study, the design of an acceptable traffic diversion
route to permit the reduction of capacity on the existing
SR 60 alignment, resulted in the development of eight
alternate road systems. As of September, 1980, none of the
governmental bodies involved in this program have taken any
action toward implementing the recommendations of this study.
Future changes in the alignment of SR 60 will have a direct
bearing on urban design and land use in the downtown bayfront
area.
Visual Analysis
The coastal zone In the downtown (Drew to Chesnut
Streets) is a high activity area~ The dominant natural
feature is a bluff located just west of Osceola Avenue which
rises to an elevation of approximately 35 feet above sea
level. Dominant features are the bridge and Pierce Street
loop, Coachman Park, Calvary Baptist Church, and other
notable downtown buildings. Lands seaward of the bluff are
not intensely developed; most of this land IS in public own-
ership and is devoted to either public recreation or parking
area. Landscaping and heavy tree cover exist in isolated
sections of the downtown bayfront, however, no attempt has
been made to visually unify the area. The scale of land
usage and ownership in this area is large, and the potential
exists to create an urban setting scaled to both the auto-
mobile traveller and the pedestrian. Waterfront vistas are
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DOWNTOWN HISTORIC STRUCTURES MAP
FIGURE 11
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afforded from the roads and also from the public buildings
located on Osceola Avenue. Coachman Park is the only passive
recreation area in the downtown. No pedestrian or non-
vehicular connectors exist in this area. The lack of
pedestrian access between the bayfront and the public parks
to the west of the loop road, and the barrier to pedestrian
access created by SR 60 at the loop intersection, are the
primary impediments to the development of a multi-functional
bayfront park'system.
Environmental Analysis
The emphasis on intensive use of downtown bayfront lands
leads to intensive pressures on adjacent waters. Successive
surveys taken in 1978 and 1980, have shown that some grass
beds have decreased in size. Most of the storm drainage
generated in the western portions of downtown Clearwater IS
channeled directly into Clearwater Harbor; the high degree
of impervious surface which covers this area eliminates the
beneficial effects of filtration through vegetated areas.
Although adjacent waters are considered well-flushed, stress
on adjacent waters will be increased by siltation and erOSIon
which may result from construction activities or by failure
to adequately maintain and stabilize adjacent shorelines.
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DRAINAGE OUTFALLS
DOWNTOWN BAYFRONT
FIGURE 12
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~Stormwater
Outfall
'-""'Stormwater
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TABLE 10
Estimated Pollutant Lands, Downtown Bayfront
Pollutant
Suspended SOlIds
Biochemical Oxygen Demand
Total Nitrogen
Total Kjeldahl Nitrogen
Pounds/XR
73,191
13,370
2,139
1,895
Source: Clearwater Planning Department
It should be noted that the pollutant loads represented
1n Table 10 recognize only those pollutants which are
generated in this area. Drainage systems in the downtown
are such that stormwater from outside the immediate coastal
areas enters, treated, the waters of Clearwater Harbor.
Long .range plans should include provisions for remedial
actions to allow filtration of sediments prior to discharge.
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FIGURE 13
[i]
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KEY ISSUES
OBJECTIVES
1. Protect grass beds. A.
2. Monitor water quality.
B.
3. Stabilize dirt pile,
moni tor erosion, siltation.
C.
4. Develop stormwater
treatment (in conj unction D.
with area improvements) .
E.
Enhance utilization, Coachman
Park.
Improve util i za tion/Provide
landscaping.
Delineate pedestrian connector.
Develop/enhance Gateway area.
Incorporate into bayfront park
system landscape, enhance for
recreational use.
F. Enhance vistas, provide addi-
tional passive recreation.
G. Clean-up/enhance for recrea-
tional use.
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NEIGHBORHOOD ANALYSIS HARBOR OAKS
Functional Analysis
The Harbor Oaks portion of Clearwater's Coastal Zone
encompasses that area south of Pierce Boulevard, west of Fort
Harrison Avenue and north of the Bellair town line. This
district includes one of the oldest neighborhoods in Clearwater
and is considered a prime residential area. Bracketing this
residential section are commercial land uses along Fort Harrison
Avenue and two major institutional use areas: the Pinellas
County Courthouse complex at the northern edge, and Morton
Plant Hospital (with related medical offices) at the south.
Land uses in this district are shown in the following table:
Table 11
Existing Land Use, Harbor Oaks
Use
Acres
% of total
Single Family Residential
Multi-Family Residential
Comme rci al
Public/Semi-Public
Ro ads
Vacant
TOTAL
Source: Clearwater Planning
59
12
20
25
29
5
150
Departmen t
39
8
13
18
19
3
TOO
There are 387 dwelling uni ts in the district, hous ing
approximately 815 people. Most of the housing in the core
of this district is in good-to excellent-condition, however,
some units near the district boundaries are poorly maintained.
There are three structures in this district which have been,
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entered on the National Register of Historic Places. They
are: South Ward School, Spottis Woode (the former) home of
Donald Roebling, and the Louis Ducros house. A survey conducted
in 1977 revealed that numerous other properties in this area
have architectural and/or historic merit and should be considered
for state or national register designation. The issue of
historic preservation is considered in greater detail in the
Historic Preservation Element of the Clearwater Comprehensive
Plan.
The neighborhood has several churches and a neighborhood
school. There are no public parks in this neighborhood, however,
there is a landscaped median in the center of Bay Avenue which
provides visual open space linkage down the spine of the neigh-
borhood. Public docks at the foot of Turner and Magnolia
Streets serve as waterfront seating areas for residents and are
the only docks of their type in the City.
One of the major influences on this district has been the
continued development and expansion of the Morton Plant Hospital
Complex. Prom its start in 1916 with 20 beds, Morton Plant
Hospital has grown to be the fourth largest hospital in Florida,
with 745 beds. Officials indicate that the hospital's long-
range plans include future expansion toward the south and east
with the ultimate objective of including all of the land between
Clearwater Harbor, Jeffords Street, Port Harrison Avenue and
Corbett Street in medically-related land uses. This condition
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lS reflected in the Clearwater Comprehensive Land Use Plan.
The main north-south arterial is Fort Harrison Avenue
(Alternate U.S. 19) which forms the eastern boundary of this
neighborhood. Traffic counts taken by F.D.O.T. on this four-
lane undivided roadway indicate that the capacity is sufficient
to meet present and future demand. Interior collector streets
are Druid Road, West Druid Road and Bay Avenue. These are
narrow two lane streets, which can accept only low volumes of
traffic. Potential for roadway expansion is limited .by the
extent of development of adjacent properties. According to
standards established by the Institute of Traffic Engineers,
hospitals have a very high rate of trip generation (esti-
mated at 211 trip ends per acre per day). Existing and
future development at Morton Plant Hospital is expected to
place serious strains on the local street system. It is
estimated that Morton Plant Hospital generates 2700 vehicle
trip-ends per day, with office development in this neighborhood
generating 4000 vehicle trip-ends per day. Overall, this
neighborhood generates 17,770 trip-ends per day (exclusive of
church uses).
Visual Analysis
South of the downtown area, a small transitional district
leads into the Harbor Oaks sector of the coastal zone. This
transition district has a mixture of land uses including high
rise condominiums built along the bayfront in the early 1970's.
Institutional uses in this area include county government
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buildings, churches and related parking. Orignially, this
area was built with bungalow-type wood frame houses, and some
of these structures remain as private homes, others have been
renovated as offices. The massive scale of the courthouse
construction with the ancillary parking areas and high-volume
access roads dominate this sub-district. Canopy oak trees
are prominent design elements. Turner Street IS a broad avenue
with a scenIC vista toward Clearwater Harbor, and contrasts
with the generally congested street pattern in this area.
The southern-most harbors ide residential sector of the
coastal zone is Harbor Oaks, which is one of the city's oldest
and best preserved neighborhoods. Encompassing a ten to
twelve block area, extending roughly from Druid Road to Lotus
path on the south, and from South Fort Harrison Avenue to
Clearwater Harbor on the west, the majority of the homes in
this small but unique neighborhood were built prior to or
during the boom decade of the 20's. The neighborhood's
intimate and eminently walkable character is additionally
enhanced by a dense canopy of mature native oaks which has
been clutivated and preserved by residents.
Despite the harborside location of Harbor Oaks, the
pattern of interior streets and sidewalks is oriented inward
on itself rather than toward the water front. The only public
access and vista to the harbor is provided at the end of ~jagnolia
Drive and Turner Street. Druid Road, a heavily traveled col-
lector street, runs through Harbor Oaks along the north and west.
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FIGURE 14
HARBOR OAKS HISTORIC STRUCTURES MAP
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DRAINAGE OUTFALLS
HARBOR OAKS
FIGURE 15
~Storrnwater
Outfall
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Table 12
Current Pollutant Loadings, Harbor Oaks Neighborhood
Pollutant
Pounds/Yr
Suspended Solids
Biochemical Oxygen Demand
Total Nitrogen
Total Kjeldahl Nitrogen
132,782
20,370
4,590
4,258
Source: City of Clearwater Planning Department
Due to the excellent flushing in this part of the harbor,
it appears that a relatively healthy marine environment exists
1n spite of pollutants entering from adjacent developed uplands.
However, urban development has nearly destroyed the natural
bluff which is adjacent to the wate.r. Multi-story structures
have been built with their foundations near sea level and their
upper stories towering over the bluff. Construction of this
type is not consistent with the urban design pattern established
in Harbor Oaks or with sound principles of flood plain manage-
ment.
The very desirability of the Harbor Oaks neighborhood has
attracted threats to the area's charm and comfort. Although
this area does not include all of the "ideal" amenities such
as public parks, the size and architectural diversity of the
housing stock have proved to be most durable assets. Encroach-
ments of incompatible land uses should be resisted t~Hough
zoning and related land use policies.
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OBJECTIVES
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A. Maintain limits of office,
hospital expansion.
B. Develop/enhance waterfront
vis tas.
c. Designate as historic
district.
D. Curtail high-rise waterfront
development.
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NEIGHBORHOOD ANALYSIS
NORTH TAMPA BAY (Including Courtney Campbell Causeway)
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Functional Analysis
The North Tampa Bay neighborhood contains one of the
most ecologically productive portions of Clearwater's coastal
zone, Cooper's Point and Bayou. This neighborhood IS bounded
on the north by the Clearwater City limits, on the east by
~Tampa Bay, on the south by SR-60 and on the west by McMullen-
Booth Road. Land uses in this neighborhood are as follows:
TABLE 13
Existing Land Use, North Tampa Bay
USE
Single Family Residential
Multi-Family Residential
Mobile Home Parks
Commercial
Public/Semi-Public
Vacant
Roads
Total
ACRES
170
44
6
18
79
360*
68
;;rz
% of TOTAL
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6
1
2
11
48
9
IOO%
*Includes 218 acres on Cooper's Point; development
rights accruing to this estuarine area will be
discussed in detail.
Source: Clearwater Planning Department
The 938 dwelling units in this neighborhood house
approximately 2,032 people. Over 3/4 (77.2%) of the housing
In this neighborhood IS owner-occupied. Most of the housing
In this neighborhood IS in good to excellent condition.
Neighborhood facilities include one church and a public park.
One community facility, the Baumgardner Center for the
Performing Arts is being constructed in this district. There
are no public schools, however, Clearwater Christian College
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has a small (15 acre) campus on Cooper's Point. Commercial
uses in this neighborhood are limited; residents have to
leave the area for most of their daily needs. Vacant land
(exclusive of Cooper's Point) totals 26 acres, most of which
1S indicated for low density residential development.
Traffic counts are available at the northeastern and
Southwestern boundaries of this neighborhood. At the Bayshore
Boulevard count location the average daily traffic of 7,160
vehicles per day (in 1979) was well below the capacity of this
two-lane minor arterial road. McMullen-Booth Road is operating
near its capacity of 12,000 vehicles per day. The Board of
County Commissioners has plans to widen this road to a four-
lane divided highway with a possible bridge connection to
49th Street. These improvements would upgrade the status of
McMullen-Booth Road to that of a major arterial roadway, but
are also expected to have significant environm~ntal and
community impacts. A similar proposalJthe Pinellas Parkway, was
submitted for countywide referendum in the 1970's and was
defeated. Subsequent feasibility studies undertaken at
the request of the Board of County Commissioners indicated
that, under the proposed toll structure, revenues generated
would not be sufficient to cover annual costs.
Projections of trip generation per acre (of selected land
use) indicate that internally-generated trips are expected to
total 19,137 trips per day at full development. The completion
of the Baumgardner Center for the Performing Arts, which 1S
currently under construction, will attract approximately 1,200
vehicles for peak (sold out) performances. On these occasIons,
limited traffic congestion on McMullen-Booth Road is expected.
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Visual Analysis
Clearwater's shoreline along Tampa Bay begins just south
of the Alligator Lake outfall. The pr1mary north-south
arterial north of SR-60 is Bayshore Boulevard, a wide two
lane road which follows the shoreline.
Development in the northern portion of the Tampa Bay
coastal zone is primarily of low density residential struc-
tures. A dominant natural feature is Cooper's Point, a
heavily vegetated finger of land which extends northward into
the bay. Coop~r's Point 1S separated from the mainland by a
shallow body of water, Cooper's Bayou. Development on Cooper's
Point is limited to a small private college which is not
visible from the road.
East of Bayshore Boulevard, thick growths of natural
vegetation extend from the road to the waterline, allowing
only occasional water vistas.. There are institutional build-
ings at the corner of SR-60 and Bayshore Boulevard, but they
are of a small scale. Proceeding northward along Bayshore,
the only development east of the road is a condominium project.
This project has been carefully sited among preserved trees.
Due to the natural contour of the land sloping away from the
road and the wide setback from Bayshore, these "California-
style" townhouse structures appear to blend well with their
surroundings.
West of Bayshore, there 1S a large section of single
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family homes. These subdivisions were built in the 1960's
and 70's on 75 front foot lots. Architectural styles are
consistent with the vernacular, with stucco walls and tile
roofs. Most of these properties are well maintained. South
of the subdivisions there are several condominium projects.
One of these projects was built in Mock-Tudor architectural
style.
South of the condominium project the development pattern
1S less cohesive. Dominant features are a two story condo-
minium complex near the Bayshore/SR-60 intersection and the
lush vegetation on the east side of the road.
The final portion of the coastal zone to be considered 1S
Courtney Campbell Causeway which links Clearwater with
Hillsborough County. The Causeway carries four lanes of
traffic, with a painted center median and pull-off areas. The
southern snore of the Causeway is relatively bare of vegetation
and has been stabilized with rip rap. The northern shore,
which is subject to relatively less wave action, has been vege-
tated with mangroves, oleanders, and Brazilian Pepper trees.
Some recreational use is made of the Causeway for picnicking,
boatina and passive recreation.
0'
Environmental Analysis
A most significant natural feature of this neighborhood
1S Cooper's Point. This 1S Clearwater's last remnant of the
virgin Tampa Bay shoreline. The peninsula joins the mainland
at Courtney Campbell Causeway and consists of 334 acres, 298
of which are tidal swamp or estuarine areas. Unlike most
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other portions of the city's coastal zone, no dredging, fill-
ing or extensive clearing of land have occurred. There IS
no clear demarcation between land and water areas; this deter-
mination was a key factor in litigation regarding this pro-
perty (Smith et. al. v. City of Clearwater, 383 Southern 2nd
681). The zoning category applied to these wetlands (as well
as to other wetland areas around the city) is AL, Aquatic
Lands. The uses by right in the AL zone are circumscribed to
prevent the destruction of these environmentally productive
areas. Earlier sections of this report outlined the biophysi-
cal characteristics of such productive estuarine areas.
The waters surrounding the north Tampa Bay neighborhood
are very shallow, with depths in and around Cooper's Bayou
seldom exceeding one foot in depth. Hillsborough County
conducts an extensive environmental quality monitoring pro-
gram which covers the entire Tampa Bay system. In their re-
port Environmental Quality, 1978, they characterized this
area as having generally acceptable water quality. Analysis
of water samples taken at a point approximately 3,000 feet
east of the northern tip of Cooper's point has revealed a
great deal about the marIne environment. This portion of
Old Tampa Bay had low concentrations of bacteria and nutrients.
Levels of dissolved oxygen appear to be adequate to sustain
marine life, with biochemical oxygen demand reported at rela-
tively low levels. High levels of total organic carbon
were found, as well as high color and turbidity and low light
penetration. These conditions are indicative of "natural"
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FIGURE 17
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DRAINAGE OUTFALLS - NORTH TAMPA BAY
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pollution, that is, the presence of a marshy estuarine system
which contributes tannin and nutrients to the receiving waters.
High levels of turbidity are augmented by a major gyre in
upper Old Tampa Bay. Gyres are circular water flows which
tend to keep particles in suspension rather than settling out
or being flushed toward more open waters. A study of particles
released into northern Old Tampa Bay revealed that it can take
up to 20 months for materials to be flushed into the
Gulf of Mexico.1 Given these hydrologic conditions and the
relatively poor water quality which exists in eastern Old
Tampa Bay, it is fortunate that the water quality in the
bay's western sectors has not suffered greater degradation.
Predicted values of pollutant loads entering Old Tampa Bay
from development ln this neighborhood are as follows:
TABLE 14
Current Pollutant Loadings, North Tampa Bay Neighborhood
POLLUTANT
Suspended Solids
Biochemical Oxygen Demand
Total Nitrogen
Total Kje1dahl Nitrogen
POUNDShr
265,946
48,815
10,236
9,103
Source: City of Clearwater Planning Department
Major discharges to Old Tampa Bay include Alligator Lake,
which receives storm water runoff from a large portion of
eastern Clearwater, Safety Harbor, and unincorporated areas.
Point-source runoff originates at a citrus packing plant and
industrial park located near the banks of Alligator Creek,
but most of the discharges into the lake consist of runoff
1 . Environmental Qua1it~ 1978, Richard G. Wilkins ed., Tampa
Florida 1979 Page 1 6.
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from developed urban areas. The harmful effects of urban
runoff are mitigated somewhat by maintenance of a greenbelt
along the shoreline of Alligator Creek and Lake. Currently,
efforts are underway to place additional shoreline areas In
public o\mership and expand the flood control capability of
the streambelt. Support for this project has been provided
by SWFWMD and State Department of Natural Resources funding
for recreational improvements is being sought. City revenues
are also being expanded on the project.
Although the predicted volume of pollutants emitted
appears high, the relatively good quality of bay waters
indicates that their maximum assimilative capacity has
probably not been reached. As undeveloped land 1n the
Alligator Creek watershed is converted to urban and suburban
land, both point and non-point pollution will increase. The
relative lack of flushing in Old Tampa Bay would indicate a
need to consider preservation of water quality a high prior-
ity. Solutions include advanced wastewater treatment,
retention/detention of storm water, filtration of storm water
prior to discharge, and retention of natural buffering,
filtration areas.
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FIGURE 18
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FUNCTIONAL ANALYSIS - NORTH TAMPA BAY NEIGHBORHOOD
OBJECTIVES
KEY ISSUES
1. Retain green belts.
2. Monitor water quality
3. Retain productive estuarine
system.
4. Protect grass beds.
s. Protect Mangroves
A. Permit only low intensity land
uses.
B. Develop bicycle path.
C. Enhance scenic/recreational
opportnnities.
D. Encourage annexation/sewage
treatment for unincorporated
enclaves.
E. Develop scenic/recreation
potential of Performing Arts
Center.
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NEIGHBORHOOD ANALYSIS
SOUTH TN4PA BAY NEIGHBORHOOD
Functional Analysis
The south Tampa Bay Neighborhood 1S bounded on the north
by SR 60, on the west by U. S. 19, on the south by Allen's
Creek and on the east by Tampa Bay. This neighborhood contains
a mixture of land uses, including highway-oriented strip commer-
cia1 areas and a major regional shopping center. Although it
is a new highly urbanized area, it also contains one of the
oldest residential communities in Pinel1as County. Land uses
in this neighborhood are as follows:
Table 15
Existing Land Use, South Tampa Bay Neighborhood
Use
Total
Acres % of Total
17 3
148 25
137 23
11 2
lIS 19
80 13
87 15
595 100%
Single-family Residential
Multi-family Residential
Mobile Home Parks
Public/Semi-public
Commercial
Roads
Vacant
Source: Clearwater Planning Department
There are 3444 dwelling units in this neighborhood, housing
approximately 4881 people. Only 56% of the housing units in this
neighborhood are owner-occupied, well below the percentage of
owner-occupied units in the City as a whole. Many of the resi-
dents of this neighborhood are retirees of moderate means.
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Community facilities in this neighborhood include a sewage
treatment facility, a fire station and "the Twig," a small
branch library. Completion of a force main between the east
and northeast treatment plants will allow diversion of some
effluent to the northeast facility, thus effectively expanding
capacity at the Clearwater East Plant. The Twig will be
probably replaced by a full branch library to be located out-
side this neighborhood. There are no public parks or recrea-
tion facilities in this area, in spite of its urbanized
character.
Internally-generated traffic is estimated at 97,000 vehicles
per day. Commercial and residential traffic in this neighbor-
hood exits onto either SR 60 or U.S. 19. These prImary arterials
also serve as local col.lectors for these neighborhoods. Both of
these roads are overloaded. U.S. 19 carries 60,000-65,000
vehicles per day in this area. SR 60 is a four lane undivided
road through most of this neighborhood. Traffic volumes on SR 60
range from an estimated 30,000 vehicles per day in the vicinity
of Clearwater Mall to 21,000 vehicles per day near McMullen-Booth
Road. Improvements to both of these arterials are included In
the Pinellas County Transportation Improvement Program.
One portion of this neighborhood remains as a vestige of
early Clearwater. The old settlement of Bayview was built at what
IS now the intersection of CR 31 and CR 61. Settled in the late
1900's by the McMullen family and others, Bayview was to be the
nucleus of a prosperous community. Unfortunately, the railway
bypassed Bayview, and this community remained an isolated residen-
tial area. The Bafview point which has provided a sheltered
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harbor for fishing and other vessels in. the late 1900's remains
a key feature of this area. A fuller history of Bayview is
included as an appendix to this report. As a result of the
impact study done to determine the feasibility of the 49th
Street Bridge, several Indian mounds we-re found in the bayview
area. Alteration or destruction of these archaeologically
significant areas should be prevented until the full value of
their resources can be determined by further investigation.
Visual Analysis
South of Bayshore Boulevard the shoreline curves westward.
The dominant factors which have influenced development in this
area are two major arterials, SR 60 and u.s. 19. These are
heavily travelled roads which have become foci for commercial
development.
Proceeding west along SR 60 strip development of retail
business, trailer parks and high density uses cluster along
the road frontage. Shoreline uses include the Bayview sub-
division, site of the second oldest settlement in Pinellas
County. This small area, hidden from SR 60, remains an
enclave of older, low-density homes. Vistas to the bay are
available at Bayview and Thornton Roads.
Another small enclave of older homes exists between two
large apartment complexes. Although portions were filled at
one time, the shoreline in this area retains its natural
features. A well landscaped drainage outfall traverses one
apartment complex, providing a green-space linkage with the
landscape strip along the shore.
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FIGURE 19
SOUTH TAMPA BAY HISTORIC STRUCTURES MAP
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>, /' '
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.Listed- Florida Master Site File
ACandidate- Fla. Master Site File
C)Archaeological Site Eligible for
National Register
-78-
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Many of the mobile home courts, apartment and condominium
complexes along this portion of Tampa Bay have retained a por-
tion of the oak trees which once dominated the sites. However,
all of the shoreline in this area is in private ownership, so
the resulting scenic vistas are not in the "public domain" or
generally viewable by the public. Development of parcels In
this portion of the coastal zone has proceeded on a large scale,
with most projects over ten acres In sIze. This has resulted
In a certain predictability in design, with properties uniform
In style and scale, creating the impression of well-maintained
sameness.
Environmental Analysis
Much of the shoreline In this neighborhood has been filled
to create additional upland. Because Tampa Bay has less wave
action than coastal waters, these shorelines are less subject
to erosion from tidal sources; however, improperly stabilized
shorelines will erode from upland storm water runoff and iso-
lated areas of erosion are found in this neighborhood. Approxi-
mately 35% of the shoreline in this district has been seawalled,
primarily along areas which have been created by backfilling.
The natural shoreline of this area was originally ringed
with mangroves. A 1926 aerial photograph shows this mangrove
perimeter, with approximately 60% of the upland area use as
citrus groves. In turn, these agricultural uses were replaced
by urban development.
-79-
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Surface drainage in this area enters from overland sheet
flow, Allen's Creek and an unnamed creek which is located just
east of Clearwater Mall. Allen's Creek drains a large area of
Largo and Pinellas County; the unnamed outfall east of Clearwater
Mall drains an area north of State Road 60. Expected pollutant
loadings due to development in this neighborhood are as follows:
TABLE 16
Expected Pollutant Loadings, South Tampa Bay Neighborhood
Pollutant
Pounds/Year
Suspended Solids
Biochemical Oxygen Demand
Total Nitrogen
Total Kjeldahl Nitrogen
403,892
72,156
12,208
10,819
Source: City of Clearwater Planning Department
This portion of Tampa Bay is monitored by the Hil1sborough
County Environmental Protection Commission. A report of their
efforts covering the year 1978 indicate that a generally ac-
ceptab1e level of water quality exists in this portion of the
Bay. Exceptions to this are concentrations of chlorophyll (an
indicator of possible eutrophication) color, turbidity, and
effective light penetration. These latter three characteristics
are interdependent in the highly colored water, which will
naturally decrease the amount of light transmitted to lower
depths.
Bottom depths falloff rather rapidly In this section of
the bay. Depths of 7-9 feet can be reached approximately 400
yards off shore in the vicinity of Japanese Gardens. However,
alteration of tidal flows by the construction of Courtney
-80-
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FIGURE 20
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II ~
DRAINAGE OUTFALLS - SOUTH TAMPA BAY
-81-
---,
--
....Stormwater
Outfall
~tormwater
Runoff Ridge
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Campbell Causeway has apparently resulted In the formation of
an "arm" of sedimentation extending south from the Causeway.
Two gyres, circular patterns of water flow, are found in these
near-shore waters. Gyres tend to keep undissolved particles
in suspension, and undoubtedly contribute to turbidity condi-
tions. Because the outfall from the Clearwater East Sewage
Treatment Plant discharges into this area, water quality should
continue to be monitored. The Clearwater East plant is
currently operating near its 5 MGD treatment capacity, resulting
in the placement of a limited moratorium on new hook-ups in
this area.
In summary, the development in this neighborhood is
oriented toward the high vOlume/high capacity street frontages.
The natural bayshore has, in most areas, yielded to develop-
ment pressures, although the bayview section retains historic
interes~. Water quality In surrounding bay waters is generally
good, but could be enhanced by improving the quality of tribu-
tary waters discharging into it. Aesthetic and recreational
factors have been largely overlooked in the development of
this area.
-82-
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FIGURE 21
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11
KEY ISSUES
SOUTH TAMPA BAY NEIGHBORHOOD
OBJECTIVES
l. Monitor discharges A. Deve lop Historic District.
from treatment plant.
B. Preserve/Research Indi ans
2. Monitor water qua1ity~ mounds.
sedimenta tion.
C. .Develop linear park-trail.
3. Retain shore line
ve ge ta tion. D. Encourage low rise development.
E. Expand recreational
opportunities.
F. Protect mangroves
-83-
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! "2893 82-23 r' ...'3417 83-81 l I I ~.. -(7-. rs ,esl%', ~3627 84-19
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: ,,3193 none 13422 83-84 ~\ J -, - \~ 0 t::r~ I: /3639 84-25
I, " i 1'3424 83-85 t~1) II --'- == . ~"- ~ ~,tJ .3704 84-33
!i ~ - -L~ o. f ~~:~8~~~~~LO-5 O~84 - ~~ ~ ,~ I?i ~ [ , c~;. ~ r, ~J" lJ I ;~m in~:
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~ -., ~~ ; i 0= l;S '. ~;' , ~'- l- V 369 5 8 3 - 12 5
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~
-""-~ -
~
CLEARWATER TONIORROW
~ LAND USE PLAN ~.
YEAR 2000
ENVIRONMENTAL CONSTRAINTS
ON PERMITTED LAND USE
~ Tidal Swamps and Flats
~ Beach Dunes
~ Freshwater Marshes
~ Hardwood Swamps
~ Cypress Swamps
rel Interior Flood Plains
~ and Bank Vegetation
~ Unique Upland Forests
~ Critical Wildlife Habitat
........ SCENIC CORRIDORS
------------~\\
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Gulf
of
Mexico
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DLOW DENSITY RESIDENTIAL
(0 . 8.0 units per acre)
~MEDIUM DENSITY
EJ(8.1 .16.0 units per acre)
HIGH DENSITY
(16.1 - 28.0 units per acre)
RESIDENTIAL/OFFICE
DOWNTOWN DEVELOPMENT
DISTRICT AND OVERLAY
I::] PUBLIC/SEM I-PUBLIC
E::)RECREATlON/OPEN SPACE
~
LUP
83-118
84-31
83-113
83-71A&B
83-112
83-114
""""
DATE
5 17 84 Co app
7 19 84
8 2 84
-,
i
8 16 84
"
,....
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:-=-
-
(
+-
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Date
06 07 84 PCPC App
09 20 84
",-
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- ---j'-..
- ~
07 19
10 04
10 18
u
. .. ---.--.- .--.., 1
84 PCPC App ~ .;l
84 j .... "i 1;'.
84
-
2z7)
12 06 84
--.
12 20 84
01 10 85
~
ry 28, 1983
'ds for all
) th is date.
. - f-'" -
03 21 85
~JI
SCALE: 1:24,000
1 inch equals 2000 feet
o
I
1/4 1/2
I I
~
o 1/4 1/2
I
1 kilometer
1 mile
I
.. . \
-
~
-
~
LAND USE PLAN
~
" ~;
j;. ~, ...
Clearwater's Comprehensive Plan is made up of
twelve separate elements, of which the Land
, e Plan is one. A state law passed in 1975
(Local ~overnment Comprehensive Planning Act)
requires local governments to adopt, update, and
el1force comprehensive plans. This law requires that all
development regulations be consistent with the City's
Comprehensive Plan, and it is this consistency re-
quirement which renders the Land Use Plan a key
w, :king component of the land development process.
In 1979, Clearwater adopted a binding Land Use
Plan. Since the plan was first adopted, amendments
have been granted amounting to less than 3% of the
City's service area, slightly increasing the amount of
Id.nd devoted to commercial and high density land
U'Ses. In this reprint of the plan map, the time horizon
of the plan has been extended to the year 2000 to
coincide with updated population figures.
The Land Use Plan Map is intended to accu-
rately represent the shape and location of land forms
and depicted waterbodies, and to provide accurate
delineation of land use boundaries, to the degree
permitted by the scale of the map. Greater definition
of actual landforms and the application of categories
to those landforms can be obtained from field inspec-
tions and surveys.
Residential use is the largest category of land
use in Clearwater, as shown on the chart
below; low density residential is the most
commonly-found land use in Clearwater. Conven-
tionally, low density residential development has been
considered to be a detached single family home with a
private yard. Trends toward smaller lots with homes
closer together are reaching their logical conclusion in
the zero lot line land subdivision, "cluster home" or
other alternative low density design forms.
ow density residential use permits a maximum
of eight dwelling units per net acre. Housing
may be either attached or detached, depending
upon the provisions of the specific zoning category
applied. Low density housing is found in nearly all
portions of Clearwater and it continues to be a
preferred development type by the private market.
Between 1981 and 1983, changes to the Land
Use Plan have resulted in a decrease of 171 acres of
low density residential land and an increase of 109
acres in the medium density residential category and
17 acres in the high density range.
g1]edium density residential development is
fv1 character ized by two or three story garden
apartments and is found throughout the City in
both older and newly developed sections. The densities
under the medium category run from 8.1 to 16 units
per net acre, and the range of housing types permitted
under this category is rather broad, including tradi-
tional duplex units, apartments and townhouses.
igh density residential (16.1 - 28 units per net
acre) is the category that breaks from suburban
development patterns. Densities in this range
can only be achieved by building up, with heights
ranging from three to eight stories. The appropri-
ateness of the site for a high rise housing structure is
determined by the surrounding lal1cJ uses, physical
features of the land, transportation access and sen-
sitivity of design. High-density development requires
particular attention to site orientation, architectural
detail, landscaping and other site amenities. r\creage
allotted to high density housing has remained a
constant percentage at 3% of the total service
area.
esidential/office areas are designed as a fusion
of compatible, but previously separate, uses.
This designation permits professional office,
medium density apartment complexes, or both uses
combined on a single site. In part, this is a recognition
of energy conservation objectives and also provides for
full utilization of scarce land. Residential/office use
presents an attractive land planning transition between
residential areas and more intensive commercial
districts. Only 2% of Clearwater's land area is
designated for residential/office use. Residential/office
projects are best sited on minor arterial/major col-
lector streets.
owntown CleaLva ter is recognized by the
Downtown Development District and Overlay
which recognizes the historic commercial
center of the community and through zoning and other
related redevelopment means, seek~ to enhance its
traditional downtown role. Activities permitted in the
downtown district include professional offices, retailing
and high density residential; with mixed use structures
encouraged as an efficient way to use urban land.
Long term plans for downtown Clearwater include
considerable public investments in the road, parking
and open space systems in support of major private
developments. The establishment of a Community
Redevelopment Agency to direct the flow of tax
increment financing revenues will result in the public
and private sectors working as partners in the
redevelopment of downtown. Clearwater recognizes
that a revitalized downtown is a key priority of the
planning process. Proximity to the bay front and
beaches, as well as its strong employment base,
provide realistic assets on which to build revitalization
str a tegies.
ommercial/tourist facilities is the category used
to encompass a broad range of commercial
acti v i ties and occupies 11 % of the planned land
area. Clearwater has experienced a commercial
explosion during the last ten years, focusing on the
U.S. Highway 19 corridor, and particularly the
Countryside area. Recent development has been built
in accordance with current codes, which require
buildings to be lands:-lped and to rrovide adequate
internal circulation systems in new projects. This
contrasts with the older strip stores, which often have
no landscaping and awkward parking layouts. However,
whether old sty le or modern, all occupied commercial
buildings generate traffic on nearby streets. This
-~
POPULATION TRENDS
CITY AND SERVICE AREA, BY DISTRICT
146.4
Population (In thousands)
~
YE
I
~R
I . 1
InmerCla
Icollector
rnshiP to
fcial uses
. rovide a
ces are
111mercial
-are large
~f?iSe,. and
lnctlOns
and the
f....ng.
e color
make or
~:~tsh:~~
rea. S~ch
~'re, qUIte
environs.
t ned for
~IY ~esig-
primary
tablish a
lent goals
and and
I us insti-
impacts
sChoo)s,
inclu1ed
t plan1ts,
and the
. ublic and
{rounding
ographic
nce the
laltwater
~en space
,a. Public
f.'ilities to
ty-owned
rent and
cs. Golf
(en vistas
wetlands
c Lands)
rotecting
,pace and
which is
'y of life
{8:Sp~c.dl
piC VieNS
temorlal
W'comer's
Ition of a
(ecogr: ze
-
2000
~
traffic impact is a key reason why most c
uses generally are best sited on arterial 0
streets and must be planned in careful rela
their adjoining uses.
A key dimension used to define comlT
is the market area served. Small shops which
limited range of products and personal sel
classified as neighborhood or convenience (
centers. At the other end of the spectrurr
malls which offer broad selections of merch
draw patrons from many miles away. OJ
between these levels of com mercial activi
uses appropriate to each are a function of z(
ndustr ial land uses are denoted by
grey on the land use map. Firms whic
assemble electronic parts and instn
the computer oriented and service indus'
found an attractive home in the Clearwater
facilities need a clean attractive atmosp
compatible with many suburban and urbar
Clearwater has 4% of its land area pi
industry, approximately double that origin
na ted, and industrial uses are dispersed at fe
locations in the community. In order to
diversified economic base, industrial develop
must be actively pursued.
ITJUblic and semi-public uses include
b ui ld ings w hic h ar e ded ica ted to va
tutional uses. The nature and extern
of these properties varies greatly. Church~
hospi tals and government office buildings a
in this category, as well as sewage treatm
electr ic power transmission lines, fire statiol
Clearwater Executive Airpark. In general,
semi-public uses are sited to best serve a :
population, however, historic patterns, t(
features and the road network also infl
location of some facilities.
arks, golf courses, cemeteries and
wetlands, classified as recreation/
lands, make up 11 % of the service a
parks vary from intensely used recreation f
open space areas for passive enjoyment.
park lands represent a significant public inve
are one of Clearwater's most notable as
courses provide both recreational resource,
and breaks in the urban landscape. SaltwatE
and shorelines are subject to the AL (Aqu.
zoning category, which is oriented toward
the natural function of these areas. Open
recreational uses provide visual definitiol
important to the overall appearance and qua
in the community
..... Scenic road corridors are identified b
symbol on the Land Use Plan Map. The S(
afforded by the Courtney Campbell and
Causeways have in large part shaped n
perceptions about the entire City. The desigl
road as a scenic corridor is intended to boH
and protect visual resources and to restrict commer-
cialization of the adjacent properties. Clearwater has
numerous scenic drives which afford vistas across the
water or through gracious older neighborhoods under a
canopy of trees. Retention and enhancement of
Clearwater's scenic resources is important to the
City's economic base.
Areas of environmental sensitivity are identified
on the Land Use Plan by "e" symbols. A subscript of
the symbol indicates the type of environmental
constraint; for example, tidal swamps are designated
€D. These areas should be left undeveloped, to insure
preservation of desirable natural features. When
preservation is impossible, site planning for these areas
should maintain the integrity of the environment, while
permitting development on other parts of the land
parcel. A sensitivity to environmental forms must
shape the entire site design, and not be included as a
token accommodation.
Clearwater's urban area is in different stages
of development. Older neighborhoods are in
need of renewal and "growing pains" are still
evident in the developing portion of the City. As
Clearwater matures as a city, new challenges will
occur.
Clearwater is creating a valuable stock of
capi tal assets which will enhance the quality of life of
future generations. The Baumgartner Center for the
Performing Arts will provide a wealth of cultural
opportunities for the entire County. The City's parks
and libraries are expanding. A bands hell is to be built
downtown, in Coachman Park. Growth and development
of cultural institutions are vi tal characteristics of a
ma ture city, and are the result of thousands of hours
of civic endeavor.
It is a primary objective of the plan that
Clearwater remain a safe and attractive community.
The City's main industry is tourism and retirement
living with much of the area's wealth being earned
elsewhere and spent here. Should the environment
become degraded, that income will diminish. In order
to maintain a stable population, in-migration must
remain strong and maintenance of a quality environ-
ment is a critical influence on migration decisions,
both by individuals and businesses.
Clearwater's Land Use Plan recognizes the need
to provide a good residential and resort environment,
but at the same time, it reflects a conscious desire to
diversify the economic base. The plan calls for an
increase in industrial land use. Industrial expansion
outside the confines of the Clearwater Industrial Park
is already being accomplished, and the expansion of
major office uses will provide additional local
employment. Successful economic growth strategies
will provide a viable mature city well beyond the ti.me .
horizon of the Land Use Plan. Clearwater's reputatlOn
as a prosperous and attractive community is deserved;
it is both a challenge and a goal to maintain and
enhance those characteristics through the remainder of
the century. Adherence to the Land Use Plan and a
carefully considered process for its evolution will help
to achieve that goal and meet the challenge.
A G IDE TO PERMITTED LAND USE
. ZONING CATEGORY YEAR 2000
RE OENTIAL RS RS RS RS RS RM
LO' ~OENSITV 200 100 75 60 50 8 RPO
0-8 UN 's PER ACRE
- .
MED DENSITY RM RM :-
iTS PER ACRE RMH 16 RPD 'I
8.1-16 l 12 '
HICl DENSITY RM RM RM RPD
115.1-28 I .ITS PER ACRE 20 24 28
I ] l ] AM ] AM I RPD I 090 ]
RESIDE fAL/OFFICE PS 12 16
1970 1980 1990 2000 I
DOWNTO't'l I DEVELOPMENT DO DO
C:> (BAY DO (EAST
~ DISTRIC' (NO OVERLAY FRONT) (CORE) CORR.)
.
/ C~ ~ERCIAlI I 1 [ CTF ] I cpJ I ]
CSC CG CS CPO
TOUR! { FACILITY
Q INI ISTRlAL I I ML I.PO -]
<\ PUBLIC rEMI-POBLIC ] I P ] ISP ]
RECREATI I./OPE" SPACE I -] P I AL I ~.]
SOURCE: Bureau of the Census, 1970-80: City of Clearwater Planning Department
.iII'oIIIiIiio--
,
<..Jo.~li(."<f'"i
ZONING KE' r-
RS. Single Family Reside (I
RM . Multi Family ReSide f' I
RMH . Mobile Home Resi, Itial
RPD. Residential Planned veloptnent'" ,0
PS . P, ofessional Services
'1
M~ 0 ,,, "'""~d~" r"' __
- .-.......... ...
DD . Downtown Development
CSC . Commercial Shopping Center
CTF . Commercial Tourist FaCilities
CG .' General BUSiness
CP . Parkway Business
CS . Commercial Services
CPD . Commercial Planned Development
ML . Light Manufacturing
I PD . I ndustllal Planned Development
p. Public
ISP . Institutional Semi.Public
A L . Aquatic Lands
Rec. PD . Recreational Planned Development
LAN[) USE DISTRIBUTION:
36% lOW DENSITY
RESIDENTIAL/OFFICE
COMMERCIAL/TOURIST FACiliTY
DOWNTOWN DEVELOPMENT DISTRICT
STREETS/FRESH WATER BASINS
RESIDENTIAL
Source: City of Clearwater Planning Department
CITY OF CLEARWA TER/ 1983
CITY COMMISSION
KATHLEEN F. KELLY, MAYOR
JAMES L. BERFIELD RiTA J. GARVEY
JAMES M. CALDERBANK WILLIAM G. JUSTICE
ANTHONY L. SHOEMAKER. CiTY MANAGER
PREPARED:3V THE CLEAR\VATER PLANNING DEPARTMENT
,/
1 > ".
ENVIRONMENTAL CONSTRAINTS
ON PERMITTED LAND USE
@ Tidal Swamps and Flats
~ Beach Dunes
~ Freshwater Marshes
@ Hardwood Swamps
~ Cypress Swamps
~ Interior Flood Plains
~ and Bank Vegetation
~ Unique Upland Forests
~ Critical Wildlife Habitat
111111I11111111 SCENIC CORRIDORS
-- - .- - -- -- .- - -- - -- ... .. -~
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Ord 2704 6 17 82 Ord 2869 11 4 82/
II
LUP 81-55 LUP 82-62 ' ,
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Ord 2725 6 17 82 Ord 2870 11 4 8211
I
LUP 82-1 LUP 82-59 I
Ord 2749 6 17 32 Ord 287,3 11 4 82
LUP 82-5 LUP 82-60
Ord 2727 7 1 82
LUP 82-4
Ord 2757 7 1 82
, r- LUP 82 - 7
I
I
j ..-- ._-------~-- ._,_n. _ .- ~ _______ ,
j
II
II
II
II
II
II
II
II
II
II
II
1- - Ord --2 34f -Apr
: LUP 80-66
II
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'! ( LUP 81-2
i /Ord 2394 Jul 16 1981 ~.
I LUP 81- 5 'I
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;1 Ord 2404 Aug 20 1981!
I i L UP 81- 12
;; Ord 2425 Sep 3 1981
II LUP 80-55
: I Ord- 2430--- Sep. 17 1981
II LUP 80- 71
Ii Ord 2450 Sep 17 1981
1'1 LUP 81-11-A
> I' Ord 2465 Sep 17 1981
. II LUP 81-32
II
II Ord 2440 Oc t 1 1981
rn )1 LUP 81-15
~COMMERCIAL/TOURIST FACILlTIESU~ Ord 2455 Oct l' 1981
II LUP 81-10
I, Ord 2466 Oct pj 1981
,'I
,I L LUP..81~13
II 'Ord 2502 Oct 15 1981
U LUP 81-34
U Ord 2463 Nav 5
I' LUP 81-28
:1 OJd 2~07 Nav 5
II U
I , LUP 81-14
I! Ord 2478 Nav 19 1981
II LUP 81-30
;i Ord 2480 Nav 19 1981
, , LUP 81- 31
, , l-> ,.
1,1 Ord 2500 Nav 19 198
II LUP 81-35
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Ord2514 12 10 81 .
LUP 81":58 .
Ord 2523 12 17 81 '
LUP 81-37
Ord 2524 12 17 81
LUP 81-50 ~
Ord 2327 Hay 21 1981 Ord 2525 12 17 81
LUP 80-63 ~ LUP 81-51
Ord 2526 12 17 81
LUP 81-52
Ord 2532 12 17 81
LUP 81-41
Ord 2534 12 17 81
LUP 81-42
Ord 2536 12 17 81
LUP 81-47
Ord 2538 12 17 81
LUP 81-48
Ord 2540 12 17 81
LUP 81-49
,Ord 2542 12 17 81
LUP 81-43 ~
Ord 2544 12 17 81 ~
LUP 81-44
Ord 2546 12 17 81
LUP 81-45
Ord 2548 12 17 81
LUP 81-46
Ord 2550 12 17 81
LUP 81-40
Ora 2552 12 17 81
LUP 81-38
1981 Ord 2554 12 17 81
~";,,,~<, j.UL81-= 3 ~___..~!
1981.://fd 2558 1 21 82 !
~ ,1
':f LUP 81-6
Ord 2560 1 21 82
LUP 81-33
Ord 2562 1 21 82
LUP' 81-8
Ord 2564 1 21 82
LUP 81-9
Ord 2566 1 21 82
LUP 81-6
Ord 2584 2 4 82
LUP' 81"::'-66
Ord 2594 2 4 82
, LUP 81-72
Ord 2591 2 18 82
tUP 81-67
Ord 2617 2 18 82
'LlJP 81-63 '
-10 Ord 2619 2 18 82
2.J LUP 81-56
\'_"IVI1 ~l.
--
Or 2955 4-7-83
LUP 82-41
Ord 2956 4-7-83
LUP 82-42
Ord 2959 4-7-83
LUP 82-43
Ord 2961 4-7-83
LUP 82-44
Ord 2963' 4-7-83
LUP 82-46
Ord 2967 4-7-83
LUP 82-47b
Ord 2968 4-7-83
LUP 82-48
Ord 2970 4-7-83
LUP 82-49
Ord 2972 4-7-83
LUP 82-50
Ord 2974 4-7-83
LUP 82-51
Ord 2977 4-7-83
LUP 82-52
Ord 2979 4-7-83
L UP 82 - 5 3
Ord 2980 4-7-83
L UP 82 - 5 4
Ord 2982 4-7-83
LUP 82-55
Ord 2983 4-7-83
LUP 82-56
S. R. 586
Ord 2606 4 1 82
LUP 81a61
Ord 2608 4 1 82
LUP 81a62
Ord 2707 4 15 82
LUP 81-75
Ord 2709 4 15 82
LUP 81-73
_ __----..... .:;^.- , ...L,-
Ord 2716 5 6 82
LUEBJ: 71
Ord 2718 5 6 82
LUP 81-78
Ord 2663 5 6 82
LUP 81-77
- . --_._~_._--~
Ord 2651 5 20 82
LUP aL~ 70
Ord 2676 6 17 82
LUP 81-16
Ord 2677 6 17 82
LUP 81-17
Ord 2680 6 1782
LUP 81-18'!-'
Ord 2682 t;
LUP 81-19
Ord 2685 6
LUP 81-20
Ord 2687 6 17 '82
LUP 81-21
Ord 268J 6 17 82 <
LUP 81.22
Ord 2692 6 17 82
LUP 81-23
nrd 2694 6 17 82
1 L U? 3 1- ~ {
Ord 2697 6 17 82
LUP 81-26
Ord 2700 6 17
LUP81-27
Ord 2701 6 17
LUP 81-53
Ord 2702 6 17
LUP 81-53
~[)
S ~~~
D LOW DENSITY RESIDENTIAL
(0 - 8.0 units per acre)
Ord 2747 8 5 32
LUP 82-2
Ord 2751 '0 3 82
LUP 81-69
Ord 2740 8 19 82
LUP 82-3
Ord 2778 S 19 82
LUP 82-24
Ord 2784 8 19 82
LUP82-27
Ord 2820 10 7 82
LUP82~28 ~
Ord 2822 10 7 82 :
LUP 82.29
;j
('O-~d 2840 10 21 82
LUP 82-21
~MEDIUM DENSITY
L.;.iJ (8.1 - 16.0 units per acre)
HIGH DENSITY
(16.1 - 28.0 units per acre)
RESIDENTIAL/OFFICE
DOWNTOWN DEVELOPMENT
DISTRICT AND OVERLAY
1 \~;r2,
f-'. i
17.<5'41
" ',;1' 1
INDUSTRIAL
D PUBLIC/SEMI-PUBLIC
, l >' ..1 RECREATION/OPEN SPACE
Ord 2509 11-19 1981
LUP 81-57
'-J
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,-,VI: OC-':J ID
Ord 2989 4-7-83
LUP 82-58
Ord 3003 4-7-83
L UP 82 - 68
Ord 3005 4-7-83
LUP 82-69a
Ord 3007 4-7-83
LUP 82-69b
Ord 3058 5-5-83
LUP 82-78
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,-----
ADOPTED: November 1,1979 pursuant to
Ordinance No. 2019, consistent
with LGCPA of 1975 as amended.
Otd 218~16 82 '
LUP 82-18
Ord 2805 12 16 82
~UP 82-11
Or 2807 12 16 82
LUP 82-10
Ord 2812 12 16 82 ...
LUP 82-12
Ord 2844 12 16 82
LUP 82-13
Ord 2841 12 16 82
LUp 82-14
Ord 2849 12 16 82
LUP 82-15
Ord 2851 12 16 82
LUP 82-16
Ord 2853 12 16 82
LUP 82-17
Ord 2855 12 16 82
LUP 82-18
Ord 2857 12 16 82
LUP 82-19
Ord 2859 12 16 82
LUP 82-20
Ord 2865 12 16 82
LUP 82-11a
Ord 2902 12 16 82
_LlIP.8. 2.: 1_0 a
Ord 2885 1 6 83
LUP 82-64(1)
Ord 2885 1 6 83
LUP 82-64(2)
Ord 2919 1 17 83
LUE...82-=.11_u___. ._
/'
ORD 3055 6-2-8
LUP 82-75
ORD 3079 6-2-8
LUP 83-3
<,'
Amended through March 31, 1981.
ORD 2916 2 14 83
-( L UP 82 - 6 5
lORD 2924 2 14 83
LUP 82-66
ORD 3000 2 14 83
LUP 82-61
ORD 3001 2 14 83
LUP 82-63
ORD 3008 2 14 83
LUP 82-73
Ord 3018 3-3-83
LUP 82-72
I ,.
Oid 2827 3-17-83
LUP 82-31
Oid 2829 3-17-83
LUP 82-33 :I
Ord 2831 3-17-83
LUP 82-32
--Ord 2994 3-17-83
LUP 82-67
:>--..
.. c~Lfd~$f
jt-:-' "
- Lt;" .' '" ..,.'~
- Oid 2~L"
LUP 82-j~.'
- Ord 2942 4-iJ3
LUP 82 - 36
Ord 2945 4-7-83
LUP 82-37
Ord 2947 4-7-83
I LUP 82-38
Ord 2949 4-7-83
LUP 82-39a
Ord 2951 4-7-83
LUP 82-39b
Ord 2953 4-7-83
LUP 82-40
Refer to official City records for all
amendments subsequent to this date.
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SCALE 1 :24000 or 1 inch = 2000 feet
1000 2000 3000 4000 5000
5280feet
meters
250 500 750
--..--------------------
.:;;......... -
, ,(<;-:r.;{;;"'~:a~:.__w,_.
--
The Comprehensive Land Use Plan
II
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CLEARWArER~S
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INTRODUCTION
, The official map is an integral part of the
Comprehensive Plan. A written profile of
Clearwater's future was drawn, with projec.
tiQns of housing unit, industrial and com-
mercial floor space, and office space require-
ments with input from citizens and City
officials. In the official map, these para-
meters are given generalized locations,
according to features of the land, traffic
circulation patterns, utility capacity and
the revealed preferences of Clearwater's
citizens. The future land use map is a
generalization of more intricate as-built land
use patterns. Especially in older, heterogen-
eous neighborhoods, the land use map shows
the predominant existing use, and the trend
which the area is expected to follow.
The largest use of land in the City is and
will be housing. The three residential density
ranges, low, medium and high, have different
access and infrastructure requirements.
Clearwater's density ranges are consistent
with those of the county and neighboring
jurisdictions.
PLAN CATEGORIES
Low density housing has a maximum of
eight dwelling units per acre and is charac-
terized by the single-family subdivision.
Because housing is usually spread out, few
car trips per acre of use are generated. The
single-family home is clearly a preferred
occupancy pattern. However; when housing
is not clustered, it is more expensive to
. ~ provide with urban services. As with most
urban land uses, low density housing is best
built on well drained soils, and rolling topog-
:, raph~ can be an 9sset in site planning. Low
density housing may also be built as cluster
or tQw~house developments. In deviating
{rom' the conventional subdivision, land can
be u{ed more advantageously, and costs of
site preparation and urban services will be
10wer.'LQW density development is usually
locate<l away from urban activity centers.
Me'oium density residential housing (8.1 -
16 u(lits per'acre) is characterized by garden
aparfinents Of two or three stories. These
units, ar,e geQerally located nearer urban
activity ~enters. Automobile trips per unit are
equal' to or less than those for low density
development,.'however, because more unit~
are built, 'trips' per acre of developed land are
higher. N1edium density development require$
stable well-drained soils. Site planning re- .
quires careful consid~ration of interior
circulation, ~ntrances onto exterior streets,
and landscapjhg. .
High densitY residential development (16.1 -
28 units per acre) is often located to take
advantage of natur'aJ amenities such as water-
front views or other'sc'~nic v"istas. This'desire
.
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\M!JRJVJ: HAZARD
ZONES,
o ZONE A
lONE B
Q ZONE'.C '
- -: -- - - ~ - -- - 'f\'I Th.e qata for .the zones illustra.
, ~ '. ted, on this map and for the
'. , \ ac!;ompanying text were de-
~' rived from the Nationa~ Flood
'\ Insurance Program's 100-year;
" flood data.'
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COMPREHENSIVE '[AND USE,'PtAN."
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is to enable a greater degree of precision in by field surveys and soils maps. JNTERGOVI;RNMENTAl.:' COORDINATION
administration of the plan and to 'serve as a Scenic/non-commercial roadway COrridors As urbanization spreads across much of
transitional use between commercial and were designated by the City Commission in -, Florida, the operations of government be- ' .
residential areas. Examples of some Residen- 1977, and are shown on the official map. come increasingly complex. In Pinellas
tial/Office areas are the professional office The intent of establishing these corridors is County where the permanent population of
complexes near Morton Plant Hospital and to encourage the preservation of scenic re- 709,400 is divided among 25 governments,
the courthouse. soul&s, and to discourage unplanned expan- ' coordination is a critical issue.
Parks and open space are colored green on sion of non-residential land uses. Toe Pinellas By a special act of the state legislature, the
the official map. Park and recreation facili- County Planning Council, assists in the Pinellas Planning Council was created in 1973
ties are stratified by type of facility and implementation of scenic corridor policies. to provide for "orderly growth development,
area served. Community parks are specialized FROM PLAN TO REALITY and environmental protection in Piliellas
facilities of 10-50 acres, designed to provide a The official land use plan map indicates. County." The powers of the Council have ;
unique service or take advantage of a unique general patterns of land development and ,been modified by subsequent amendments
setting for use by all of the City's residents. is intended as a guide for public and private and the designation of the Council as the
Examples are Clearwater Beach, Crest Lake, parties interested in future land use patterns. Locai Planning Agency pursuant to the
and Wright.Norton Parks. Neighborhood parks The subdivision regulations govern the way Local Goverriment Comprehensive Planning
are designed to provide recreation space for a in which tracts of raw land in the City may Act passed in 1975: The Council has adopted
specific geographic area. Although smaller be turned into building lots. Included in sub- a countywide la'ld use plan, and reviews local
than community parks, they frequently offer division review are conformance with City plans and ameridrn~nts for countywide im-
similar facilities. Wood Valley and Phillip drainage plans and master street plans, pact and consistency'with countywide poli-
interior street design, reservation of land for cies. The Council membership is made up of
Jones Parks are examples of neighborhood school sites, and dedication of parkland. This local elected officials, with representation
parks. The City also has several mini-parks, plat review process is conducted by City from the school board an'd health depart.
which are smaller than one acre and provide officials with final review and approval ment. Staff planners meet as the Planne~s
small breaks in the urban development pat- vested in the City Commission. Advisory Gommittee, and citizen input is
tern. Other open space uses are golf courses, Subdivision of land is generally done only provided by the Citizen's Advisory COlllmit-
cemeteries, and aquatic lands. In order to be once; after fixed inJprove~entsCare made and tee. A sim,ilar mechanism, with the three
designated. o"pen space for land use planning lot boundaries essablished,jhe 'primary land types of boards, is the Metropolitan Planning
purposes, la,nds must be in a natural state, regulation mech<i.,Oisms'-are zoning and re- Organization, which is responsible for th,e
allow for public movement, and be protec- strictive covenant~.,T~hl! Zoning Ordinance transportation plan. The M.P.O. was created
ted from development, either by virtue of regulates permitte~U~es, building setbacks, .in- respQnse to Federal legislation, and serves
ownershir>, deed restrictions, or land develop- heights and bulk, With special sections govern. as the local liaison agency with the State
ment regulations.' ing off-street parking and loading. Develop- ,\" Departnwn..tof Transportation. The Talnpa
Public and semi'public uses designated on ers of major projects'must complete a Com-,: Bay Regional Planning Council p~rfonns
the official map include schools, churches, munity Impact Stqtement. Thi's statement is both general and special purpose functions for
hospitals, airports, and city and county reviewed by key city officials and is useful' the four-county Tampa Bay area. . ,':
facilities. Location criteria fo; schools are as a means of internal cpordination. Restric- , Local plans proposefj, for adoptiqn under
determined by the school board. Since the tive covenants are prfViHe instruments regula- the L.G.C.P.A. are re\1iewed by both regional
primary function of ~any uses in this group ting land use. These1:ovenants are generally' _ 9Qd state planni.ng offices for consistency
is service to residents, location criteria focus applied to,restrict exterior building modifica. With ~doljted plans. In areas of environmen-
on existing and future population. PubliC tions and'ass~;e residents of a subdivision tal and coastal zone planning, the State
utility I,ocations for facilities such as sewage that the visual beauty of their property will Department of Environmental R~gulation is
treatment plants and lift stations may be not be diminished by their neighbor's action. the leap,state agency. Housing anp Commun-
dictated by natural features. In addition to regulatory actions, the City ity Development plans go to th~ offices of
Industrial land use in Clearwater is con- also takes positive steps to secure confor- the Federal Department of Ho~sing and
centrated in the established industrial park mance with the plan. Publicly funded im- Urban Development for certificatJon prior to
on North Hercules Avenue. Additional land provements such as sewage treatment plants funding. Federal funds for oth;r public
for industry is a key need identified in the and roads both enable development to take facilities such as sewage treatment facilities
comprehensive plan. To meet this need, place, and set an upper limit on the intensity are not released unless the propos~d facilitie!
several industrial sites have been designatlfd. of development. Publicly funded housing are consistent with areawide pla;ns. The.
These sites' are higll an"d well-drained, with rehabilitation and neighborhood improvement Federal government has recently"dropped :
+ accesstQ major-arterials. programs have, as one effect, stabilized neigh. its direct support of local land us(plannihg,,.
;eciaJ symbol on the map identifies borhood population densities. Parkland ac- and in the future is expected to fund ol).ly ,
"If envlr.onmental sensitivity. Where quisition and developn"ent provide urban state and regional activities. .~ ,,'
tlle'(v symbbls appear, site planning for the recreation opportunities',as well as preserve This brief sketch of ,the coordmation
area,~ill have to be carefully undertaken. ecologically sensitive areas. The City's Eco- mechanisms for land use planning does',
These symbols are consistent with the recom- nomic Development Committee works to not address those functtonal area~ indirectly
mendat,ions made in the Environmental Man.:. promote a balanced employment base, and related to land use. These include water
aqement Proqram and Conservation E.1..a.ll- the Downtown Development Board attempts supply management (S.W.F.T.M.D.), Navi-
adopted by the City in '1977. That document to bring innovative land use and marketing gable Waterways (U.S. Army Corps of I:rt. 11:".
provides detailed plans for sensitive areas. techniques to Clearwater's central business gineers), and education (Pinellas CO!,Jn.
Presence of these conditions was determined district. School Board). .. '
to maximize the use of a scarce resource has
lead to conflict between developers and the
general citizenry. No local issue is more
heated than the preservation of remaining
beach or bluff properties. High density hous-
ing is a uniquely urban type of dwelling, and
should be located in commercial or recrea-
tional activity centers. High density housing
should be serviced by mass transit, and be
located at or near major arterials.
Commercial activities are designated by
the color red on the official map. There are
several levels of these activities, depending on
the scope of services provided. Regional com.
mercial and business activity centers offer
the broadest range of services and draw pa-
trons from Pinellas County and parts of
Pasco and Hillsborough Counties. Located alt
the intersections of major arterials, regionad
centers must be accessible by public and pri-
vate transportation. In Clearwater, the down-
town area, Clearwater Mall and Countryside
Mall areas are regional activity centers. The
downtown area is given a special designatiorn
on the plan in recognition of the develop- '...'
ment patterns in that area. . ~,.,- ,~
Community commercial cente~s occupy an
intermediate range of goods and services, and
draw from an approximat~!y five mile service
radius. Community com1ercial centers in-
clude department stores, medical offices and
specialty stores. Examples of community
service areas are Sunshine Mall, The Sunset
Point - U.S. 19 shopping center and the shop-
ping area at Nursery and Belcher Roads. Road
access should be provided by major arterials
and mass transportation mayor may not be
available.
Neighborhood shopping areas should be
located near residences served, and provide
basic items or services such as groceries,
drugs, dry cleaninl' rtnd gas. Mass transit
service is usual" :<:<:ue, since most
residents are wi' '~istance; fre-
quently, neighbo ~reas are
located along r.
Clearwater has:
1 ~ .
,t cial areas. The cel
. '~re~rwater Beach ,
. (toWard vacationers.
l of motels, restaurants a.
: these areas. These comr,
!.: s'erve ~s netgh.b?rhoQd bl
the residences on Sand K-
section of Clea~water' B
A Residential/Office... '1e
official map allO,ws medil m..
tial uses or professional C. 10 .g-
f, I nation i~ consi~tentw(tl1the ..cite~ ,tem
used on the Countywide Land Use l ,an
~ adopted by the Pinellas Plimning Council.
The purpose of in'stituting this new category
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. ~TORM HAZARD AREAS
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Efforts to modify and adapt the environ-
ment to accommodate the phenomenal rate of
growth experienced in Pinellas County and
Clearwater have created habitable lands from
areas which were once considered uninhabi,t-
able. In making these adaptations, however,
development practices have not always given
sufficient recognition to the forces of nature
which even the most advanced engineering
technology cannot overcome.
One example of a particular limitation
which needs to be recognized in the devel-
opment pattern and by construction stan-
dards is those areas particularly susceptible to
storm damage because of their location and
elevation. In order to highlight the importance
of these locations, the accompanying map has
been prepared to depict three categories of
relative impact as they would be affected by
a one-hundred year storm. Such a hypothetical
storm would occur once in one hundred years;
i.e., its estimated likelihood of striking Clear-
w1ter in any given year is one in one hundred.
As shown on the map, land and construc-
tion in Zone "A" would bear the full force of
....: ~
such storm, given its susceptibility to flooding
from rising seas as well as from co.mbined wind
and wave action. These are the most damage.
prone areas in, a hllr~icane.force storm.
Zone "B", given its coastal, filled land or
l :.,e location and elevation, wou Id ex per-
ie, .vv ....H '. flooding in excess of fou r feet
wit.h ;i itOt rge of twelve feet or more
above mean vel.
Zone "C'1i its coastal loca~ion or low-
lying elevatio respect to the surround-
ing topograph ]s~nts areas suscepti ble
to flooding frol n surge or heavy rainfall
and runOff. A st ~urg~ of twelve feet or
more would inun re the c'opstat areas of this
zone with at least.me foot of salt ~ater. Por.
tions o~ Zone "e" frequ~ntly ser~e (lS catch-
menfareas during heavy rain~torms and there-
forempy flood more', frequently thanoJann in
Zones 1'(\" and "B". :,' :
The combination of rising seas alld hea~y
rainfaJJ,'which would result in f100qit1g and
associ~ted hazardous conditions, dictate that
'. ,
carefu I attention to location, design anQ cop-
struction standards precede develo~r:nent in'
these locations. ~<
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LAND USE COMPARIS'QNS*
.,'
EXISTING
I PLANNED
.of
42%
RESIDENTIA
51%
RESIDENTIAL
'f CAMPBEll C.AU<;,~WA't
~ ,OURiNE:
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NSITY
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LOW DENSITY ,/
37% ,/ MEDIUM
DENSITY
,/ 9%
-HIGHDENSITY-
23% 5% .
STREETS COMMERCIAL
" 21 ,P~~~IC .~ 8% ,
2%
)$:":,, INDUSTRIAL
VACANT 2%/ ~.' "!!it., ..~,. ,
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O'MMERCIAL
14%
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h 0.6% INDUSTRIAL
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POPUlATION'rnOJECTIONS.'
27.0%
137,171
;'
127,874
;'
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,
114,053 ,
-'
28.5%
29.5%
30.1%
...
,
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13.2%
13.0%
,
,
15.9%
23.1%
23.0%
23.8%
30.2%
35.5%
36.7%
1980
1990
1995
ClTIZEN PARTICIPATION
. .
Clearwater's residents provided input to the
cClnprehensive land use plan by answering a
questionnaire on land use needs. Most of the
comments received were opposed to the
continued development of high-rise apartments:
"Five stories is high-rise enough,': "too many
people here already," and. . . "Keep eye-
polluting high-rises from our waterfront and
scenery." In keeping with the results of the
survey there is a negative trend to develop
high.rise apartments in several of the areas
designated in the survey.
When asked where they would like to see
future high.rise residential developments loca-
ted, 90% of the respondents did not want to
see high-ri~es built on the beach, 80% said not
on the bayfront, 74% said not in new neighbor-
hoods, 56% said not in older neighborhoods.
In fact, the only positive response to this
question was a bare 51% majority who said
future high.rise developments should be located
downtown.
People appear to be interested in expanding _,
rr,dustrial use in CI~arwater but at thEi, same~": >>
. time the co'mments; r~cejved expressed a
<:pncerJl,that these items shOlJld payfo'r t~em.
'st~lves. Regardin.9 financial incen'tives for indus- ,.
trial location, comments like: "let the county
do it," "if it pays for itself it should be done by
private enterprise," etc., were received. People
would like to see clean industry brought to
Clearwater, but not at their expense. Comments
like: "this could provide more jobs, but make it
pay its own way," "it depends on how:yqu
would encourage these businesses," and
"develop the industrial park" were repies~nta-
tive of the comments received. Whether itis a
cultural or industrial facility, people were ~ery
watchful of the public dollar. They don) want
something if it is going to be an extra burden on
them by not paying for itself. '
When asked if they thought business'~ssuch
as electronics or computer firms, or reg,ional
corporate facilities should be encouraged to
establish in the city, 61% of the resp~~dents,
answered yes, while only 42% would appro've!
of the expenditure of public funds t.~a~tractl
such industry. ~: :
When asked if they thought CJearwater was
doing enough to protect its natural 'en\iirbnment
"fJom abuse, 67% of the resp,onClents answered
no. Sixty-nine percent of th~ respondents agreed
that further strip commercia'tdevelopment, such
as has already occurred along Gulf-to-Bay
Boulevard, should be prevented.
'~
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CLEARWATER TOMORROW
~ LAND USE PLAN ~
YEAR 2000
ENVIRONMENTAL CONSTRAINTS
ON PERMITTED lAND USE
@ Tidal Swamps and Flats
~ Beach Dunes
~ Freshwater Marshes
@ Hardwood Swarnps
~ Cypress Swamps
.~ Interior Flood Plains
~ and Bank Vegetation
@ Unique Upland Forests
~ Critical Wildlife Habitat
........ SCENIC CORRIDORS
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(0 - 8.0 units per acre)
r001MEDIUM DENSITY
~(8.1 .16.0 units per acre)
HIGH DENSITY
(16.1 - 28.0 units per acre)
RESIDENTIAL/OF FICE
DOWNTOWN DEVELOPMENT
DISTRICT AND OVERLAY
INDUSTRIAL
D PUBlIC/SEM I-PUBLIC
RECREATION/OPEN SPACE
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ADOPTED: November 1,1979 pursuant to
Ordinance No. 2019, consistent
with lGCPA of 1975 as amended.
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- - - - - - - - - - - - - - - - - - - - - --
Amended through February 28, 1983
Refer to official City records for all
amendments subsequent to this date.
SCALE: 1:24,000
1 inch equals 2000 feet
1/4
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1 kilometer
~
LAND -USE PLAN
~
Clearwater's Comprehensive Plan is made up of
twelve separate elements, of which the Land
Use Plan is one. A state law passed in 1975
(Local Government Comprehensive Planning Act)
requires local governments to adopt, update, and
enforce comprehensive plans. This law requires that all
development regulations be consistent with the City's
Comprehensive Plan, and it is this consistency re-
quirement which renders the Land Use Plan a key
working component of the land development process.
In 1979, Clearwater adopted a binding Land Use
Plan. Since the plan was first adopted, amendments
have been granted amounting to less than 3% of the
City's service area, slightly increasing the amount of
land devoted to commercial and high density land
uses. In this reprint of the plan map, the time horizon
of the plan has been extended to the year 2000 to
coincide with updated population figures.
The Land Use Plan Map is intended to accu-
rately represent the shape and location of land forms
and depicted waterbodies, and to provide accurate
delineation of land use boundaries, to the degree
permitted by the scale of the map. Greater definition
of actual landforms and the application of categories
to those landforms can be obtained from field inspec-
tions and surveys.
Residential use is the largest category of land
use in Clearwater, as shown on the chart
below; low density residential is the most
commonly-found land use in Clearwater. Conven-
tionally, low density residential development has been
considered to be a detached single family home with a
private yard. Trends toward smaller lots with homes
closer together are reaching their logical conclusion in
the zero lot line land subdivision, "cluster home" or
other alternative low density design forms.
ow density residential use permits a maximum
of eight dwelling units per net acre. Housing
may be either attached or detached, depending
upon the provisions of the specific zoning category
applied. Low density housing is found in nearly all
portions of Clearwater and it continues to be a
preferred development type by the private market.
Bet\veen 1981 and 1983, changes to the Land
Use Plan have resulted in a decrease of 171 acres of
low density residential land and an increase of 109
acres in the medium density residential category and
17 acres in the high density range.
(M]edium density residential development is
M characterized by two or three story garden
. - apartments and is found throughout the City in
both older and newly developed sections. The densities
under the medium category run from 8.1 to 16 units
per net acre, and the range of housing types permitted
under this category is rather broad, including tradi-
tional duplex units, apartments and townhouses.
igh density residential (16.1 - 28 units per net
acre) is the category that breaks from suburban
development patterns. Densities in this range
can only be achieved by building up, with heights
ranging from three to eight stories. The appropri-
ateness of the site for a high rise housing structure is
determined by the surrounding lal1G uses, physical
features of the land, transportation access and sen-
sitivity of design. High-density development requires
particular attention to site orientation, architectural
detail, landscaping and other site amenities. i\creage
allotted to high density housing has remained a
constant percentage at 3% of the total service
area.
esidential/office areas are designed as a fusion
of compatible, but previously separate, uses.
This designation permits professional office,
medium density apartment complexes, or both uses
combined on a single site. In part, this is a recognition
of energy conservation objectives and also provides for
full utilization of scarce land. Residential/office use
presents an attractive land planning transition between
residential areas and more intensive commercial
districts. Only 2% of Clearwater's land area is
designa ted for residential/office use. Residential/office
projects are best sited on minor arterial/major col-
lector streets.
owntown Clearwater is recognized by the
Downtown Development District and Overlay
which recognizes the historic commercial
center of the comrnunity and through zoning and other
related redevelopment means, seek~ to enhance its
traditional downtown role. Activities permitted in the
downtown district include professional offices, retailing
and high density residential; with mixed use structures
encouraged as an efficient way to use urban land.
Long term plans for downtown Clearwater include
considerable public investments in the road, parking
and open space systems in support of rnajor private
developments. The establishment of a Community
Redevelopment i'\gency to direct the flow of tax
increment financing revenues will result in the public
and private sectors working as partners in the
redevelopment of downtown. Clearwater recognizes
that a revitalized downtown is a key priority of the
planning process. Proxirnity to the bay front and
beaches, as well as its strong employment base,
provide realistic assets on which to build revitalization
strategies.
ommercial/tourist facilities is the category used
to encompass a broad range of commercial
activities and occupies 11 % of the planned land
area. Clearwater has experienced a commercial
explosion during the last ten years, focusing on the
L.S. Highway 19 corridor, and particularly the
Countryside area. Recent development has been built
in accordance with current codes, which require
buildings to be landscaped and to rrovide adequate
internal circulation systems in new projects. This
contrasts with -the older strip stores, which often have.
no landscaping and awkward parking layouts. However,
whether old style or modern, all occupied commercial
buildings generate traffic on nearby streets. This
POPULATION TRENDS
CITY AND SERVICE AREA, BY DISTRICT
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'80 '90 2000
SOURCE. Bureau of the Census, 1970-80. City of Clearwater Planning Department
~
YEAR
traffic impact is a key reason why most commercial
uses generally are best sited on arterial or collector
streets and must be planned in careful relationship to
their adjoining uses.
A key dimension used to define commercial uses
is the market area served. Small shops which provide a
limited range of products and personal services are
classified as neighborhood or convenience commercial
centers. At the other end of the spectrum are large
malls which offer broad selections of merchandise, and
draw patrons from many miles away. Distinctions
between these levels of commercial activity and the
uses appropriate to each are a function of zoning.
ndustrial land uses are denoted by the color
grey on the land use map. Firms which make or
assemble electronic parts and instruments and
the computer oriented and service industries have
found an attractive home in the Clearwater area. Such
facilities need a clean attractive atmosphere, quite
compatible with many suburban and urban environs.
Clearwater has 4% of its land area planned for
industry, approximately double that originally desig-
nated, and industrial uses are dispersed at four primary
locations in the community. In order to establish a
diversified economic base, industrial development goals
must be actively pursued.
0,', ,ublic and semi-public uses include land and
.',' P, " buildings which are dedicated to various insti-
tutional uses. The nature and external impacts
of these properties varies greatly. Churches, schools,
hospitals and government office buildings are included
in this category, as well as sewage treatment plants,
electric power transmission lines, fire stations, and the
Clearwater Executive Airpark. In general, public and
semi-public uses are sited to best serve a surrounding
population, however, historic patterns, topographic
features and the road network also influence the
location of some facilities.
arks, golf courses, cemeteries and saltwater
wetlands, classified as recreation/open space
lands, make up 11 % of the service area. Public
parks vary from intensely used recreation facilities to
open space areas for passive enjoyment. City-owned
parklands represent a significant public investment and
are one of Clearwater's most notable assets. Golf
courses provide both recreational resource open vistas
and breaks in the urban landscape. Saltwater wetlands
and shorelines are subject to the AL (Aquatic Lands)
zoning category, which is or iented toward protecting
the natural function of these areas. Open space and
recreational uses provide visual definition which is
important to the overall appearance and quality of life
in the community
..... Scenic road corridors are identified by a special
'symbol on the Land Use Plan Map. The scenic views
afforded by the Courtney Campbell and Memorial
Causeways have in large part shaped newcomer's
perceptions about the entire City. The designation of a
road as a scenic corridor is intended to both recognize
2000
~
and protect visual resources and to restrict commer-
cialization of the adjacent properties. Clearwater has
numerous scenic drives which afford vistas across the
water or through gracious older neighborhoods under a
canopy of trees. Retention and enhancement of
Clearwater's scenic resources is important to the
City's economic base.
Areas of environmental sensitivity are identified
on the Land Use Plan by "e" symbols. A subscript of
the symbol indicates the type of environmental
constraint; for example, tidal swamps are designated
€D. These areas should be left undeveloped, to insure
preservation of desirable natural features. When
preservation is impossible, site planning for these areas
should maintain the integrity of the environment, while
permitting development on other parts of the land
parcel. A sensitivity to environmental forms must
shape the entire site design, and not be included as a
token accommodation.
Clearwater's urban area is in different stages
of development. Older neighborhoods are in
need of renewal and "grOWIng pains" are still
evident in the developing portion of the City. As
Clearwater matures as a city, new challenges will
occur.
Clearwater is creating a valuable stock of
capi tal assets which will enhance the quality of life of
future generations. The Baumgartner Center for the
Performing r\rts will provide a wealth of cultural
opportunities for the entire County. The City's parks
and libraries are expanding. A bands hell is to be built
downtown, in Coachman Park. Growth and development
of cultural institutions are vital characteristics of a
mature city, and are the result of thousands of hours
of civic endeavor.
It is a primary objective of the plan that
Clearwater remain a safe and attractive community.
The City's main industry is tourism and retirement
living with much of the area's wealth being earned
elsewhere and spent here. Should the environment
become degraded, that income will diminish. In order
to maintain a stable population, in-migration must
remain strong and maintenance of a quality environ-
ment is a critical influence on migration decisions,
both by individuals and businesses.
Clearwater's Land Use Plan recognizes the need
to provide a good residential and resort environment,
but at the same time, it reflects a conscious desire to
diversify the economic base. The plan calls for an
increase in industrial land use. Industrial expansion
outside the confines of the Clearwater Industrial Park
is already being accomplished, and the expansion of
major office uses will provide additional local
employment. Successful economic growth strategies
w ill provide a viable mature city well beyond the time
horizon of the Land Use Plan. Clearwater's reputation
as a prosperous and attractive community is deserved;
it is both a challenge and a goal to maintain and
enhance those characteristics through the remainder of i.
the century. Adherence to the Land Use Plan and a
carefully considered process for its evolution will help
to achieve that goal and meet the challenge.
A GUIDE TO PERMITTED LAND USE
LAND USE PLAN ZONING CATEGORY
RESIDENTIAL RS RS RS RS RS RM
LOW DENSITY 200 100 75 60 50 8 RPO
0-8 UNITS PER ACRE
MEDIUM DENSITY RMH RM RM RPD
8.1-16 UNITS PER ACRE 12 16
HIGH DENSITY RM RM RM
18.1-28 UNITS PER ACRE 20 24 28 RPD
RESIDENTIAL/OFFICE AM AM RPD OPO
PS 12 16
DOWNTOWN DEVELOPMENT 00 00
(BAY 00 (EAST
DISTRICT AND OVERLAY FRONT) (CORE) CORR.)
COMMERCIAL! j CSC I I I c~T cs ] I
TOURIST FACILITY CTF CG CPO
INDUSTRIAL
PUBLIC/SEMI-PUBLIC
RECREATION/OPEN SPACE
146.4
Population (In thousands) 131.5
110.5
73.8
;~ 5
1970 1980 1990 2000
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ZONING KEY
RS . Single Family Residential
RM, Multi.Family Residential
RMH . Mobile Home Residential
RPD, Residential Planned Development
PS . Professional Services
OPD ' Office Planned Development
ML
IPO
I I P l'sP I
P
AL
REC.
PO
DD, Downtown Development
CSC . Commercial Shopping Center
CTF ,Commercial Tourist Facilities
CG ' General Business
CP , Parkway Business
CS . Commercial Services
CPD ' Commercial Planned Development
ML . Light Manufacturing
IPD ' Industrial Planned Development
p. Public
ISP , Institutional Semi.Public
AL, Aquatic Lands
Rec, PD . Recreational Planned Development
LAND USE DISTRIBUTION:
YEAR 2000
RESIDENTIAL/OFFICE
COMMERCIAL/TOURIST FACILITY
DOWNTOWN DEVELOPMENT DISTRICT
RESIDENTIAL
Source: City of Clearwater PlannIng Department
CITY OF CLEARWATER; 1983
CITY COMMISSION
KATHLEEN F, KELLY. MAYOR
JAMES L. BERFIELD RITA J. GARVEY
JAMES M. CALDERBANK WILLIAM G. JUSTICE
ANTHONY L. SHOEMAKER, CITY MANAGER
PREPARED BY THE CLEARWATER PLA1\NING DEPARTMENT
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CITY of
CLEAR\NATER
LAND USE PLAN
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~
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CITY COMMISSION, 1885
KATHLEEN F. KELLY, MAYOR
JAMES L. BERFIELD
LEE REGULSKI
RITA J. GARVEY
DON WINNER
lJ
ANTHONY L. SHOEMAKER, CITY MANAGER
()
GUIDE TO PERMITTED LAND USE
()
o
LAND USE PLAN
ZONING CATEGORY
LOW DENSITY
RESIDENTIAL
RS RS RS RS RM RPD
2 4 6 8 8
RM RM
12 16 RMH RPD
RM RM RM
20 24 28 RPD Gulf
RM RM OL OG OPD RPD
12 16 of
CR CR CG CH CN CC CB CPD Mexico
24 28
UC/ UC/ UC/
B C E
t--EEJ
~
~
PD R
~
MEDIUM DENSITY
RESIDENTIAL
HIGH DENSITY
RESIDENTIAL
()
RESIDENTIAL/OFFICE
COMMERCIAL/
TOURIST FACILITIES
DOWNTOWN DEVELOPMENT
DISTRICT AND OVERLAY
<4
I I INDUSTRIAL
1 .. U PUBlICISEMIPUBlIC
I.. . :'1 RECREATIONIOPEN SPACE
ZONING KEY
RS - SINGLE FAMILY RESIDENTIAL
RM - MULTIPLE FAMILY RESIDENTIAL
RPD - RESIDENTIAL PLANNED DEVELOPMENT
RMH - MOBILE HOME PARK
CR - RESORT COMMERCIAL
CG - GENERAL COMMERCIAL
CH - HIGHWAY COMMERCIAL
CN - NEIGHBORHOOD COMMERCIAL
CC - COMMERCIAL CENTER
CB - BEACH COMMERCIAL
CPO - COMMERCIAL PLANNED DEVELOPMENT
OL - LIMITED OFFICE
OG - GENERAL OFFICE
--- - --------,
-- -- ------ --............ "
..... ...
... .....
... ...
..... .....
... .....
..... ...
... .....
... .....
... .....
.......... .....
... ...
OPD - OFFICE PLANNED DEVELOPMENT
IL - LIMITED INDUSTRIAL
IPD - INDUSTRIAL PLANNED DEVELOPMENT
P/SP - PUBLIC SEMI-PUBLIC
REC. PO, - RECREATIONAL PLANNED DEVELOPMENT
OS/R - OPEN SPACE/RECREATION
UC/B - URBAN CENTER/BAYFRONT
UC/C - URBAN CENTER/CORE
UC/E - URBAN CENTER/EASTERN CORRIDOR
ALlC - AQUATIC LANDS/COASTAL
ALII - AQUATIC LANDS/INTERIOR
FO - FLOODPLAIN OVERLAY
HO - HISTORIC OVERLAY
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ENVIRONMENTAL CONSTRAINTS
TRANSPORTATION LEGEND
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Tidal Swamps and Flats
Existing Roads
-----
Proposed Road Corridors
Beach Dunes
~
. . .
Scenic Corridors
Freshwater Marshes
Hardwood Swamps
Cypress Swamps
ADOPTED:
November 1, 1979 pursuant to
Ordinance No. 2019, consistent with
LGCPA of 1975 as amended.
~
Interior Flood Plains
and Bank Vegetaion
Unique Upland Forests
Amended through September 30, 1985
Critical Wildlife Habitat
Refer to official City records for all
amendments subsequent to this date.
Prepared by the Clearwater Planning and Urban Development Department, November, 1985.
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SCALE: 1:24,000
1 inch equals 2000 feet
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