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1997 CLEARWATER BEACH NEEDS ANALYSIS I I I I I I I I I I I I I I I I I I I CLEARWATER BEACH NEEDS ANALYSIS Documentation of Existing Conditions for the Clearwater Beach Area Prepared for the City of Clearwater Prepared By: O'Neil Planning & Design Services, Inc. & Phil Graham & Company, P .A. G --..---- ------ ------ ...----... O'Neil Planning & Design Services, Inc. 5445 Mariner Street · Suite 310 Tampa, FL 33609 (813) 288-0903 · FAX (813) 282-1056 LAND USE PLANNING' LANDSCAPE ARCHITECTURE' EXPERT WITNESS . CONSULTING SERVICES January] 4, 1997 AICP 10230 LC 0000269 I I II I I I I I I I I I I I I I I I I CLEARWATER BEACH NEEDS ANALYSIS Documentation of Existing Conditions for the Clearwater Beach Area Prepared for the City of Clearwater Prepared By: O'Neil Planning & Design Services, Inc. & Phil Graham & Company, P.A. January 14, 1997 I I I II I II I I I II I I I I I I I I I CLEARWATER BEACH NEEDS ANALYSIS Documentation of Existing Conditions for the Clearwater Beach Area TABLE OF CONTENTS Executive Summary Introduction Community Redevelopment Areas Definitions of Slum and Blight Needs Analysis Indicators of Slum Conditions Indicators of Blighted Conditions 1. Predominance of defective or inadequate street layout 2. Faulty lot layout in relation to size, adequacy, accessibility, . or usefulness 3. Unsanitary or unsafe conditions 4. Deterioration of site or other improvements Drainage Roadways S treetscape Potable Water Sanitary Sewer Sidewalks Street Lighting 5. Tax or special assessment delinquency exceeding the fair value of the land 6. Diversity of ownership of defective or unusual conditions of title which prevent the free alienability of land within the deteriorated or hazardous area 7. An area in which there exists faulty or inadequate street layout; inadequate parking facilities; or roadways, bridges, or public transportation facilities incapable of handling the volume of traffic flow into or through the area, either at present or following proposed construction. Page 3 3 5 5 6 6 9 14 17 17 18 19 19 19 20 21 21 22 22 I I I I I I I I I I I I I I I I I I I CLEARWATER BEACH NEEDS ANALYSIS Documentation of Existing Conditions for the Clearwater Beach Area LIST OF EXHIBITS Page Exhibit I Needs Analysis Area Boundary 2 Exhibit 2 Location of Pedestrian Crossings 8 Exhibit 3 Streets with On-Street Parking 10 Exhibit 4 Platted Lots on Clearwater Beach II Exhibit 5 Nonconforming Setbacks 13 Exhibit 6 Sidewalk Conditions 15 Exhibit 7 Location of Parking Lots on Clearwater Beach 23 Exhibit 8 Transit Routes 25 I I I I I I I I I I I I I I I I I I I CLEARWATER BEACH NEEDS ANALYSIS Executive Summary The preceding discussions have provided an overview of the physical indicators for blight conditions within the Clearwater Beach Study Area. It has been demonstrated that the presence of several conditions, especially of the area's infrastructurc, contribute to and are evidence of blight, pursuant to Chapter 163, Part III, F.S., criteria. Effcctively, it has been demonstrated that the Clearwater Beach Needs Analysis Study Area has matured over time and that needcd improvements to infrastructure systems havc not occurred consistently with development. Specifically, based on the review of the indicators as established by Chapter 163, Part III, F.S., the Clearwatcr Beach area as designated on I ~xhibit I can bc considcred as a Redevelopment Area based on the requircmcnts of thc f~ll~riteria: Predominance of defective or i.!S'~treet layout (Criteria #1) Faulty lot layout in relation to size, adequacy, accessibility, or usefulness (Criteria #2) Unsanitary or unsafe conditions (Criteria #3) Lack of sidewalks on streets as shown on Exhibit 6; Lack of pedestrian crossings at intersections; Lack of bicycle lanes; and, Cars backing out into traffic. Deterioration of site or other improvements (Criteria #4) Sidewalks Street Lighting Strectscape An area in which there exists faulty or inadequate street layout; inadequate parking facilities; or roadways, bridges, or public transportation facilities incapable of handling the volumc of traffic flow into or through the area, either at present or following proposed construction. (Criteria #7) I nadequate street layout Inadequate future parking Inadequate future roads Such evidence enables the City Council of Clearwater to officially designate the Clearwater Beach as a Community Rcdcvelopment Area. I I I I I I I I I I I I I I I I I I I CLEARWATER BEACH NEEDS ANALYSIS Documentation of Existing Conditions for the Clearwater Beach Area Introduction This report has been prepared to document the existing conditions of the Clearwater Beach area and to determine whether there are such conditions to warrant a Community Redevelopment Area as defined by and pursuant to Chapter 163, Part III, Florida Statutes (F.S.). The area within the Needs Analysis study area was defined by the City of Clearwater Department of Central Permitting. Thc proposed study area boundaries for the Needs Analysis is defined in Exhibit 1 and generally includes all streets and land within the northern landward side of Clearwater Pass, east of the Gulf of Mexico, south of Somerset Street and landward of the west side of Clearwater Harbor. This area includes all streets and land within the boundaries as described above with the exception of Devon Drive and Bayside Dcive. These two streets were eliminated due to the existing stable residential development. This Needs Analysis was developed to determine, using the definitions as provided by the State in Chapter 163.330, F.S., whether there exists any slum or blighted areas which constitutes an economic burden which dccreases thc tax base and rcduce tax revenues, impairs sound growth, aggravates traffic problems or substantially hampers the elimination of traffic hazards and the improvement of traffic facilities, among others. I I I I I I I I I I I I I I I I I I I Community Redevelopment Areas Chapter 163, Part 1Il of the Florida Statutes addresses the findings and declarations of necessity for Community Redevelopment Areas. Any community may formulate a workable program for utilizing appropriate private and public rcsources to eliminate and prevent the development or spread of slums and urban blight; to cncourage community rehabilitation; to provide for the redevelopmcnt of slum and blighted areas through enforcement of zoning and land use controls; and, to promote the rehabilitation of slum and blighted areas by replanning, removing congestion, providing yards, playgrounds, and other public improvements, encouraging voluntary rchabilitation, and compclling thc repair and rehabilitation of deteriorated or deteriorating structures. In order to establish a Community Redevelopment Area the governing body must adopt a resolution finding that one or more slum or blighted arcas, or one or more areas in whieh there is a shortage of housing affordable to residents of low or moderate income, including the elderly, exist in such county or municipality; and, the rehabilitation, conservation, or redevelopment, or a combination thereof of such area or areas is neccssary in the interest of the public health, safety, morals, or welfare of the residents of such county or municipality. Definitions of 'Blight' and 'Slum' Areas The purpose of this report is to determine, using the dcfinitions as provided by the State in Chapter 163.330, F.S., whether there exists any slum or blighted areas which constitutes an economic burden, impairs or arrests sound growth, aggravates traffic problems or substantially hampers the elimination of traffic hazards and the improvement of traffic facilities, among others. The State addrcsses and defines blighted conditions in order to rehabilitate an area so that any blighted arca may be eliminated, remedied or prevented. The State defines both 'slum area' and 'blighted area' in Chapter 163.340, F.S. A 'slum area' is defined as follows: 3 I I I I I I I I I I I I I I I I I I I "An area in which there is a predominance of buildings or improvements, whether residential or nonresidential, which by reason of dilapidation, deterioration, age, or obsolescence; inadequate provisions for ventilation, light, air, sanitation, or open spaces; high density of population and overcrowding; the existence of conditions which endanger life or property by fire or other causes; or any combination of such factors is conducive to ill health, transmission of disease, infant mortality, juvenile delinquency, or crime and is detrimental to the public health, safety, morals or welfare." 'Blighted area' is defined as follows: "(a) An area in which there arc a substantial number of slum, deteriorated, or deteriorating structures and conditions which endanger life or property by fire or other causes or one or more of the following factors which substantially impairs or arrests the sound growth of a county or municipality and is a menace to the public health, safety, morals, or welfare in its present condition and use: 1. Predominance of defective or inadequate street layout; 2. Faulty lot layout in relation to size, adequacy, accessibility, or usefulness; 3. Unsanitary or unsafe conditions; 4. Deterioration of site or other improvements; 5. Tax or special assessment delinquency exceeding the fair value of the land; and 6. Diversity of ownership of defective or unusual conditions of title which prevent the free alienability of land within the deteriorated or hazardous area; or (b) An area in which there exists faulty or inadequate street layout; inadequate parking facilities; or roadways, bridges, or public transpor- tation facilities incapable of handling the volume of traffic flow into or through the area, either at present or following proposed construction." 4 I I I I I I I I I I I I I I I I I I I Needs Analysis Based on the definitions of both 'slum area' and 'blightcd area' from Chapter 163, F.S., a list of indicators for slum and blight wcre idcntificd. Each of thc indicators were inventoried and researched using information from the Public Works Department, Engineering Department and Central Permitting Department. In addition, visual observations and windshield surveys were performed for other indicators where maps or reports were not availablc from the City. The information described for each indicator is relevant to thc study area. Indicators of Slum Conditions An inventory and survey of the structurcs on Clcarwatcr Beach "vas prepared by the City of Clearwater Building Division. Thc survcy was completed in 1994. The survey identified the condition of each structure within Clearwater Beach. The survey was preparcd in order for the city of Clearwater to evaluate the type and condition of structures that existed in Clearwater Beach and to identify any structures that provided unsafe conditions. The survey indicated elcvcn (11) structures to bc unsafc or dilapidated. Since the date of the survey, five (5) of these structures havc bcen dcmolished by the propcrty owncrs and another one (1) owner has recently submittcd an application for thc dcmolition of a structurc that was identified as unsafe. Four of thc remaining structures havc bcen or arc in thc process of being rchabilitated by the owncrs. Only one structure remains whcre no action has occurrcd to date by the owner. Thereforc, based on the City of Clearwater Building Division Inventory and Survcy of Structurcs on Clearwatcr Beach there exists one unsafe structure within the Clearwater Beach Nceds Analysis Arca. It is concluded that one unsafc structure docs not constitute a 'slum area' nor does it constitute an area of deteriorated or deteriorating structures as identified as one of the indicators for a 'blighted area' as defincd by Chaptcr 163.340, F.S. 5 I I I I I I I I I I I I I I I I I I I Indicators of Blighted Conditions 1. Predominance of Defective or Inadequate Street Layout The traffic patterns at Clearwater Beach are such that S. R. 60 is the main 4-lane arterial entering Clearwater Beach from downtown Clearwater. As S.R. 60 enters Clearwater Beach it divides into a one way pair (Marianne Street westbound and Causeway Boulevard eastbound). Upon entering Clearwater Beach from S.R. 60, Mandalay A venue provides a route north through the more residential area of Clearwater Beach and Coronado Drive provides a connecting street south to Gulfview Boulevard which provides the major north/south access south to the Clearwater Pass Bridge. Gulfview Boulevard is also a 2-lane roadway. The other major north/south roadway south of S.R. 60 through Clearwater Beach is Coronado Drive (2-lane) which is through a commercially designated area of hotels and motels. The othcr roads are generally connectors and local roads providing access to the residential areas and to other motels/hotcls and retail in the area. Congestion occurs where Gulfvicw Boulevard and Coronado Drivc intcrsect and combine the north and eastbound traffic to Causeway Boulevard and North Mandalay A venue. This is the only north/south road between First Street and S.R. 60 and generally provides for bottle- necking and congestion. Though the roads are in adequate condition and the lane widths are generally appropriate, the layout of thc roads were designed to accommodate single family residenccs as originally platted. Residential development generatcs lower volumes of local traffic. Instead, the type of development which has occurrcd on Clearwater Beach includes: hotels and motels; commercial; and highcr density residential. Thc area between Kendall Street/Juanita Way and Somerset Street is primarily a mixture of Residential, Townhouse/Garden Apartments, and Commercial (Hotels and Motcls) with some High Rise Apartments, and Retail interspersed. From Kcndall Street south to Marianne Strect the uses are prcdominantly Commercial with the Yacht Basin north of Bay Yacht Drive identified as Townhousc/Garden Apartments. However, aside from the Yacht Basin and some Open Space, the area between Kendall and Marianne Street is predominantly Commercial. 6 I i I I I I I I I I I I I I I I I I I I Thc arca bctwecn Gulfview Boulevard, llamden Drive and Brightwatcr Drive is gcncrally Commcrcial (hotel/motcl) with a few Rcsidcntiallots. The Commcrcial (Hotel/motel) land uses continue south along Gulfview Boulevard to thc intcrsection with Gulf Boulevard (Clearwater Pass Bridgc). Commercial Retail is prcdominant bctwcen Gulfview Boulevard and Bayway Boulevard while Townhousc/Gardcn Apartments and High Rise Condominium arc predominant at thc south cnd of Clcarwater Bcach along South Gulfview Boulevard and Bayway Boulcvard. Overall, the study arca is gcncrally described as having a mix of rcsidcntial and commcrcial uses to thc north of Marianne Street, a predominancc of commcrcial south of S.R. 60, and high rise condominiums and townhouscs on the southern tip of the Needs Analysis Study Area. Many of the commercial properties have parking in thc front yards which backs out directly into traffic creating both hazardous conditions and traffic congestion. Many of the parking areas are not large enough for cars and; therefore, portions of the vehicles encroach into the right-of-way creating hazards for other vehicles and pedestrians. The commercial uses, especially the hotels/motels generate a large pedcstrian population at the Beach. The Pier 60 arca, specifically at the intersections of Coronado Drive, Mandalay A venue, and Pier 60 Drive, are heavily used by pedestrians crossing to the beach. In addition, all intersections along Mandalay Avenuc and along South Gulfvicw Boulevard have heavy pedestrian traffic and are identified as areas of vehicular/pedestrian conflicts. Though crosswalks are provided at many of thesc interscctions, they arc not provided at all intersections and those crosswalks that are providcd may not be adequate for the amount of pedestrian traffic. Pedestrian crossings are generally provided along Mandalay A venue and Gulfview Boulevard. The location of thcse crossings are shown on r':xhibit 2. These crossings are generally for pedestrians walking to the beach and to retail areas. I lowcver, it is important to note that the pedestrian crossings do not always corrcspond to locations of public parking arcas or to all intersections. Obscrvations indicate that pedestrians cross the streets in the middle of blocks and whcre no crosswalks exist. In addition, there are no crosswalks on Coronado Drive which is a commercial retail area of Clearwater Beach. 7 I I I I I I I I I I I I I I I I I I I There are no bicycle lanes provided on the roads at Clearwater Beach. Bicycles are used either on the sidewalks creating a pedestrian/bicycle conflict or on the street in a vehicular lane causing conflicts with vehiclcs. Exhibit 3 indicates those streets that provide on-street parking. Although the parking is limited, these spaces are very valuablc to thc business owners along the beach. However, the spaces may also be necded in thc futurc to provide for road widening, bicycle lanes or additional sidewalks. Should this be the case, alternativc parking must be analyzed and the parking situation for the commcrcial businesscs must be resolved or established elsewhere within a reasonable distance. It is important to note that many of the indicators such as parking, sidewalks, bicycle lanes, road widths have a direct correlation to each other and; thereforc, must be addrcssed accordingly. It is concluded that thc layout of Clearwatcr Beach was to accommodate and service a lower density residential community. However, due to the popularity of the beaches, the existing uses and existing zoning designations the community is more densely developed with commercial, hotels/motels and higher residential densities. The lay<?ut of the roads do not accommodate the density of the uses due to the higher gencration rates of commercial uses; a lack of sidewalks along the roads; and a lack of bicyclc lanes. Should roads require widening for such amenities, then both on-street and off-strcet parking losses become an issue that must be resolved. 2. Faulty Lot Layout in Relation to Size, Adequacy, Accessibility, or Usefulness The design of Clearwater Beach is a function of the shape of the barrier island and the manmade land that was dredged to enhance and enlarge the Clearwater Beach area and provide more opportunities for development. Clearwater Beach was originally platted for residential development. This can be seen from the small residential sized lots along the roadways as shown in Exhibit 4. Ilowever, during the 1950's and 1960's Florida became popular and established as a resort area. Since that time, Clearwater Beach has developed as a product of the tourism industry by providing beach front lodging and businesses, including hotels/motels and other rentals, along the main corridors of Clearwater Beach. Clearwater Beach now includes a large commercial segment consisting of motels/hotels, retail and restaurants. 9 I I I I I I I I I I I I I I I I I I I Since Clearwater Beach was originally planned as a residential community the lots were initially laid out as small residential lots. Many of the lots currently being used as commercial were originally platted for residential dcvelopmcnt. Thcrcforc, the size and layout of the lots are gearcd for singlc family residential developmcnt and the corresponding land development regulations, rather than for commcrcial development. Howcver, the development trends and zoning designations (Bcach Commercial District, CB; Resort Commercial 24 District, CR 24; Resort Commercial 28 District, CR 28; Multi-Family Residential 20 District, RM 20; and Multi-Family Residential 24 District, RM 24) all indicate commcrcial development is best suited for the area. It is difficult for development to properly occur with the small lot sizes and the requircments of the zoning ordinanccs, For cxample, commercial parking demands arc extremely difficult to meet givcn the small lot size. In addition, the zoning designations allow for high density development which can not bc achieved due to the corresponding height restrictions. The lots arc generally narrow allowing little opportunity for new devclopment on narrow lots due to the sidc sctback rcquircmcnts. The usefulness and adequacy of the cxisting small lots with regard to the zoning requirements is questionablc. Thc only parking availablc to many lots on Clcarwat~r Beach is in the front yard and backs out into traffic. In addition, thcre arc no sidewalks along these roads. Should sidewalks bc added along thc roads thcrc will bc no spacc for parking in front of many businesses. Therefore, the parking would become inadequate and replacement parking would also need to be addressed for each lot. In addition, many of the lots have non-conforming setbacks. Exhibit 5 indicates thosc lots which have non-conforming setbacks. Although there has been some consolidation of lots in the past, thcre has been no consolidation oflots since 1990, with the exception of the Pelican Walk dcvelopment on Mandalay Avenue. No subdivisions have occurrcd within the study area. Commcrcial development has been continuing on Clearwatcr Beach. The commercial dcvclopment has been occurring on the residentially sized parcels. This has becomc difficult when attempting to meeting specific sctbacks, height restrictions, lot coverage and parking requircmcnts. There are very few undcveloped lots within the Clcarwater Bcach arca. Six vacant lots are located north of Marianne Strcct, four vacant lots are locatcd along Brightwater Boulevard, three on Gulfvicw Boulevard, and one on Bayway Boulevard. This totals] 4 vacant lots in thc Clearwater Beach area. Thc vacant lots wcre all originally plattcd for single family residential 12 I I I I I I I I I I I I I I I I I I I and are sized accordingly, making commercial and higher density residential development difficult with the setback and height restrictions. It is concluded that the lot sizes are too small for the amount and type of development that has occurred on the lots, creating hazardous conditions for pedestrians and vehicles by having parking facilities in front yards that back out into traffic and over sidewalks. The lots can not adequately develop due to the narrow lot widths and required setback and height restrictions. 3. Unsanitary or Unsafe Conditions The most prevalent conditions that are unsafe identified in the Clearwater Beach Needs Analysis Area are as follows: Lack of sidewalks on all streets Clcarwater Beach is a beach community and should be gearcd toward the pedestrian. Thcrc arc hotels/motels and rental units on evcry strcct which should be accommodated with sidewalks to provide a safe passage for pedestrians. Exhibit 6 shows the locations where no sidewalks exist within the Needs Analysis Study · rea. The following 'reets do not have sidewalks along the cntire length of the strect: Bayway Boulevard (Partial) Hamden Drive Brightwater Drive Fifth Street Coronado Drive Third Street First Street Glendale Street Juanita Way (Partial) Glendale Street (Partial) Cambria Street Bay I ~splanade Poinsettia Avenue I ~ast Shore Drive Baymont Street (Partial) Papaya Street Ambler Street Kendall Strcet Avalon Strcet Royal Street lIeilwood Street Idlewild Street (Partial) Somerset Street Cyprus ^ venue 14 I I I I I I I I I I I I I I I I I I I However, should sidewalks be provided along these streets it will negatively affect the amount of parking spaces which businesses own. Therefore, both of these issues (parking and sidewalks) are directly correlated and must be analyzed as one in order to prepare a solution. It is also important to note that although there are sidewalks along portions of the main pedestrian streets such as Gulfview Boulevard and Coronado A venue, the sidewalks were constructed to the minimum size requirements and may not meet the needs for a heavily traveled pedestrian or commercial area. There is also an area along Gulfview Boulevard, between First and Third Streets, where some of the sidewalks arc cracking and deteriorating. Lack of pedestrian crossings at intersections where parking lots are located; on streets with retail commercial; and where pedestrians walk to and from the beach. Pedestrian crosswalks arc not provided on Coronado Drive or on Gulfview Boulevard at Fifth Street. There are areas where public parking lots are provided; however, there are no crosswalks on adjacent streets i.e. JVH.:moria] Civic Center, McKay Park, the marina parking and areas along Gulfview Boulevard. Lack of bicycle lanes on streets No streets within the Clearwater Beach Needs Analysis Study Area are designated with a bicycle lane. Therefore, bicycles are eithcr on the sidewalks conflicting with pedestrian traffic or in the vehicular lancs conflicting with vehicles. This is especially dangcrous with thc numerous driveways whcrc the vchiclcs back out directly into traffic. 16 I I I I I I I I I I I I I I I I I I I I Cars backing out on to streets in trafflc. This has been identified by the City as a cause of traffic congestion. In addition, vehicles backing out of driveways is especially dangerous to pedestrians. The roads where fifty percent or more of the lots have driveways (parking on the front yard) that back out into traffic from the front yard are indicated below: Idlewild Street Baymont Street North Gulfview Boulevard Poinsettia A venue South Gulfview Boulevard Harnden Drive Brightwater Drive East Shore Drive Bay Esplanade Cypress Street 4. Deterioration of Site or Other Improvements Drainage Most of the beach area is in the range or three to six feet above mean sea level and is highly developed with commercial and residential. The area is primarily drained by individual storm sewers which empty into Clearwater I larbor and the Gulf of Mexico. There are some low areas subject to flooding when high tides cause water to back up through the storm sewers. South Gulf Boulevard and South Gulfview Boulevard are prone to flooding. The public parking lots along South Gulfview Boulevard arc also prone to flooding. During hurricanes and other major storm events Clearwater Beach is closcd and the area is evacuated. Clearwater Beach is a barrier island located within the Coastal I ligh Hazard Area and; therefore, some flooding is expected. Drainage facilities appear to be adequate. 17 I I I I I I I I I I I I I I I I I II I I I Roadways No traffic studies have been prepared for the Clearwater Beach area. However, the City of Clearwater Evaluation and Appraisal Report (EAR) of the Clearwater Comprehensive Plan, 1996, provides traffic counts for 1995 and projections through the Year 20] 5 for the major roads at the Beach, namely: Causeway Boulevard/Marianne Street; Mandalay A venue; and Gulfview Boulevard. The levels of service (LOS), as determined in the EAR, for these roads are provided below: Roadway From To Functional Classi fication LOS Projected ]995 2015 LOS __u u______ _______ ____ D C D C D C Causeway Blvd Coronado Dr. Causeway Br. Principal Arterial Manda]ay Ave. Royal Way Marianne St. Collector Mandalay Ave. El Dorado Royal Way Collector Gulfview Blvd. Coronado Dr. Clearwater Pass Minor Arterial D F It is important to note that these figures refleet the average daily traffic and do nOl indicate peak hour traffic or peak season traffic. It is during the peak season (Spring Break), holidays and weekends when the greatest level of traffic occur. There are no improvements seheduled for Gulfview Boulevard. It is projected the LOS will be failing on Gulfview Boulevard by 2015. Due to the long narrow shape of Clearwater Beach there are a limited number of north/south roads. Based on the average daily trips per day the roads are eurrently adequate. Ilowever, during peak tourist season and holiday weekends there is congestion on the roads. It must be noted that the Clearwater Beaeh roads are also used for evacuating the beach during major hurricanes and storms. 18 I I I I I I I I I I I I I I I ,I I I I Streetscape Several of the blocks have some street plantings. A two block area with landscaping is located along the east side of Mandalay A venue from Marianne Street northward to Haymont Street. The street is landscaped with shade street trecs and scveral varieties of palms, and shrubs. The Clearwater Blue Ribbon Task Forec has idcntified both sides of Mandalay A venue as an area for strcet tree plantings. Street landscaping also occurs along thc south side of S.R. 60 from Coronado Drive east to the Causeway Bridge; the Pier 60 and South Gulfview Boulevard parking lots; and, in the median on Parkway Drive. The Clearwater Beach Blue Ribbon Task Force has recommended that streetscape and landscape improvements be identified and added to Clearwater Beach following the Tropical Seascape design theme developed for the beach. Potable Water System The city of Clearwater owns and operates an approximate 18 water wells providing an approximatc 4 million gallons per day (mgd) of potable water. In addition, Pinellas County Water System supplies Clearwater with an additional I I mgd with meter stations installed at seven inter-connects to the County water system and large transmission lincs convey water to downtown and beach areas. In addition, small elevated water storage tanks supplement the system as storage reservoirs. There is adequate potable water service for the existing development at Clearwater Beach. The water capacities for firc service arc also adequate for the existing development. However, both the Public Works Department and the Fire Marshal have indicated that should future development inelude a high-rise, high density residential development the adequacy of potable watcr and firc service will need to be addressed. Sanitary Sewer Clearwater Beach is serviced by the Marshall Street Advanced Wastewater Treatment Plant. The Marshall Street Plant has a design capacity to service 10 mgd. The average daily flow at the Plant is 6.78 mgd. Effluent from the plant is discharged into Clearwater Harbor and transmitted through a force main to a local golf course and coastal subdivision as reel aimed water, 19 I I I I I I I I I I I I I I I I I I I The sanitary sewer system is adequate for the amount of existing development. Continual maintenanee on the sewer lines is required. A new force main has been recently constructed on Sand Key. However, should future development include a high-rise, high density residential development the adequacy of sanitary sewer will need to be further addressed. Sidewalks The existing sidewalks gcnerally meet the minimum size requircments and are 5 feet in width. Exhibit 6 shows the sidewalk locations within the study area. There is an area along Gulfview Boulevard between First and Third Streets where the sidewalk is eracking and deteriorating. Therc are many streets without sidewalks or with partial sidewalks. These streets include: Bayway Boulevard (Partial) llamden Drive Brightwater Drive Fifth Street Coronado Drive Third Strect First Street Glendale Street Juanita Way (Partial) Glcndale Street (Partial) Cambria Street Bay Esplanade Poinsettia A venue East Shore Drive Baymont Street (Partial) Papaya Street Ambler Street Kendall Street A valon Street Royal Street Heilwood Street Idlewild Street (Partial) Somerset Street Cyprus A venue Many of the roads with sidewalks are lined with lots where cars back out over the sidewalk creating an unsafe situation for pedestrians. 20 I I I I I I I I I I I I I I I I I I I Street Lighting Standard street lighting is generally provided in Clearwater Beach. The City of Clearwater Police Department has indicated that the street lighting is adequate on Clearwater Beaeh with the exception of the following locations: East side of Mandalay A venue Poinsettia Avenue just south of Royal Street Brightwater Drive at the cui-de-sac The Clearwater Beach Blue Ribbon Task Force has recommended that street lamps be installed in the core area of the beach and along the Causeway Boulevard median and emcrgency road. IIowever, the gas street lamps have only been installed along Mandalay A venue as part of the streetscape project in 1993; these lamps arc aesthetic in nature and do little to alleviate darkened conditions on the street or sidewalks. 5. Tax or Special Assessment Delinquency Exceeding the Fair Value of the Land There are no Special Assessment taxing districts identified within the Study Area. A report prepared by the Florida Planning Group entitled "Redevelopment Potential South Mandalay Area of Clearwater Beach" dated May 1996 addrcsses potential redevelopment options for a portion of the study area. The report addressed the under-valuation ofland in the area. The report cited several comparisons of the assessed value of lands within the Needs Analysis Area. Through an assessment of a consolidation of lots, thc Report indicated that several consolidated arc as of equal size had significantly different assessed values (The assessments did not include improvements which would have skewed the values). The report found that the assessed value was generally lower than the fair markct of land, This conclusion was based on an analysis which consolidated lots and compared similar sized consolidated areas. 21 I I II I I I I I I I I I I I I I I I I 6. Diversity of ownership of defective or unusual conditions of title which prevent the free alienability of land within the deteriorated or hazardous area; or The ownership of the lots within the study area is diverse. The land is divided into many small lots as shown on Exhibit 4. There has been no consolidation of parcels since 1990, with the exception of Pelican Walk. Because there is such diversity of ownership it is extremely difficult to assemble land for redevelopment. I ]owever, there arc no known conditions of title, homeowners association or subdivision regulations which prcvent the consolidation of land or deter development. 7. An area in which there exists faulty or inadequate street layout; inadequate parking facilities; or roadways, bridges, or public transportation facilities incapable of handling the volume of traffic flow into or through the area, either at present or following proposed construction. Thc strcet layout is discussed under Indicators ill and 4 above. This section will discuss in further detail the adequacy of parking and transportation facilities for current development and future projections as provided in the parking study prepared by Kim]ey ] lorn & Associatcs, Inc. in Ju]y ] 996 for the city of Clearwater. The parking study evaluated whether existing parking is adequate to meet current and future needs. The study further determined the need for future parking and provided recommendations for any deficiencies. Thc parking study cva]uated parking occupancy within the beach area during non-holiday wcekdays, non-holiday weekends and holiday weckends. Thc locations of existing parking lots arc shown on Exhibit 7. The parking study report coneluded, based on occupancy trends, there is currently adequate parking during non-holiday time and a deficiency in parking is represented during holidays and Spring Break. The parking study also projected the adequacy of parking facilities based on future development activity for a five year period based on three development scenarios recommendcd by the city of Clearwater. The future development Scenario /11 included a 10 percent genera] increase in parking demand. Scenario #2 included a 10 percent increase in parking demand, redevelopment at the beach entry and a civic center redevelopment for intensive recreation. 22 I I I I I I I I I I I I I I I I I I I Scenario #3 included a 5 percent general increase in parking demand, a 10 percent hotel occupancy increase and special event increases. Based on these scenarios, parking deficits will generally occur during holiday weekends and during peak use (Spring Break) at present and for the five year projections. Clearwater Beach is currently serviced by the Jolley Trolley whieh provides transit services between Sand Key and Clearwater Beaeh. In addition, the Pinellas Suneoast Transit Authority (PSTA) provides bus service to the beach. The transit routes arc shown on Exhibit 8. Due to the long narrow shape of Clearwater Beach there are a limited number of north/south roads. Based on the average daily trips per day the roads are currently adequate. It is important to note that these figures reflect the average daily traffic and do not indicate peak hour traffic or peak season traffic. However, during peak tourist season and holiday weekends there is congestion on the roads. It is during the peak season (Spring Break), holidays and weekends when the greatest level of traffic occur. Based on the analysis provided in the City of Clearwater EAR of the Clearwater Comprehensive Plan, it is projected that Gulfview Boulevard will have failing levels of service by the Year 2015. 24 -------------------1 F ~l?:j i~ ~= 01-4 l-4at ~.... ~1-3 ~ 000 ~ 1:1::I. 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CONSULTING SERVICES ~ ': January 14, 1997 AICP 10230 LC 0000269 WI .. .. ... 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I I ~ i i 1 J T ~D Ha." -'B ~~ ~~ tmHB --:J ~~ rIJ1TT 'l- . ~ -,.- I- "trill H ~ ---i~8 ~I--\- \" - UI 1 l- \-0 L- \.1/ - = I I '( t- fA - V\ -~ urn b--"+11 t 9~ -== m'fQ tj R1- J"> ttmEJ '~ +0 '-",..... ,~ I == BJJI[I ...-I \ - L-.. III.r.Illi !---, \-0- <> rp t= ~ W,- ~ ~ I ~ mf+1 --=- ... I . I I I I I I. I I , I I I I I i I I I I I I CLEARWATER BEACH NEEDS ANALYSIS Documentation of Existing Conditions for the Clearwater Beach Area Prepared for the City of Clearwater Prepared By: O'Neil Planning & Design Services, Inc. & Phil Graham & Company, P.A. January 14, 1997 II 'I I I I I I I I I' I I I I I I I I I CLEARWATER BEACH NEEDS ANALYSIS Documentation of Existing Conditions for the Clearwater Beach Area TABLE OF CONTENTS Executive Summary Introduction Community Redevelopment Areas Definitions of Slum and Bli&:ht Needs Analysis Indicators of Slum Conditions Indicators of BIi&:hted Conditions t. Predominance of defective or inadequate street layout 2. Faulty lot layout in relation to size, adequacy, accessibility, . or usefulness 3. Unsanitary or unsafe conditions 4. Deterioration of site or other improvements Drainage Roadways Streetscape Potable Water Sanitary Sewer Sidewalks Street Lighting 5. Tax or special assessment delinquency exceeding the fair value of the land 6. Diversity of ownership of defective or unusual conditions of title which prevent the free alienability of land within the deteriorated or hazardous area 7. An area in which there exists faulty or inadequate street layout; inadequate parking facilities; or roadways, bridges, or public transportation facilities incapable of handling the volume of traffic flow into or through the area, either at present or following proposed construction. Page " -' 3 5 5 6 6 9 14 17 17 18 19 19 19 20 21 21 22 22 I I I I I I II , - I. I I I I II I I I I I I I CLEARWATER BEACH NEEDS ANALYSIS Documentation of Existing Conditions for the Clearwater Beach Area LIST OF EXHIBITS Page Exhibit I Needs Analysis Area Boundary 2 Exhibit 2 Location of Pedestrian Crossings 8 Exhibit 3 Streets with On-Street Parking ]0 Exhibit 4 Platted Lots on Clearwater Beach II Exhibit 5 Nonconforming Setbacks ]3 Exhibit 6 Sidewalk Conditions 15 Exhibit 7 Location of Parking Lots on Clearwater Beach 23 Exhibit 8 Transit Routes 25 I I I I I I- I, I I I I I I I I I , I I I CLEARWATER BEACH NEEDS ANALYSIS Executive Summary The preceding discussions have provided an ovcrview of the physical indicators for blight conditions within the Clearwater Beach Study Area. It has been demonstrated that the presence of several conditions, especially of the area's infrastructure, contribute to and are evidence of blight, pursuant to Chapter ]63, Part III, F.S., criteria. Effectively, it has been demonstrated that the Clearwater Beach Needs Analysis Study Area has matured over time and that needed improvements to infrastructure systems have not occurred consistently with development. Specifically, based on the review of the indicators as established by Chapter 163, Part III, F.S., the Clearwater Beach area as designated on Exhibit I can be considered as a Redevelopment Area based on the requirements ofthc following criteria: Predominance of defective or inadequate street layout (Criteria #1) Faulty lot layout in relation to size, adequacy, accessibility, or usefulness (Criteria #2) Unsanitary or unsafe conditions (Criteria #3) Lack of sidewalks on streets as shown on Exhibit 6; Lack of pedestrian crossings at intersections; Lack of bicycle lanes; and, Cars backing out into traffic. Deterioration of site or other improvements (Criteria #4) Sidewalks Street Lighting Streetscapc An area in which there exists faulty or inadequate street layout; inadequate parking facilities; or roadways, bridges, or public transportation facilities incapable of handling the volume of traffic flow into or through the area, either at prcsent or following proposed construction. (Criteria #7) Inadequate strect layout Inadequate futurc parking Inadequate future roads Such evidence enables thc City Council of Clcarwatcr to officially designate the Clearwater Beach as a Community Redevelopmcnt Arca. il I I I I I I I I I I I I I I I I I I CLEARWATER BEACH NEEDS ANALYSIS Documentation of Existing Conditions for the Clearwater Beach Area Introduction This report has been prepared to document the existing conditions of the Clearwater Beach area and to determine whether there are such conditions to warrant a Community Redevelopment Area as defined by and pursuant to Chapter 163, Part III, Florida Statutes (F.S.). The area within the Needs Analysis study area was defined by the City of Clearwater Department of Central Permitting. The proposed study area boundaries for the Needs Analysis is defined in Exhibit I and generally includes all streets and land within the northern landward side of Clearwater Pass, east of the Gulf of Mexico, south of Somerset Street and landward of the west side of Clearwater Harbor. This area includes all streets and land within the boundaries as described above with the exception of Devon Drive and Bayside Drive. These two streets were eliminated due to the existing stable residential development. This Needs Analysis was developed to determine, using the definitions as provided by the State in Chapter 163.330, F.S., whether there exists any slum or blighted areas which constitutes an economic burden which decreases the tax base and reduce tax revenues, impairs sound growth, aggravates traffic problems or substantially hampers the elimination of traffic hazards and the improvement of traffic facilities, among others. I I I I I I I 'I I I I I I II I I I I I I Community Redevelopment Areas Chapter 163, Part III of the Florida Statutes addresses the findings and declarations of necessity for Community Redevelopment Areas. Any community may formulate a workable program for utilizing appropriate private and public resources to eliminate and prevent the development or spread of slums and urban blight; to encourage community rehabilitation; to provide for the redevelopment of slum and blighted areas through enforcement of zoning and land use controls; and, to promote thc rehabilitation of slum and blighted areas by replanning, removing congestion, providing yards, playgrounds, and other public improvements, encouraging voluntary rehabilitation, and compelling the repair and rehabilitation of deteriorated or deteriorating structures. In order to establish a Community Redevelopmcnt Area the governing body must adopt a resolution finding that one or more slum or blighted areas, or one or more areas in which there is a shortage of housing affordable to residents of low or moderate income, including the elderly, exist in such county or municipality; and, the rchabilitation, conservation, or redevelopment, or a combination thereof of such area or arcas is necessary in the interest of the public health, safety, morals, or wclfare of the residents of such county or municipality. Definitions of 'Blight' and 'Slum' Areas The purpose of this report is to detcrmine, using the definitions as provided by the State in Chapter 163.330, F.S., whether thcre cxists any slum or blighted arcas which constitutes an economic burden, impairs or arrests sound growth, aggravatcs traffic problems or substantially hampers thc elimination of traffic hazards and the improvement of traffic facilities, among others. The State addresses and defines blighted conditions in order to rehabilitate an area so that any blighted area may be eliminated, remedied or prevented. The State defines both 'slum area' and 'blightcd area' in Chaptcr 163.340, F.S. A 'slum area' is defined as follows: 3 I I I I I I. I I , I I I I I I 'I 'I I I I "An area in which there is a predominance of buildings or improvements, whether residential or nonresidential, which by reason of dilapidation, deterioration, age, or obsolescencc; inadequatc provisions for ventilation, light, air, sanitation, or open spaces; high density of population and overcrowding; the cxistencc of conditions which cndangcr lifc or property by firc or other causes; or any combination of such factors is conducivc to ill health, transmission of disease, infant mortality, juvcnile delinquency, or crime and is detrimental to the public health, safety, morals or wclfare." 'Blighted area' is dcfincd as follows: "(a) An area in which therc arc a substantial number of slum, deteriorated, or dcteriorating structures and conditions which endanger life or propcrty by fire or other causes or one or more of the following factors which substantially impairs or arrcsts thc sound growth of a county or municipality and is a menacc to the public health, safety, morals, or welfare in its present condition and use: I. Prcdominance of defcctive or inadequate strect layout; 2. Faulty lot layout in rclation to sizc, adcquacy, accessibility, or usefulncss; 3. Unsanitary or unsafe conditions; 4. Deterioration of sitc or othcr improvements; 5. Tax or special assessmcnt delinqucncy exceeding the fair value of the land; and 6. Diversity of owncrship of dcfcctive or unusual conditions of titlc which prcvcnt the frcc alicnability of land within the dctcrioratcd or hazardous arca; or (b) An arca in which thcrc cxists faulty or inadequate street layout; inadequatc parking facilitics; or roadways, bridgcs, or public transpor- tation facilitics incapablc of handling thc volumc of traffic flow into or through thc area, eithcr at prcsent or following proposed construction." 4 I I I I I I I I I I I I I I I I I I I Needs Analysis Based on the definitions of both 'slum area' and 'blighted area' from Chapter 163, F.S., a list of indicators for slum and blight were identified. Each of the indicators were inventoried and researched using information from the Public Works Department, Engineering Department and Central Permitting Department. In addition, visual observations and windshield surveys were performed for other indicators where maps or reports were not available from the City. The information described for each indicator is relevant to the study area. Indicators of Slum Conditions An inventory and survey of the structures on Clearwater Beach was prepared by the City of Clearwater Building Division. The survey was completed in 1994. The survey identified the condition of each structure within Clearwater Beach. Thc survey was prepared in order for the city of Clearwater to evaluatc thc typc and condition of structurcs that existed in Clearwater Beach and to identify any structures that provided unsafe conditions. The survey indicated eleven (11) structures to be unsafe or dilapidated. Since the date of the survey, five (5) of these structures have bcen demolishcd by thc propcrty owncrs and another one (1) owner has recently submitted an application for thc demolition of a structure that was identified as unsafe. Four of thc remaining structurcs have been or are in the process of being rehabilitated by the owners. Only onc structurc rcmains wherc no action has occurred to date by the owner. Thcrcforc, bascd on thc City of Clcarwatcr Building Division Inventory and Survey of Structures on Clcarwater Beach therc exists one unsafe structure within the Clearwater Beach Needs Analysis Arca. It is concluded that one unsafc structure does not constitutc a 'slum area' nor does it constitute an area of deterioratcd or deteriorating structures as identified as one of the indicators for a 'blighted area' as defined by Chaptcr 163.340, F.S. 5 I I I I I I I I I I I I I I I I I I I Indicators of Blighted Conditions 1. Predominance of Defective or Inadequate Street Layout The traffic patterns at Clearwater Beach are such that S. R. 60 is the main 4-lane arterial entering Clearwater Beach from downtown Clearwater. As S.R. 60 enters Clearwater Beach it divides into a one way pair (Marianne Street westbound and Causeway Boulevard eastbound). Upon entering Clearwater Beach from S.R. 60, Mandalay A venue provides a route north through the more residential area of Clearwater Beach and Coronado Drive provides a connecting street south to Gulfview Boulevard which provides the major north/south access south to the Clearwater Pass Bridge. Gulfview Boulevard is also a 2-lane roadway. The other major north/south roadway south of S.R. 60 through Clearwater Beach is Coronado Drive (2-lane) which is through a commercially designated area of hotels and motels. The other roads are generally connectors and local roads providing access to the residential areas and to other motels/hotels and retail in the area. Congestion occurs where Gulfview Boulevard and Coronado Drive intersect and combine the north and eastbound traffic to Causeway Boulevard and North Mandalay A venue. This is the only north/south road between First Street and S.R. 60 and generally provides for bottle- necking and congestion. Though the roads are in adequate condition and the lane widths are generally appropriate, the layout of the roads were designed to accommodate single family residences as originally platted. Residential development generates lower volumes of local traffic. Instead, the type of development which has occurred on Clearwater Beach includes: hotels and motels; commercial; and higher density residential. Thc area between Kendall Street/Juanita Way and Somerset Street is primarily a mixture of Residential, Townhouse/Garden Apartments, and Commercial (Hotels and Motels) with some High Rise Apartments, and Retail interspersed. From Kendall Street south to Marianne Street the uses are predominantly Commercial with the Yaeht Basin north of Bay Yacht Drive identified as Townhouse/Garden Apartments. However. aside from the Yacht Basin and some Open Space, the area between Kendall and Marianne Street is predominantly Commercial. 6 I I I I I I I I I I I I I I I I I I I The area between Gulfview Boulevard, Ilamden Drive and Brightwater Drive is generally Commercial (hotel/motel) with a few Residential lots. The Commercial (Hotel/motel) land uses continue south along Gulfview Boulcvard to the intersection with Gulf Boulevard (Clearwater Pass Bridge). Commercial Retail is predominant between Gulfview Boulevard and Bayway Boulevard while Townhouse/Garden Apartments and High Rise Condominium are predominant at the south end of Clearwatcr Bcach along South Gulfview Boulevard and Bayway Boulevard. Overall, the study arca is generally described as having a mix of residential and commercial uses to thc north of Mariannc Street, a predominance of commercial south of S.R. 60, and high risc condominiums and townhouses on the southern tip of the Needs Analysis Study Arca. Many of the commercial properties havc parking in thc front yards which backs out directly into traffic creating both hazardous conditions and traffic congestion. Many of the parking areas are not large enough for cars and; thereforc, portions of the vehicles encroach into the right-of-way creating hazards for other vehicles and pedcstrians. The commercial uses, especially thc hotels/motels gcncrate a large pedestrian population at the Beach. The Picr 60 area, specifically at thc intersections of Coronado Drive, Mandalay A venue, and Pier 60 Drive, are heavily used by pedcstrians crossinp to the beach. In addition, all intersections along Mandalay A vcnue and along South Gulfview Boulevard have heavy pedestrian traffic and are identified as areas of vchicular/pcdcstrian conflicts. Though crosswalks are provided at many of thesc intcrsections, they arc not provided at all intersections and those crosswalks that arc provided may not bc adequate for the amount of pedestrian traffic. Pedestrian crossings are generally provided along Mandalay A vcnue and Gulfview Boulevard. Thc location of thcse crossings are shown on Exhibit 2. Thcsc crossings are gencrally for pedestrians walking to the beach and to rctail areas. Ilowcvcr, it is important to note that the pedcstrian crossings do not always corrcspond to locations of public parking areas or to all intersections. Observations indicate that pedestrians cross thc strcets in the middle of blocks and where no crosswalks exist. In addition, thcrc arc no crosswalks on Coronado Drive which is a commcrcial retail arca of Clcarwater Beach. 7 - I I I I I I I I I I I I I I I I I I I There are no bicycle lanes provided on the roads at Clearwater Beach. Bicycles are used either on the sidewalks creating a pedestrian/bicycle conflict or on the street in a vehicular lane causing conflicts with vehicles. Exhibit 3 indicates those streets that provide on-street parking. Although the parking is limited, these spaces are very valuable to the business owners along the beach. However, the spaces may also be needed in the future to provide for road widening, bicycle lanes or additional sidewalks. Should this be the case, alternative parking must be analyzed and the parking situation for the commercial businesses must be resolved or established elsewhere within a reasonable distance. It is important to note that many of the indicators such as parking, sidewalks, bicycle lanes, road widths have a direct correlation to each other and; therefore, must be addressed accordingly. It is concluded that the layout of Clearwater Beach was to accommodate and service a lower density residential community. However. due to the popularity of the beaches, the existing uses and existing zoning designations the community is more densely developed with commercial, hotels/motels and higher residential densities. The layqut of the roads do not accommodate the density of the uses due to the higher generation rates of commercial uses; a lack of sidewalks along the roads; and a lack of bicycle lanes. Should roads require widening for such anlenities, then both on-street and off-street parking losses become an issue that must be resolved. 2. Faulty Lot Layout in Relation to Size, Adequacy, Accessibility, or Usefulness The design of Clearwater Beach is a function of the shape of the barrier island and the manmade land that was dredged to enhance and enlarge the Clearwater Beach area and provide more opportunities for development. Clearwater Beach was originally platted for residential development. This can be seen from the small residential sized lots along the roadways as shown in Exhibit 4. However, during the 1950's and 1960's Florida became popular and established as a resort area. Since that time, Clearwater Beach has developed as a product of the tourism industry by providing beach front lodging and businesses, including hotels/motels and other rentals, along the main corridors of Clearwater Beach. Clearwater Beach now includes a large commercial segment consisting of motels/hotels, retail and restaurants. 9 I I I I I I I I I I I I I I I I I I I Since Clearwater Beach was originally planned as a residential community the lots were initially laid out as small residential lots. Many of the lots currently being used as commercial were originally platted for residential development. Thercfore, the size and layout of the lots are geared for single family residential development and the corresponding land development regulations, rather than for commercial development. However, the development trends and zoning designations (Beach Commercial District, CB; Resort Commercial 24 District, CR 24; Resort Commercial 28 District, CR 28; Multi-Family Residential 20 District, RM 20; and Multi-Family Residential 24 District, RM 24) all indicate commercial development is best suited for the area. It is difficult for developmcnt to properly occur with the small lot sizes and thc requirements of the zoning ordinances. For example, commercial parking demands are extremely difficult to meet given the small lot sizc. In addition, the zoning designations allow for high density development which can not be achieved due to the corresponding height restrictions. The lots are generally narrow allowing little opportunity for new development on narrow lots due to the side setback requircments. The usefulness and adequacy of the existing small lots with regard to the zoning requirements is questionable. The only parking available to many lots on Clearwat~r Beach is in the front yard and backs out into traffic. In addition, therc arc no sidewalks along these roads. Should sidewalks be added along the roads there will bc no space for parking in front of many businesses. Therefore, the parking would bt:'come inadequate and replacement parking would also need to be addressed for each lot. In addition, many of the lots have non-conforming setbacks. Exhibit 5 indicates those lots which have non-conforming setbacks. Although there has been some consolidation oflots in the past, there has been no consolidation oflots since 1990, with the exception of the Pelican Walk development on Mandalay Avenue. No subdivisions have occurred within the study area. Commcrcial development has been continuing on Clearwater Beach. The commercial development has been occurring on the residentially sized parcels. This has bccomc difficult when attempting to meeting specific setbacks, height rcstrictions, lot coveragc and parking requiremcnts. Therc are very few undeveloped lots within the Clearwater Beach area. Six vacant lots are located north of Marianne Strcct, four vacant lots are locatcd along Brightwater Boulevard, three on Gulfview Boulcvard, and onc on Bayway Boulcvard. This totals 14 vacant lots in the Clearwater Beach area. The vacant lots were all originally platted for single family residential 12 I I I I I I I I I I I I I I I I I I I and arc sized accordingly, making commcrcial and highcr dcnsity rcsidential development difficult with the setback and height rcstrictions. It is concluded that thc lot sizcs arc too small for thc amount and type of development that has occurrcd on thc lots, crcating hal'llrdous conditions for pcdestrians and vehicles by having parking facilitics in front yards that back out into traffic and ovcr sidewalks. The lots can not adequately develop due to thc narrow lot widths and rcquircd setback and height restrictions, 3. Unsanitary or Unsafe Conditions The most prevalent conditions that arc unsafc idcntificd in thc Clearwater Beach Needs Analysis Arca are as follows: Lack of sidewalks on all streets Clearwater Bcach is a bcach community and should be gcared toward the pedestrian, Therc arc hotels/motels and rcntal units on evcry strcct which should be accommodated with sidcwalks to provide a safc passage for pedestrians. Exhibit 6 shows thc locations whcrc no sidcwalks exist within the Needs Analysis Study Area. Thc following strccts do not havc sidcwalks along the entire length of the street: Bayway Boulcvard (Partial) Hamdcn Drivc Brightwater Drivc Fifth Strect Coronado Drive Third Strcct First Strcet Glcndale Strcct Juanita Way (Partial) Glcndalc Strcct (Partial) Cambria Strcet Bay Esplanadc Poinscttia A venuc East Shorc Drive Baymont Strcet (Partial) Papaya Strcct Ambler Strcct Kcndall Strcct Avalon Strcct Royal Street Ilcilwood Street ldlcwild Strcct (Partial) Somcrsct Strcet Cyprus A vcnuc 14 I I I I I I I I I I I I I I I I I I I However, should sidewalks be provided along these streets it will negatively affect the amount of parking spaccs which businesscs own. Therefore, both of these issues (parking and sidewalks) arc directly correlated and must be analyzed as one in order to prepare a solution, It is also important to notc that although there arc sidcwalks along portions of the main pedestrian streets such as Gulfview Boulevard and Coronado A venue, the sidewalks were constructed to thc minimum size requirements and may not meet the necds for a heavily travclcd pcdestrian or commcrcial arca. There is also an area along Gulfvicw Boulcvard. bctwecn First and Third Streets, where some of the sidewalks are cracking and dcteriorating. Lack of pedestrian crossings at intersections where parking lots are located; on streets with retail commercial; and where pedestrians walk to and from the beach. Pedestrian crosswalks arc not provided on Coronado Drivc or on Gulfview Boulevard at Fifth Strcet. Thcrc are arcas where public parking lots arc provided; however, there are no crosswalks on adjacent strcets i.c. Memorial Civic Center, McKay Park, the marina parking and arcas along Gulfview Boulevard. Lack of bicycle lanes on streets No streets within thc Clearwatcr Beach Needs Analysis Study Area are designated with a bicycle lane. Therefore, bicycles are either on the sidcwalks conflicting with pedestrian traffic or in the vehicular lanes conflicting with vehicles. This is especially dangerous with the numerous driveways whcrc the vehiclcs back out directly into traffic. 16 II I I I I I I I I I I I I I I I I I I Cars backing out on to streets in traffic. This has been identified by thc City as a cause of traffic congestion. In addition, vehicles backing out of driveways is especially dangerous to pedestrians. The roads wherc fifty percent or morc ofthc lots havc driveways (parking on the front yard) that back out into traffic from the front yard arc indicated below: Idlewild Street Baymont Street North Gulfview Boulevard Poinsettia Avenue South Gulfview Boulevard Hamden Drive Brightwater Drive East Shore Drive Bay Esplanade Cypress Street 4. Detcrioration of Sitc or Othcr Improvcmcnts Drainage Most of the beach area is in the range or three to six feet above mean sea level and is highly developed with commercial and residential. "I'he area is primarily drained by individual storm sewers which empty into Clearwater Harbor and thc Gulf of Mexico. There are some low areas subject to flooding when high tides cause water to back up through the storm sewers. South Gulf Boulevard and South Gulfview Boulevard are prone to flooding. The public parking lots along South Gulfview Boulevard are also prone to flooding. During hurricanes and other major storm events Clearwater Beach is closed and the area is evacuated. Clearwater Beach is a barrier island located within the Coastal High l-Iazard Area and; therefore, some flooding is expected. Drainage facilities appear to bc adcquatc. 17 I I I I I I II I I I I I I I I I I I I Roadways No traffic studies havc been prcparcd for thc Clcarwatcr Bcach area. However, the City of Clearwater Evaluation and Appraisal Report (EAR) of the Clearwater Comprehensive Plan, 1996, provides traffic counts for] 995 and projections through the Year 20] 5 for the major roads at the Beach, namely: Causeway Boulevard/Marianne Street; Mandalay Avenue; and Gulfview Boulevard. The levels of service (LOS), as determined in the EAR, for these roads are provided below: Roadway From To Functional Classification LOS 1995 Projected 20]5 LOS Causeway Blvd Coronado Dr. Causcway Br. Principal Arterial Mandalay Ave. Royal Way Marianne St. Collector Mandalay Ave. EI Dorado Royal Way Collector Gulfview Blvd. Coronado Dr. Clearwater Pass Minor Arterial D C o C o C o F It is important to note that these figures reflect the average daily traffic and do not indicate peak hour traffic or peak season traffic. It is during the peak season (Spring Break), holidays and weekends when the greatest level of traffic occur. Therc are no improvements scheduled for Gulfview Boulevard. It is projected thc LOS will bc failing on Gulfview Boulevard by 20] 5. Due to the long narrow shape ofClearwatcr Beach therc arc a limited numbcr of north/south roads. Based on the average daily trips per day the roads are currently adequate. However, during pcak tourist scason and holiday wcekends thcrc is congestion on thc roads. It must be notcd that thc Clearwater Bcach roads arc also uscd for cvacuating thc beach during major hurricanes and storms. 18 - I I I I I. I :1 I I I I I I I I I I I Streetscape Several of the blocks havc some strcct plantings. A two block arca with landscaping is located along the east side of Mandalay A venue from Mariannc Strcet northward to Baymont Street. The street is landscaped with shade street trees and several varieties of palms, and shrubs. The Clearwater Bluc Ribbon Task Force has identified both sides of Mandalay A venue as an area for street tree plantings. Street landscaping also occurs along the south sidc of S.R. 60 from Coronado Drive east to the Causeway Bridge; the Pier 60 and South Gulfview Boulevard parking lots;.and, in the mcdian on Parkway Drive. The Clearwater Beach Blue Ribbon Task Force has recommendcd that strcetscape and landscape improvements bc idcntified and added to Clearwater Beach following the Tropical Seascape design themc devcloped for the beach. Potable Water System The city of Clcarwater owns and operates an approximate 18 water wells providing an approximate 4 million gallons per day (mgd) ofpotablc watcr. In addition, Pinellas County Water System supplies Clearwater with an additional I I mgd with me~er stations installed at seven inter-connects to the County water systcm and large transmission lines convcy water to downtown and beach areas. In addition, small elcvated watcr storage tanks supplement the system as storagc rescrvoirs. Thcrc is adequate potable water scrvice for thc cxisting development at Clearwater Beach. The water capacities for fire service are also adequate for thc existing development. However, both the Public Works Department and the Fire Marshal have indicated that should future development include a high-rise, high density rcsidcntial development the adequacy of potable water and fire service will need to be addressed. Sanitary Sewer Clearwater Beach is serviced by the Marshall Street Advanced Wastcwatcr Trcatment Plant. The Marshall Strect Plant has a design capacity to service 10 mgd. The avcrage daily flow at thc Plant is 6.78 mgd. Effluent from the plant is dischargcd into Clearwatcr Harbor and transmitted through a force main to a local golf course and coastal subdivision as rcclaimed water. 19 -- I I I I I I. I I I I I I I I I I I I I The sanitary sewer system is adequate for the amount of existing development. Continual maintenance on the sewer lines is required. A new force main has been recently constructed on Sand Key. However, should future development include a high-rise, high density residential development the adequacy of sanitary sewer will need to be further addressed. Sidewalks The existing sidewalks gencrally mect thc minimum sizc requiremcnts and are 5 feet in width. Exhibit 6 shows the sidewalk locations within the study area. There is an area along Gulfview Boulevard between First and Third Strects where the sidewalk is cracking and deteriorating. There are many streets without sidewalks or with partial sidewalks. These streets include: Bayway Boulevard (Partial) Hamden Drivc Brightwater Drive Fifth Street Coronado Drivc Third Street First Street Glendale Street Juanita Way (Partial) Glendale Street (Partial) Cambria Strcct Bay Esplanade Poinsettia A venue I ~ast Shorc Drive Baymont Street (Partial) Papaya Street Ambler Street Kendall Street Avalon Strcct Royal Street Hcilwood Strect Idlcwild Strect (Partial) Somerset Strect Cyprus ^ vcnuc Many of the roads with sidewalks arc lined with lots where cars back out ovcr thc sidewalk creating an unsafc situation for pedestrians. 20 I I I I I I I I I I I I I I I I I I I Street Lighting Standard street lighting is generally providcd in Clearwater Beach. The City of Clearwater Police Departmcnt has indicatcd that thc strcct lighting is adequatc on Clearwater Beach with the exception of the following locations: East side of Mandalay A venue Poinsettia A venuc just south of Royal Street Brightwater Drive at thc cuI-de-sac The Clearwater Beach Blue Ribbon Task Force has rccommended that street lamps bc installed in the core area of thc bcach and along thc Causeway Boulevard median and emergency road. However, the gas strect lamps havc only been installed along Mandalay Avenue as part of the streetscape project in ] 993; thcse lamps are aesthetic in nature and do little to alleviate darkened conditions on thc strcct or sidcwalks. 5. Tax or Special Assessment Delinquency Exceeding the Fair Value of the Land Therc are no Special Assessmcnt taxing districts identificd within the Study Area. A report prepared by the Florida Planning Group entitled "Redevelopment Potential South Mandalay Area of Clearwater Beach" dated May] 996 addresses potential redevelopment options for a portion of the study arca. Thc report addrcssed thc under-valuation ofland in the area. The report cited several comparisons of thc assessed valuc of lands within the Needs Analysis Arca. Through an assessmcnt of a consolidation of lots, thc Rcport indicated that several consolidated areas of equal size had significantly different assessed values (The assessments did not include improvements whieh would have skewed the values). The report found that the assessed value was generally lower than thc fair market of land, This conclusion was based on an analysis which consolidatcd lots and compared similar sized consolidated areas. 2] I I I I I I I I I I I I I I I I I I I 6. Diversity of ownership of defective or unusual conditions of title which prevent the free alienability of land within thc deteriorated or hazardous area; or The ownership of the lots within the study area is diverse. The land is divided into many small lots as shown on Exhibit 4, There has been no consolidation of parcels since 1990, with the exception of Pelican Walk. Because there is such diversity of ownership it is extremely difficult to assemble land for redevelopment. However, there are no known conditions of title, homeowners association or subdivision regulations which prevent the consolidation of land or deter development. 7. An area in which there exists faulty or inadequate street layout; inadequate parking facilities; or roadways, bridges, or public transportation facilities. incapable of handling the volume of traffic flow into or through the area, either at present or following proposed construction. The street layout is discussed under Indicators #l and 4 above. This section will discuss in further detail the adequacy of parking and transportation facilities for current development and future projections as provided in the parking study prepared by Kimley Horn & Associates, Inc. in July 1996 for the city of Clearwater. Thc parking study evaluated whether existing parking is adequate to meet current and future needs. The study further determined the need for future parking and provided recommendations for any deficiencies. The parking study evaluated parking occupancy within the beach area during non-holiday weekdays, non-holiday weekends and holiday weekends, The locations of existing parking lots arc shown on Exhibit 7, The parking study report concluded, based on occupancy trends, there is currently adequate parking during non-holiday time and a deficiency in parking is represented during holidays and Spring Break. The parking study also projected the adequacy of parking facilities based on future development activity for a five year period based on three development scenarios recommended by the city of Clearwater. The future development Scenario H1 included a 10 percent general increase in parking demand. Scenario #2 included a lO percent increase in parking demand, redevelopment at the be(1rh entry and a civic center redevelopment for intensive recreation. 22 I I I I I I I I I I I I I I I I I I I Scenario #3 included a 5 percent gencral incrcasc in parking demand, a 10 percent hotel occupancy increase and special event incrcascs. Based on thesc scenarios, parking deficits will generally occur during holiday weekcnds and during pcak usc (Spring Break) at present and for the five ycar projections. Clearwater Beach is currently serviccd by thc Jollcy Trollcy which provides transit services between Sand Kcy and Clearwater Beach. In addition, the Pincllas Suncoast Transit Authority (PSTA) provides bus scrvice to the beach. Thc transit routes are shown on Exhibit 8. Due to the long narrow shape of Clearwater Bcach thcrc arc a limited number of north/south roads. Based on the averagc daily trips pcr day thc roads are currently adequate. It is important to note that these figures reflect the average daily traffic and do not indicate peak hour traffic or peak season traffic. However, during peak tourist scason and holiday weekends there is congestion on thc roads. It is during thc peak scason (Spring Break), holidays and weekends when thc grcatcst level of traffic occur. Based on the analysis provided in thc City of Clearwater EA.R of. the Clearwater Comprehensive Plan, it is projected that Gulf view Boulevard will have failing levels of service by the Year 2015. 24