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EDWARD F. BRANTLEY, Mayor
J. GERALD MURPHY, Vice Mayor
*
ELI S. JENKINS
AULDON B. DUGAN
*JACK CAREY
*
0. HARRIS GRAHAM
*
FRED H. KENFIELD
*
*
*
*
*
*
CITY COUNCIL
GEORGE K. ARMES
CITY MANAGER
WALTER P. FULLER, Chairman
JOHN WALLACE, Vice Chairman
SIDNEY COLEN
JACK C. DEW
ELLIOTT HADLEY
OTTO KRAUSS, JR.
HARRY McCORMICK
DERWIN B. SMITH
ALBERT STOVER, JR.
PLANNING BOARD
JOHN B. HARVEY, Director of Planning
ALBERT 1. BARRY, Assistant Planning Director
RICHARD MALCHON, Land Use Coordinator
BERNARD BLACKWOOD, Land Planner
ALICE C. RICE, Planning Technician
NANNIE SHACKELFORD, Planning Technician
CHARLES L. SEAL, Planning Technician
*
EVELYN A. PATMORE, Secretary
*
MAURICE C. BARCO, Senior Draftsman
*
JOHN THOMAS PIERCY, Draftsman
*
CHARLOTTE MOWERS, Senior Clerk Stenographer
*
ADELE K. FERGUSON, Senior Clerk Stenographer
*
GLORIA M. RANDALL, Senior Clerk Stenographer
Elected or appointed since completion of this report in 1958
**
PLANNING STAFF
*
**
Author and Director of this report
CEflTRL CORE PLfl
Prepared for the Planning Board
by the Department of Planning
September, 1958
St. Petersburg, Florida.
CONTENTS
ILLUSTRATIONS
Page
INTRODUCTION. 1
Land Use Map
4
2
Changes in Land Use Establishments
6
3
Off Street Parking Facilities
8
4
Traffic Generators
5
Assessed Valuation
6
Proposed Land Use Plan
13
12
7
Possible Development for a Civic Auditorium
15
17
8
Comparison of Existing and Future Land Use Areas
16
9
Intermediate One-Way Street Plan
18
2
THE EXISTING SITUATION
3
Physical
3
Social Activities
9
Economic Situation
9
Organization of Land Uses
Traffic Circulation
Page
1
PERSPECTIVE
PROPOSALS FOR IMPROVEMENT OF THE
CENTRAL CORE
Figure
10
—
1957
12
11
Proposed Parking and Loading Facilities
Parking Program
26
Transit Facilities
26
10
Belt Loop Expressway
20
Expressway Authority
28
11
Pedestrian Mall
22
12
Plan for Attorneys’ Mall
24
13
Intermediate Transit Routing Plan
27
14
Ultimate Transit Routing
29
Priorities for Action
23
30
FOOTNOTES
BIBLIOGRAPHY
31
—
Central Avenue
0
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The St. Petersburg Central Core Plan set forth herein
was adopted by the City Planning Board in August 1958
and presented to Council in October of that year.
Since the completion and adoption of this Plan, the
City has undergone many changes physically, politically
and economically. Notably among these changes are the
election of a new Mayor and Council, appointment of a
new City Manager and new Planning Board Chairman,
an increase of over 20,000 persons to the permanent pop
ulation from approximately 160,000 in 1958 to over
181,000 in 1960; mounting traffic congestion in an al
ready overburdened downtown traffic system; and a
gradual decrease in real property value and the taxable
assessed value in the Central Core area, stressing the
urgent need for revitalization of the Downtown area of
the City.
The major proposals for the improvement and revital
ization of the Central Core area have been scheduled for
completion as outlined in the “Priorities for Action”
section of this report. Several of these proposals have been
accomplished, notably among which are: creation of an
Expressway Authority by Special Act of the State Legis
lature, setting forth the powers and duties of the Author
ity; completion of “Bayfront 75,” a general plan for the
City-owned major Tampa Bay Waterfront to provide
for the coordination of activities, improve traffic circu
lation and provide additional parking areas as well as
the means for financing the proposals recommended; and
completion of the more detailed report “Towards a
Governmental-Arts Center for St. Petersburg” in sup-
port of the proposal for development of the Mirror Lake
area as a civic and cultural grouping.
There are also those proposals which would necessarily
be classified in the “near completion” or “under consid
eration” category. These include the widening and re
alignment of 4th Avenue North and designation of 4th
and 5th Avenues North as one-way alternates between
Beach Drive and 16th Street North, and consideration
by the City and the local State Legislative delegates of
possible special acts for the creation of a Parking Au
thority and special assessment districts for provision of
off-street parking facilities and a pedestrian mall.
One major obstacle had delayed the implementation
of the Cerftral Core Plan
the relocation of rail
road facilities from the Central Business District. This
long sought idea should become a reality in 1961, and
once accomplished it will allow the effectuation of a oneway traffic plan for the Central Core area. It will be
necessary for the one-way system to be initiated and
proven before the proposed pedestrian mall can be ex
perimented with on a trial basis. Removal of the railroad
would also permit utilization of the ACL passenger sta
tion as a terminal for all Municipal Transit System
routes.
—
The Central Core Plan has endured the elements of
time, change, and happenstance. The goals, methods,
and measures designed therein to effectuate the revitaliza
tion of Downtown St. Petersburg, with little or no excep
tion, still prevail.
N TR c ii ri
%%
The Central Core is the heart of the community. It is the
focal point of the economic, cultural, social, and civic activities
of the metropolitan complex. It contains within its limits most
of the major retail uses, offices, financial, and governmental
facilities of the City. There, also, are the large hotels, theatres,
and specialty shops whose economic lifeblood is drawn from the
entire community.
The Central Core of St. Petersburg is experiencing a phe
nomenon which is being felt in most of the Central Business
Districts of the major cities across the nation. Recent compara
tive analyses of 48 cities, prepared by the U. S. Bureau of the
Census indicate that, although total sales volumes from 1948
to 1954 rose 32.2 per cent, the downtown sale volume rose only
1.6 per cent.’ This disproportionate increase in sales volumes can
be attributed to the ever-increasing vehicular and pedestrian
congestion, inadequate parking facilities, lack of rigid traffic
enforcement and intense competition from outlying shopping
centers for specialty goods market, long thought to be an ex
clusjve function of the Central Business District.
The preservation and, more important, the revitalization of
the Central Core, is essential to the economic well-being of St.
Petersburg. Although the nucleus as defined for this study con
stitutes less than two per cent of the total land area of the City,
it represents 16 per cent of the total non-exempt valuation of
land and buildings in the entire City.
The structural condition of the buildings in the business
district of the core area is basically sound. However, there are
individual structures and establishments which are in need of
remodeling and, in some cases, replacement. Parking accomnio
dations are often congested and it is difficult to maneuver; addi
tional spaces are needed now and still more will be required in
the future. Traffic volumes meet and in certain instances exceed
the existing capacities of many of the downtown streets. It is
clear that this situation must be improved immediately.
The methods and measures designed to bring about better
ment of these conditions, including plans for the organization
of future land use patterns, a parking plan, and recommenda
tions for improved pedestrian and vehicular circulation, are the
subjects of this report.
Page 1
Several recent reports and studies of particular phases of the
activity of the downtown area of St. Petersburg have pointed
out the need for a coordinated and workable program of major
improvements in the Central Core. The 1954 Blueprint For
Tomorrow of the City Manager, and the Parking Survey and
Program by Ramp Buildings Corporation, dealt primarily with
the existing parking problem and suggested proposals which
were intended to relieve this situation. Although both of these
reports had many excellent suggestions and contained statistical
data which will be helpful in future studies, the majority of the
recommendations have not been adopted.
In 1957, The St. Petersburg CBD Study was made by Victor
Gruen and Associates for a group of downtown businessmen.
This plan was considered by many to be too advanced in basic
theory. Further, it was apparent that adoption of the proposals
would have required more abundant economic resources than
St. Petersburg would have for years. However, the basic survey
material of that sketch plan was excellent and has been helpful
in this further analysis of the area.
1
CH PTER Q
A
PERS PE CTI ‘1’ E
Purpose
The failure of the Gruen report and other consulting firm
studies to capture the public imagination and to win approval
and active support of civic leaders hastened the Planning Board’s
authorization of this project. It was the feeling of the Board that
by utilizing the available State and local facilities, they would be
in a position “to present a workable downtown plan with in
genuity and imagination.”a
The Study Area
The Central Core of St. Petersburg is bounded by 5th Avenue
North, the alley west of 9th Street, 5th Avenue South and Tampa
Bay. The existing traffic pattern and the intensified concen
tration of commercial, residential and public uses were helpful
in defining the core area. The area of greatest concentration
of retail, office, and service facilities in the Core area is further
defined as the Central Business District and referred to as the
“CBD.” The boundaries of this district are defined in terms of
existing and proposed areas further in this report.
Methodology
The procedures recommended in Research Paper Number I,
The Central Business District In Transition by Shirley F. Weiss,
were
consulted
in
classifying
the
Land
Use
categories
in
the
Central Core. The number of establishments and their actual
land areas were determined for each land use. Information from
the Transit Superintendent,
Traffic & Planning
Division
the Traffic Engineer,
of
the
has been utilized together with the
agencies.
Page 2
State
and from
Highway
talents of
the
Department
these persons
and
Physical
CHAPTER TWO
TI—I E
E)(ISTIIG SITU?TI()I\I
Existing Land Use
Because of the diversified functions which make up the
central core complex, it was necessary to arrange the various
land uses into major categories. On the existing Land Use Map,
Figure 1, the categories of more extensive use have been classified
further to disclose the relationships of similar major functions to
the overall pattern of uses.
Retail use. Included in this category are retail and trade estab
lishments, consumer, personal and repair services, amusement
and recreational facilities, transient lodging and gasoline service
stations.
A majority of the retail uses are concentrated in the present
CBD, which is defined as that area bounded by the alley north
of 1st Avenue North, 9th Street, 2nd Avenue South and Beach
Drive. Ninth Street, between 5th Avenues North and South,
has developed into a commercial-manufacturing area, providing
heavy business operations needed to service the Central Business
District, although it provides the site for two major department
stores.
There is a scattering of retail uses throughout the central
core area and particularly along 4th Street North. A majority
of these are of the transient lodging variety—hotels, guest houses,
motels—which depend on their close proximity to the CBD and
the attraction it holds for the tourist.
On the Land Use Map, the retail uses have been further
classified to indicate the interdependence of major uses included
in the retail category.
Office use. This classification includes real estate, finance and
insurance offices, business and professional services, wholesale
agents, brokers and manufacturing sales offices. Here, again,
the predominant office uses have been shown separately on the
Land Use Map. The increasing number of financial concerns,
both in the core area and the outlying regions of the City, estab
lishes St. Petersburg as one of the outstanding financial centers
of Florida.
Although office space is scattered throughout the CBD, most
of the available space is concentrated in two small areas bounded
by 1st Avenues North and South from 3rd Street to 5th Street and
between 1st and 2nd Avenues South from 4th Street to 6th Street.
In keeping with the general trend, this space is located in multi
story buildings.
Page 3
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Residential
Commercial
Hotel Use
Industrial
Public & Semi-Public
Parking Lot
Parking Garage
Parking facilities. Although the parking facilities are presented in
more detailed form on Figure 3, page 8, Off-Street Parking Facil
ities, they have been indicated on the Land Use Map showing
their relationship to the existing major uses. Public, commercial,
and customer parking garages have been denoted.
Public and semi-public use. These uses are concentrated in two
large areas: the vicinity of Mirror Lake and Williams Park; along
the Tampa Bay waterfront from 5th Avenue North to the Albert
Whitted Airport. These uses have been stipulated on the Land
Use Map and they are discussed at length under the section of
this chapter titled “Social Activities.”
Wholesale and industrial use. Because of the heavy truck and rail
traffic necessary for their operation, industrial and wholesale
establishments are not desirable in the pedestrian-dominated
heart of the City. Fortunately, there are very few such uses in
this area of St. Petersburg. Most of those in existence are situated
along the railroad rights-of-way on 1st and 2nd Avenues South,
and are shown on the Land Use Map.
Residential accommodations. Single family dwellings, garage apart
ments, duplexes, multi-family residences, boarding houses and
apartment-hotels are the diversified uses included in this category.
These are dispersed throughout the study area with heavy con
centrations in all but the heart of CBD. Most of these structures
are in fair or poor structural condition. They occupy excessive
amounts of land in proportion to the population housed and
should eventually be replaced by multi-story apartment build
ings which would allow a higher population density while, at
the same time, providing more off-street parking and loading
space and green areas.
Changes in Land Use Establishments
On line graph, Figure 2, a comparison of the total number
of establishments in each of the major land use categories is
presented over a 40-year period, at 10-year intervals. The period
embraces two World Wars, an unprecedented land boom, a
major depression, and a post.war boom. Their effect on the
Central Core area of St. Petersburg is reflected in the fluctuation
of the total number of establishments in the given intervals, as
well as the number in each major land use. The tremendous
increase of uses between 1916 and 1926 was blown all out of
proportion by the overwhelming number of real estate offices
operating at the height of the land boom. The succeeding in
tervals are more representative of the transition in the core area.
Retail establishments. With the exception of restaurants and ap
parel and home furnishing stores, there has been a general de
crease in number of all retail trade establishments in the core
area, including grocery and drug stores, general merchandising
stores, and other retail establishments. Also on the decline are
establishments offering personal and repair service, gasoline
service stations, and amusement and recreational facilities.
The greatest increase within this category has been in tran
sient lodging (especially small hotels) which have almost doubled
in number in the 20-year period between 1936 and 1956.
Office facilities. The most prevalent gains between 1936-56 in
this category were registered by real estate, finance and insurance
offices, and establishments offering professional services. How
ever, almost all office uses enjoyed some increase in the number
of establishments in the Central Core.
Parking areas. Incomplete figures for 1936 and 1946 make com
parison of the number of these facilities difficult. However,
there has been an increase in the total shown and it is a known
fact that the total area for these facilities has increased over
the years.
Public and semi-public establishments and areas. Although these
figures indicate an increase in public buildings, private institu
tions, organizational headquarters and public utilities between
1946 and 1956, the total figures for 1956 just equal the peak
reached in 1936. However, the small number of parks, recreation
areas, and open spaces do not give a true picture of the large
area devoted to these uses. In the past several years, a number of
small governmental and institutional uses have been forced to
move out of the Central Core in order to expand. This is re
grettable, as these agencies need the central location to best
serve the City. A project which should be undertaken immedi
ately is the coordination of many such independent agencies into
a cooperative association for purposes of purchasing the old
school buildings around Mirror Lake.
Wholesale establishments. Merchant wholesalers have shown a
substantial increase by doubling in number between 1946 and
1956, while other uses in this category have either decreased in
number or remained constant. However, wholesale uses con
stitute a very small segment (1.9%) of the total number of estab
lishments in the core area for 1956. Figures for past operations
are not broken down in detail but it is believed that there has
been a corresponding decrease in the CBD with the growth of
the City and emergence of present functions of this area.
Page 5
CHANGES IN LAND USE ESTABLISHMENTS
NUMBER OF
ESTABLISHMENTS
1200
1000
.
600
5
00
•
400
/
...•
.
200
/
.
.
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1916
—
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1926
1936
1946
YEARS
LEGEND
—.
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Figure 2
Page 6
••
——
RETAIL
OFFICE
PARKING
PUBLIC & SEMI-PUBLIC
WHOLESALE
INDUSTRIAL
RESIDENTIAL
1956
Industrial establishments. Industrial uses, which also constitute a
small percentage (2.2%) of the total number of uses, have been
on the decline in the Central Core over the past 30 years. This
trend will undoubtedly continue with the removal of the rail
roads from the core area.
Residential. Contrary to national trends, the residential uses in
the Central Core have been increasing in number over the past
30 years, with the greatest gain between 1946-1956. During this
10-year period, multiple-family housing almost doubled in num
ber. Although part of this gain can be attributed to conversion
of existing one and two family dwellings, which have not been
tabulated in these figures, new apartment buildings are respon
sible for a majority of this increase and it can only be anticipated
that this unusual trend will continue, due in large part to the
tourist locational pattern.
Private Redevelopment in the Central Core
Over the past 10 years, a certain amount of redevelopment of
marginal properties has taken place in the core area. This has
come about through the expansion of many major existing en
terprises and the development of new facilities.
Within the CBD, there has been increased emphasis on large
scale commercial operations and the diminishment of small, oneman commercial ventures. Some notable examples of this trend
are: Maas Brothers and the Telephone Building, which cleared
out many old homes and marginal retail stores; Slimer’s expan
sion combined 5 or 6 small retail shops; the new Union Trust
Company building removed several sub-marginal commercial
uses. Numerous new apartment buildings have replaced old,
dilapidated structures.
Redevelopment through private enterprise is most desirable
in the core area and continued effort should be exerted to en
courage this trend. It is important to bear in mind that public
expression of confidence in the future of his area by the ex
penditure of public money must be matched by private enter
prise confidence and expenditure, or else no program will be
successful.
Traffic and Streets
rraffic circulation. The original promoters of St. Petersburg had
the foresight to provide wide rights-of-way for the downtown
street system. Most of the present streets in the Central Gore
are 100 feet wide. However, the close proximity of major par
allel streets and the resulting narrow width of blocks has proven
detrimental to the circulation of both vehicular and pedestrian
traffic. This is especially true where signaling devices have been
unsuccessful in regulating the flow of traffic and have had to be
supplemented by policemen. A pertinent example of this situa
tion of short blocks is between 2nd Avenue North and 2nd Ave
nue South, where it is necessary to negotiate three traffic signals
in a span of about 600 feet on any through-street intersecting
these avenues in the CBD.
The railroad lines along 1st Avenue South, within the CBD,
are an additional hindrance to smooth-flowing traffic. Fortu
nately, action is being taken to relocate the railroad facilities and
it is anticipated that their removal from this core area will be
completed by 1960.
A problem somewhat unique to St. Petersburg is the pedes
trian movement at an unusually slow pace, while on the grid
pattern established with streets at regular mathematic intervals,
it is necessary to maintain a traffic signaling system much like
that now in operation, which does not permit use of such innova
tions as the “barn dance” signals which give the pedestrian a
specific signaling time to cross in all directions with no vehicu
lar movement.
One of the purposes of this study is to separate vehicular
traffic with its routes from pedestrian traffic in the more con
gested sectors of the central core.
Street capacities. A major portion of the traffic entering and
leaving the core area is carried primarily by Central Avenue, 1st
Avenue North, 9th Street, and 4th Street. To a lesser degree,
5th Avenues, North and South, and 7th Street are important
carriers. Most of these streets are carrying their practical volume.
Central Avenue, 9th Street, 4th Street North and 1st and 5th
Avenues North from 4th Street westward, are utilized beyond
their design capacity.
The dominant factors which tend to reduce the volumes of
these streets are: curb parking on both sides of the street and
the consequent maneuvering into and out of parking spaces;
the conflict of left-turn movements with on-coming traffic and
the additional conflict of turning movements with pedestrian
traffic; the frequence of traffic signals necessitated by the close
proximity of intersecting major streets, and truck and bus traffic.
Parking facilities. Since the primary function of downtown streets
is traffic movement, parking should logically be permitted on
those streets only when it does not interfere with traffic. As
additional curb parking spaces are diverted to loading zones,
driveways, bus stops, or additional traffic movement lanes, the
Page 7
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EXISTING OFF-STREET
PARKING FACILITIES
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Public lot (metered)
Public lot (free)
Gi
Parking Garage
Customer or
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need for added off-street parking facilities becomes increasingly
evident. Because of the urgency for ample parking and its effect
on the convenience and prosperity of the central core area, park
ing is a matter of serious importance to visitors, customers, down
town business establishments, property owners, and public offi
cials, all of whom are individually affected. The recent Blueprint
of Tomorrow and the Ramp Report recognized this need and
stressed the immediate provision of parking accommodations in
the Central Core.
On first reviewing the Off-Street Parking Facilities, Figure 3,
it appears that there is an abundance of off-street parking in the
Central Core. Regretfully, too many of the existing lots are
either inadequate in area or partially inaccessible for public use.
Frequently, they are not properly located to serve the areas of
greatest demand for parking.
Off-street parking facilities are concentrated between 1st
and 3rd Avenues South and adjacent to Mirror Lake along 2nd
Avenue North. Many small lots are scattered around the fringes
of the CBD. There are several parking garages located in the
core area, but the Maas Brothers Department Store garage on
2nd Avenue North is the only one of major parking capacity.
Two other large department stores, Webb’s City and Sears,
have provided sufficient parking for their own needs. However,
the other major traffic generators, as indicated on Figure 4,
are lacking in the provision of conveniently located parking
facilities to satisfy their requirements.
Social Activities
Civic and Cultural
A majority of the civic and cultural activities in St. Petersburg
are clustered in the vicinity of Mirror Lake and Williams Park.
‘Within this center are located the Municipal and County Build
ings, the YWCA, the Library, the Coliseum, 6 major churches,
two public schools, and additional activities connected with the
band shell at Williams Park. Fraternal organization head
quarters and several other churches are dispersed throughout
the core area.
Recreational
Mirror Lake Park, Williams Park, and the waterfront parks
comprise the major areas of recreational usage in the core area.
A variety of activities is offered within these parks, answering
the need for both active and passive recreation.
Mirror Lake Park has not only its nationally famous shuffle
board courts, but facilities for lawn bowling and other outdoor
games, indoor provisions for chess, checkers and roque and in
numerable card games. This park is truly the tourist mecca.
‘Williams Park, with its attractively designed bandshell, offers
a welcome oasis in the intensively developed commercial district.
During all seasons, social groups gather there for varied forms of
entertainment.
The waterfront parks area runs the gauntlet of recreational
uses. Here are located the yacht basins and Yacht Club, Al Lang
Field—proving ground for established and aspiring Major League
Baseball players—the Million Dollar Municipal Pier, Spa Beach,
and many other active and passive recreational pursuits. How,
ever, many of these facilities are in need of repair and remodel
ing. It has been necessary to design an overall plan which will
provide for the coordination of activities, improved traffic circu
lation and additional parking areas.
Economic Situation
Even though the Central Core comprises less than 1.67%
of the total area of the City, the assessed valuation in the core
area is in excess of $40 million, or approximately 16% of the
total valuation of land and buildings in the entire City. The
1957 assessed valuation by block is shown on Figure 5.
Generally, the highest valuations are concentrated south and
east of the heavily exempt blocks which contain the County
Building, Municipal Building, and Williams Park. The two
blocks contributing most per property to the City tax rolls are:
between 1st Avenues North and South and 4th and 5th Streets,
and the block immediately east of Williams Park.
North of 2nd Avenue, and east of 5th Street North the as
sessed valuations remain rather constant near the $500 thousand
level per block, due to the large apartment buildings and hotels
located within these blocks. South of 1st Avenue South, except
for the blocks occupied by the Newspapers and Webb’s City,
the valuation declines appreciably. This factor is attributable
to the poor structural condition of, and low tax return from,
many of the buildings in this area.
Within the past several years, the Pinellas County Tax As.
sessor has been considering a downward adjustment of evalua
tions in this area due to building obsolescence, lack of parking
facilities, and because of competition from outlying shopping
centers affecting values.
Page 9
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The present Central Core of St. Petersburg will require
considerable improvement if it is to maintain its position as
the major commercial, financial, and cultural center of Pinellas
County. The Core has the advantage of wide streets, an estah.
lished and structurally sound Central Business District, and a
favorable waterfront location on Tampa Bay. If it is to maintain
its dominant position, the Core still needs improvement of its
overall appearance, convenience, and operational efficiency in
order to attract additional stores and patrons to the downtown
area.
Organization of Land Uses
CHAPTER THREE
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Page 12
Central Business District
The value and usefulness of this business district is dependent
on the development of well organized and closely integrated
shopping and office facilities. The proposed general location of
these and auxiliary uses are illustrated in Figure 6, Proposed
Land Use Plan.
The present Central Business District, previously defined as
that area bounded by the alley north of 1st Avenue North, 9th
Street, 2nd Avenue South, and Beach Drive has been extended
in this present analysis to include the lots on either side of 2nd
Avenue North between 3rd Street North and Beach Drive and
the two blocks between Arlington and Burlington Avenues, from
8th to 9th Streets North.
The principal retail stores and shops in the Central Business
District now extend along Central Avenue from 1st Street to 9th
Street and to a lesser degree on 9th Street, 1st Avenue North, and
1st Avenue South. The main shopping facilities would remain
on these streets in the future, but expansion is proposed along
the side streets and includes portions of 2nd Avenues North and
South. Compactness is a desirable feature of the business district
and new establishments which will thrive there should be en
couraged to locate within the limits of the Central Business
District for greater efficiency and accessibility.
The major office buildings are now concentrated on Central
Avenue and 1st Avenues North and South, between 3rd and 6th
Streets, with a few office facilities scattered through the re
mainder of the Central Business District. It is anticipated that
new office structures will locate within the defined area of
concentration, when convenience and accessibility to compatible
Central Business District uses are desirable.
Although included in the office category, financial establish
ments, and especially the investment and savings institutions,
are a major function of the Central Core. There are presently
six major banks and Savings and Loan Associations within the
business district and a seventh under construction on the fringe
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PROPOSED LAND USE PLAN
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Page 13
of the Central Business District. Most of these have drive-in
cashier service which, in some instances, has been a deterrent to
traffic circulation. In determining the most feasible site for
future banks and major financial institutions, ease of access and
adequate parking facilities, as well as the proper downtown
location, will have to be considered.
A majority of the hotels, motels, and large rooming houses
are located in the northeast quadrant of the Central Core includ
ing the eastern half of the Central Business District. Interspersed
throughout this quadrant are residential structures of a marginal
to sub-marginal nature which will be replaced by medium to
high density apartments and hotels with the highest concentra
tion proposed on the west side of Beach Drive.
Public and Semi-Public Use
A great majority of the existing civic, cultural and recrea
tional facilities are located in the Mirror Lake area and in the
Waterfront Parks and recreational areas on Tampa Bay. These
areas enhance and complement the Central Business District by
providing much needed open green spaces of natural setting.
Those individuals whose primary purpose for being in the
Central Core is utilization of the civic, cultural, and recreational
facilities available support the CBD through patronage of its
stores. The close proximity of these facilities to the CBD en
courages the combining of trip purposes to this area.
The nucleus of an outstanding civic and cultural center exists
in the present relationship of the Municipal Building, the County
Building, the Library, the YWCA and numerous churches with
Mirror Lake and Williams Park. This center has been expanded
north and west to include most of the area surrounding the lake
from west of 8th Street to west of 4th Street and north of 1st
Avenue North to 5th Avenue North. In addition to providing
needed room for expansion of the existing civic and cultural
facilities previously mentioned, this new center would provide
sites for the Municipal Auditorium, a State office building, ex
hibition halls, and other related structures, including a much
needed centrally located office building to house Welfare and
Social Service Agencies. Conversion of this area as proposed
would necessitate the displacement of many existing structures,
most of which are of a marginal or sub-marginal nature. There
are, however, several substantial buildings within this area, which
present use is not considered most complimentary to a civic
and cultural center, which would be retained with the possi
bility of future conversion to a more compatible use.
Page 14
It is suggested that the northwest quadrant of the proposed
civic and cultural center is most ideal as an auditorium site as
shown on Figure 7. All but two or three of the buildings in the
area north of Burlington Avenue and east of 7th Street North
are in either poor or bad structural condition. Included in this
category are the Mirror Lake Junior High and Tomlinson Vo
cation Schools which have almost served their life as schools
and should be converted to other use by the School Board in the
near future. Once the lands within this quadrant have been
purchased and cleared, the streets which intersect it would be
converted to parking areas or maneuvering lanes or vacated,
in accordance with the scheduling of the major thoroughfare
plan for the core area and a specific plan for this Civic Center.
Certain segments of the proposed center will need rejuvena
tion, especially the facilities at Mirror Lake Park. The Park
has several areas which do not attract intensive use. It will be
necessary to take full advantage of this area’s potential. Several
ideas have recently been proposed—as an example, the possible
conversion of the Roque Court building into a library annex
or even into a swimming facility.
The Waterfront Parks and recreational areas on Tampa Bay. The
recreational potential of the Bay front area of the Central Core
has not been fully utilized. Many of the buildings housing the
existing facilities are in need of repair or replacement. Traffic
movement and parking facilities also need careful review in
relation to future land use proposals.
The north Waterfront, or Straub Park, designed primarily
as a passive recreation area, is little used and it will be necessary
to re-design this facility in order to encourage more use. Areas
of special interest such as flower gardens, fountains, pools and
statuary might be created. Part of this park could be used for
more intensive recreational activities, and part could be used to
provide the necessary additional parking space for such uses.
With the removal of the railroads from the core area, the
South Mole may become available for recreational development.
This area would be poorly utilized if it is developed for other
than public use. Therefore, it is suggested that the City acquire
the remainder of this site. Although many proposals have been
made for the ultimate development of this area, the most feasible
use is inclusion in the marina and bathing beach plan as pro
posed in the Yacht Basin study by Parsons, Brinckerhoff, Hall &
MacDonald. Further examination will be necessary in regards to
traffic circulation and site planning before the ultimate de
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Page 16
velopment is authorized. Separate points of entry and exit at
1st and 2nd Avenues South should be provided for better traffic
movement.
Possible Municipal Building expansion. Present office space in City
Hall is utilized beyond capacity and additional office and meet
ing space is needed. The intensive development of properties
adjacent to City Hall limits expansion of the present site. This
building can only expand vertically and the foundation has been
designed for no more than three full stories. The City, rather
than contemplating minor additions, should be thinking of a
new municipal building or annex. The most likely site for a
new structure or annex is in the block immediately north of the
existing Municipal Building. This site as proposed in this study,
includes all but the lots fronting on the west side of 4th Street
North between 2nd and 3rd Avenues North. Part of this area
is City-owned and utilized for parking purposes; the remaining
properties, although partially developed, are of a marginal or
sub-marginal nature. This site will provide sufficient area for
both a new office structure and parking facilities, which should
include a much needed employee and visitors’ parking lot.
The entire site proposed for possible expansion of City Hall
could be used for public parking until such time as actual con
struction would commence.
Transitional Use
This use has been designated as an area of transition between
residential and commercial uses. It will include residential de
velopment of high population densities, low intensity com
mercial and service facilities, along with off-street parking.
Generally, this use is proposed for almost all of the land adja
cent to the Central Business District, both north and south, with
the exception of the area designated for public use in the vicinity
of Mirror Lake. The existing land uses within these areas range
from single family residences to commercial development, and
are undergoing constant change to greater intensity of use
through conversion and replacement of existing structures.
Although there are still many single family dwellings located
throughout the transitional area, most of them are in poor struc
tural condition and have a life expectancy of 10 years or less.
These structures will be replaced by more intensive residential
and commercial development which will aid in stabilizing the
tax structure of the Central Core.
The Department of Planning is currently preparing a revised
zoning ordinance which intends to encourage in this area only
those uses which will be complimentary and compatible to the
CBD and will include requirements for off-street parking and
open space.
Comparison of Existing and Future Land Uses
A comparison of existing and future land uses is given in the
bar graph, Figure 8. The slight decrease in area devoted to
commercial use is attributable to the fact that only the Central
Business District is included in th acreage for future develop
ment, in keeping with the desire for a compact, intensive
shopping area. The Central Business District is augmented by
the potential commercial development in the residentialcommercial area fringing the CBD, in which many of the Central
Business District uses are permissible with some modification.
The area proposed for parking facilities has been more than
doubled, with a majority of the additional land recommended
for peripheral all-day parking lots. These figures are based on
an estimated 50% increase in traffic volume in the downtown
area and the anticipated proportional demand for parking space.
The area devoted to public and semi-public use has also been
increased, due largely to the additional land needed for the
proposed civic and cultural center in the vicinity of Mirror
Lake. The proposed fill areas for beach and breakwater use on
the South Mole have not been included in the future use figure.
Most of the existing acreage in industrial use is in railroad
right-of-way and on the removal of the trackage from the Cen
tral Core, the few industrial uses dependent on rail facilities
will also abandon the core area. There are, however, certain
commercial-manufacturing uses which are necessary for a prop
erly functioning Central Business District. These are and will
continue to be located along 9th Street and between Burlington
Avenue North and 2nd Avenue South.
The recommended vacation, or use conversion, of certain
streets and alleys for parking, expansion of civic facilities, and
pedestrian malls is responsible for the reduction of area devoted
for circulation.
Traffic Circulation
Although the majority of the downtown streets of St. Peters
burg are quite adequate in width, the conflicts of turning
movements, vehicular and pedestrian traffic, curb parking
maneuvers, and excessively short blocks have so reduced the
traffic-carrying capacity of a majority of these streets that im
mediate steps must be taken to alleviate this condition. An
intermediate plan of one-way streets is proposed as a stop-gap
Page 17
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measure to relieve the present traffic congestion. This plan is
proposed only as a temporary measure to implement an ultimate
belt-loop system of a limited access throughfare around the
Central Core.
Intermediate One-Way Street Plan
This plan, Figure 9, incorporates the utilization of existing
streets and rights-of-way and can be implemented at a minimum
of expense. Under this scheme, 4th and 5th Avenues North would
become one-way alternates between Beach Drive and 4th Street,
as would 4th and 5th Avenues South between 1st and 9th
Streets. As soon as 8th Street can be re-opened, 8th and 9th
Streets between 5th Avenue North and 5th Avenue South would
also be one-way alternates. Third and 4th Streets would have
to be made one-way and part of U.S. 92, from 13th Avenue
South to 5th Avenue North. Also included is the designation
of 1st Avenues North and South as one-way westbound and
eastbound, respectively.
It is imperative that this plan be adopted in its entirety,
although its effectuation will, by necessity, be done in stages.
However, there are certain factors which will influence the ex
pediency by which this system is effectuated. These factors
include the removal of railroad facilities on 1st Avenue South
and on 8th Street South, and the subsequent paving of these
areas; removal of the jog in 8th Street North at 3rd Avenue; and
widening of the pavement on 8th Street between 3rd and 5th
Avenues North. Certain traffic signals would have to be added,
especially at 5th Street and 5th Avenue North, where one-way
traffic commences from two-way traffic and U.S. 92 will connect
to Alternate U.S. 19.
This scheme involves two Federal-State highways and it has
been necessary to obtain approval from the State Road Depart
ment for one-way designation on 4th Street and 5th Avenue
North.
Because of the physical barriers which impede the immediate
enforcement of this plan, the implementation of a one-way
street system will, by necessity, be effectuated in stages. (See
“Priorities For Action”)
Belt Loep Expressway Plan
Effectuation of a one-way street system, elimination of con
flicting turns, removal of curb parking and an increase in pave
ment width will aid materially in relieving the present traffic
congestion in the Central Core. However, as traffic volumes
continue to increase and thus saturate the streets in excess of
their normal capacity, a belt loop of limited access will be neces
sary to provide adequate traffic circulation around and into
the core area. This belt system, as shown in Figure 10, should
be located in the vicinity of 5th Avenues North and South and
10th Street, with appropriate interchanges at the major inter
secting streets.
The south leg of the belt system, as now proposed by the
State for inclusion in the current federal program of interstate
expressways, will follow close to 5th Avenue South from 9th
Street eastward. The right-of-way will vary somewhat in width,
but will average 150 feet. The west and north legs of this future
expressway around the Central Core will run approximately
along 10th Street between 5th Avenues North and South, and
eastward just north of 5th Avenue North. It will be necessary
to acquire additional right-of.way along the west side of 10th
Street and the north side of 5th Avenue North.
Although it is anticipated that the south segment of this
expressway will be financed through interstate funds, the City
must recognize that the remainder of this necessary expressway
will have to be financed through other than primary State
or Federal funds. The section titled “Expressway Authority” is
a proposal for a Special Act in the next Legislature to establish
a St. Petersburg Urban Area Expressway Authority similar to
that Authority now operating in the Jacksonville area. It is
recommended that the north and west segments of the belt loop
system be a project of such an Authority, as a means of expe
diting the plan.
It is recognized that another expressway through the City,
other than the possible North-South Federal Interstate Express
way, will be needed from the central core area extending in a
northwesterly direction to possibly connect with the new im
provement on Tyrone Boulevard as part of Alternate U. S. 19.
It is recommended that this future expressway leading westwards
from the Central Core into the heavily populated urban area
be connected to the belt loop expressway around the Central
Core by an interchange somewhere in the vicinity of 5th Avenue
North.
The relationship of these expressway routes should be care
fully explored, through liaison among the City, County, State,
and Federal technicians. It is suggested that the Expressway
Authority be given the responsibility of determining all details
of these expressways other than the Federal route, using local
technical resources and having an executive director to expedite
the program.
Page 19
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The Pedesh Ian
Streets serve two primary purposes: they are organizing ele
ments along which are located structures and open-air uses
serving human activities, and second, they are the means of
channeling and moving the ever-increasing stream of vehicular
and pedestrian traffic. Unfortunately, these functions are not
now in accord in St. Petersburg for the best utilization of our
downtown streets. In fact, these functions are in direct opposi
tion to each other when considering vehicular and pedestrian
movements. The constant flow of automobiles, trucks and buses
interferes with people getting about freely, while at the same
time, pedestrian movement interferes with these vehicular move
ments.
It is necessary to separate, where possible, pedestrian traffic
from vehicular traffic, when these opposing modes of circulation
come into too great a conflict. Our wide pavements and short
blocks create an even greater problem than in those cities with
longer blocks in their Core area. First, our many senior citizens
move slowly and cross the opposing vehicular traffic streams at
closer intervals than in many cities. It is not uncommon to note
the elderly person who is only half-way across the street when
the signal light changes, who cannot move fast enough to clear
the intersection for a proper vehicular flow to maintain platoon
movements which would expedite cars through this area of the
City.
Central Avenue carries the greatest pedestrian load within
the Central Core, and, with its intersections, has reached the
crucial stage in the struggle between methods of movement. It
will be essential to devise a system of separating the pedestrians
from vehicles on this avenue between 1st and 9th Streets. In this
stretch of Central Avenue, approximately 4,000 feet long, a
pedestrian mall, closed to all vehicular access except for
emergency vehicles, is proposed. Major north-south streets would
continue to provide vehicular crossings on Central, as shown on
Figure 11. Such a mall could contain such features as covered
walks, sheltered sitting areas, open courts, sidewalk cafes, exhibit
and display areas, newspaper and magazine kiosks, pools, foun
tains, statues, and green areas of bright-colored flowers and trees.
Through a minor easement, a second-story plaza can be erected
by the merchants along this mall. However, this plaza should
permit as much sun as possible to shine through to the then
sheltered mall area.
This pedestrian mall should not be undertaken until 1st
Avenues North and South have been completed and tried for
some time as a system of one-way streets into and through the
Central Core, until transit routes have been re-established onto
the 1st Avenues, and until an equivalent area of off-street parking
has been provided. Before it is decided to test this mall system,
such vitally interested organizations as the Merchants’ Associa
tion, Downtown Progress, Incorporated, and the Committee of
100 of the Chamber of Commerce should collaborate to decide
exactly when this step should be taken, and in what manner.
Tampa’s merchants, together with City officials, have decided
to test just such a mall for a part of Franklin Street, during the
next Christmas Season.
Alleys in the vicinity of Central are used extensively for
pedestrian movement. It is suggested that the alleys north and
south of Central be given a “dressing up” job, and that use of
these two alleys by vehicles be discouraged during the principal
daylight hours. Certain sections of these alleys will be compara
tively easy to convert to pedestrian traffic, and arrangements
should be made with truckers using these sections whereby they
would occupy space in the alleys for a gradually lessening amount
of time during the daylight hours.
Another eye-appeal to the visitor or businessman in the
Central Core would be a stepped-up program by Florida Power
Corporation and by General Telephone Company for placing
their utilities in conduits underground. This one step would
give an immediate clean appearance to this Core.
The advent of one-way streets will mean higher speed for
vehicles, with an even greater problem than now exists for the
slow-moving pedestrian crossing at corners. At major crossings
of 1st Avenues North and South, and of 3rd and 4th Streets,
raised pedestrian islands should be constructed at the time these
streets are opened for one-way movement. This one-way pattern,
with its resultant higher speeds, will also mean that it will be
difficult to park on these streets, both to the parking vehicle and
to the moving lane of traffic. It is urged that all on-street parking
on 4th Street within the Central Core be removed at the time
this one-way system is put into effect.
Another relatively minor point of pedestrian conflict with
vehicular traffic is recognized on 5th Street North from the alley
north of 1st Avenue North to 2nd Avenue North, between the
County and Municipal Buildings. Figure 12 details the method
of development of what might be termed Attorney’s Mall. There
Page 21
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is a great deal of foot traffic between these two governmental
buildings, and there will be a great deal more in the future as
Pinellas County takes on urban characteristics. Some means of
complementing these buildings and their activities should be
created, and this mall could be a first step.
With the creation of Central Mall, certain minor streets be
tween 1st Avenues North and South, and Central, will be avail
able as parking streets. It is recommended that the blocks be
tween 1st Avenues on 5th Street be converted into a parking lot.
Also, the creation of one-way streets will clearly show those
other streets which are of a nature other than primary carriers
of vehicular traffic. Among these is 3rd Avenue North from the
Bay westward to the Library. As the Planning Department
recommended in its report of January, 1955, it is suggested that
such a street can be converted from primarily a vehicular street
into a parking street. The application of head-on parking, or 600
parking, rather than parallel parking, will give many more
parking spaces.
Other pedestrian and vehicle conflicts may emerge as the
new traffic pattern evolves. It should be kept in mind that the
City will be studying this system for its faults and correct flaws
as they emerge.
Proposed Parking and Loading Facilities
It is difficult to make an exact determination of future park
ing requirements for various land uses, as study reveals consid
erable variation of need for similar business types in different
cities. Local shopping facilities, business practices, local trans
portation habits, especially the degree to which public transit
is utilized, and even the manner of operation and rates charged
by existing public and private parking facilities influence the
demand and need for parking spaces.
There are basically four categories of parking for which
accommodations must be provided. Each of these types has
specific characteristics and requirements. These types of parking
are summarized and follow.
3
types and Distribution of Parkers
Parkers discharging and/or receiving passengers and goods. This
type of parking space is generally referred to as a loading space.
The principal needs for such spaces have in the past been served
by area on the street itself, rather than off-street as is being re
quired by the Zoning Ordinance for most areas of the City. Prin
cipal users of such areas are the public transit buses. Minor
users are most other enterprises within the Central area, including
many residential sections. It is recomemnded that this use of
public street be limited as it is an encroachment into use of the
streets for the movement of traffic and storage or parking of
vehicles. Many cities charge an annual rental fee for such spaces,
in the same way a taxicab company would pay an annual lease
for the privilege of having an area of street reserved for their
use. It is recommended that there be immediately instituted an
annual charge for such spaces, and that the number and loca
tion of such spaces be at the determination of the Traffic Engi
neer.
Later in this report there is a recommendation for a transit
terminal, in relation to acquisition of present railroad properties.
Such a terminal will to some degree relieve the amount of curb
space that is presently consumed by public buses. The removal
of the railroads will also bring about relief to a small degree in
that some of the heavier trucking operations into the Central
Core will be eliminated. Also, the proposed new zoning ordi
nance specifies requirements for off-street parking and loading
spaces on properties in the Central Core. This provision will,
over a period of years, gradually up-grade the off-street loading
situation to a point where many present on-street private loading
areas can and should be eliminated.
Short-time or errand parkers. This type of parking, usually for a
quick run in to a place of business, requires half-an-hour or less
of parking time per vehicle. Convenience is of major importance
to this group, and closeness to the point of patronage most desir
able. Perhaps best illustrative of this type of parking are the
on-street windows or boxes for mail and bank deposits, and the
parking at such facilities as the Post Office and Municipal Build
ing. The closer-in curb parking area that will remain after
adoption of other elements of this plan should be used primarily
for this errand-type of parker.
Shopper and patron parkers. This group includes business cus
tomers and professional clients who park for one or more hours.
Although this group also desires accommodations close to the
stores and offices which it patronizes, immediate proximity is
not often possible or quite so important and off-street facilities,
if properly located, will best serve their requirements, rather
than the limited on-street parking facilities. It should be kept
in mind that this group of parkers will not come to the Central
Core unless they can be assured of convenient parking areas. It
is for this type of parkers that the principal close-in parking
lots and garages are planned.
Page 23
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Employee or other all-day parkers. This group also desires con
venience but should be dissuaded from using parking facilities
needed for the customers who support the business district. All.
day parking uses should be located in marginal areas at the edge
of the Central Core. The large parking lot which will be neces
sary to serve the Civic Center on the northwestern boundary of
Mirror Lake will provide a perfect area for all day parkers.
Future Parking Requirements
The Origin-Destination Survey conducted by Fred Bell &
Associates in 1957 indicated that on an average working-hour
week-day, approximately 30,000 motorists bound for the Central
Business District seek parking spaces. Based on an anticipated
increase of 50% in downtown traffic, it follows that the CBD
destinations and parking demand will increase proportionately,
thus indicating a need for accommodating approximately 45,000
vehicles in 1980 in both on and off-street parking facilities.
Proposed off-street facilities. The general plan for off-street parking
facilities to serve the central core is included on the Proposed
Land Use Plan. Only the existing major parking areas have
been indicated along with the new, although it is anticipated
that most of the smaller facilities will be retained or replaced
in nearby locations as part of the natural building processes
within the district. The proposed new facilities include:
1) Two new, multi-story parking garages on the north side of
1st Avenue South. One to be on the west side of 5th Street
South (as recommended in the Ramp Report); the other to
be on the existing parking lot on the northeast corner of 1st
Avenue and 4th Street South. These structures should accom
modate 350 and 320 cars respectively and be designed pri
marily for self-parking, in order to expedite movement into
these facilities and cut costs of operation. Alternate sites for
these structures might be: the present parking lot on the
southeast corner of 1st Avenue and 6th Street South; the
southeast corner of 1st Avenue and 4th Street South.
2) Expansion of the Municipal Parking Lot on Mirror Lake
Drive at 6th Street North, to include the three lots to the
south on the northwest corner of 6th Street and 1st Avenue
North, for direct connection to 1st Avenue North, as a major
traffic-carrying street.
3) Expansion of the City-owned facilities on the north side of
2nd Avenue North, to include the two lots between the
metered areas and the lot on the northeast corner of 2nd
Avenue and 5th Street North. This site could be utilized for
expansion of the Municipal Building.
4) Expansion of the privately owned lots on the north side of
2nd Avenue North between 1st and 2nd Streets and 2nd and
3rd Streets to double their present capacity.
5) An adaptation of the original Blueprint for Tomorrow pro.
posal for a Parking Mall between 2nd and 3rd Avenues South
to include the blocks from 9th Street to 7th Street and 6th
Street to 3rd Street retaining the Chamber of Commerce and
Tourist Center buildings and permitting their expansion.
6) An increase in the existing parking facilities near the south
east corner of 3rd Avenue and 1st Street North. This expan
ion would replace several sub-standard structures now located
on this site.
7) A new parking area on the south side of 1st Avenue North
from 8th Street eastward to approximately 400 feet east of
7th Street.
8) Five new, large parking lots on the outer limits of the core
area to accommodate all-day parkers. Although these lots.
will be located two or three blocks beyond the desired maxi
mum walking distance from the parkers’ destination, the
low rate which will be charged will compensate for the added
walking distance. In addition to all-day parkers, the two
lots located north and west of Mirror Lake will also accom
modate the parking needs of the Civic and Cultural Center
proposed for this area. A strenuous campaign should be
undertaken to have all-day parkers take the bus or pool cars.
Their cars are strictly a storage problem that can be lessened.
Facilities for the Yacht Basin. The proposed Yacht Basin improve
ment plan includes parking facilities for approximately 750 to
1,000 cars on the South Mole and an additional 100 spaces on
the breakwater adjacent to the Senior Citizens’ parking lot.
Additional off-street parking will become available as the
low density, marginal to sub-marginal properties in the Central
Core are replaced by more intensive development in those areas
where off-street parking facilities are required as a necessary
adjunct to the improvement.
Curb parking. In recent years, the need for expeditious movement
of traffic has been a dominant factor in the decline of on-street
parking space in the Central Core. The creation of pedestrian
malls and open areas will eliminate even more curb spaces.
However, these will be replaced by additional off-street facilities.
It would appear reasonable to expect further losses of street
space in the future because the exigencies of traffic movement
Page 25
demand it. As has been stated earlier in this report, certain
streets such as 3rd Avenue North will be “dead” to vehicular
traffic and should be considered primarily parking areas where
added spaces can be obtained immediately by redesigning the
system of parking.
Parking Program
The business district of the Central Core is in immediate
need of additional off-street parking facilities. The provision
and operation of these facilities, the method of financing, the
administration of a long-range parking program, and a proposal
for the creation of a Parking Authority, are herein presented.
Financing the Program
There are several methods of financing the proposed parking
program.4
Revenues derived from parking meters. This system might finance
all or part of the land acquisition and construction costs. The
short-time, or errand, parkers who pay for the privilege of using
the most desirable curb parking spaces would pay in whole or in
part for the provision of off-street parking facilities for shopper
and business parkers whom they displace.
General funds or the issuance of general obligation bonds. Although
each method places the financial burden on the whole com
munity, general obligation bonds, with the credit backing of
the entire municipality, command low interest rates. These
low rates may materially influence the cost of the enterprise.
The issuance of revenue bonds. The interest rates on these bonds
are flexible, depending on the financial risk involved and the
method of repayment. If the only source of payment is the
income derived from the parking facilities, the entire financial
burden is placed on the user of the facilities—the off-street
parker.
Special Assessment District. This district, sometimes called a Special
Benefit District, charges all or part of the cost for improvement
against the benefited properties. Under this method, the prop.
erty owners, who benefit most from the parking facilities, would
bear part or all of the financial burden.
The special assessment system alone or in combination with
one or more of the sources of income discussed, appears to be
the most feasible means of financing the proposed parking pro
gram in the Central Core area. In addition to other factors
which may be determined as necessary by the Parking Authority,
the assessments would be pro-rated on the basis of proximity to the
Page 26
parking areas, square footage of usable floor area, intensity of
use, and existing parking facilities.
Provision and Operation of the Facilities
The provision and operation of the proposed facilities may
be accomplished through the Municipality, by merchant groups,
commercial operators, or through the cooperation of two or all
of these agencies.
The City, with four metered parking lots and metered curb
spaces, is already in the parking business. The City also has the
power of eminent domain and, when necessary in the public
interest, can use condemnation procedures for land acquisition.
The provision and operation by the City of such facilities will
tend to insure continuity of service and will also allow the loca
tion and scheduling of improvements according to a general
plan. Therefore, it is only logical that the government provide
and operate some part of the facilities which are, essentially, for
the use of the general public, and necessary for revitalization of
the Central Core as a functioning element of the community.
Administration of the Program
Proper administration of the parking program is essential if the
objectives of such a program are to be realized. The creation of
a Parking Authority through proper legislation is recommended
to administer the program. Members of the Authority should
be appointed by the City Manager, with confirmation by City
Council and should include the Traffic Engineer, the Planning
Director, a member of the Planning Board, the Chief of Police,
at least two prominent downtown businessmen, and two down
town property owners. In addition to its task of establishing
administrative policy, the Authority should be empowered to
establish a special assessment district, to make recommendations
on the assessment rates, and to schedule improvements and park
ing fees for the new facilities.
Transit Facilities
Twenty-three municipal transit routes radiate from the
Central Core to serve the urban area of St. Petersburg. This mode
of public conveyance is used extensively and transports 25,000 to
50,000 persons per day, depending on the season. Over 90%
of the total passengers carried by the municipal transit system
originate in, or are destined for, the Central Core. Although
the present routing adequately services the core area, the need
for better terminal facilities and proposed changes in the traffic
pattern will necessitate revision of existing transit routes.
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Proposed Transit Terminal
Under the program for removal of railroad facilities from
the Central Core, the City will acquire the ACL Passenger Sta
tion and other railroad property. In order to best serve the
public interest, it is proposed that this station be used as a termi
nal for all Municipal Transit System routes and for those miscel
laneous public-franchised transit operations serving fringe areas.
This conversion could be accomplished at a minimum of expense
and remodeling in the initial stage, although new canopies or
shelters would be needed for the loading areas in the future.
The present terminus for much of the transit system is
Williams Park or vicinity and the conjestion attributed to transit
vehicles and passengers detracts from the park’s aesthetic and
recreational functions. The limited space necessitates the spread
ing of loading zones along two sides of the park and although
several shelters are maintained, all the loading area along 4th
Street North is unsheltered. The relocation of the transit termi
nal to the Atlantic Coast Line site would provide adequate
shelter against the most adverse weather conditions and provide
comfort stations for the passengers and drivers. It would allow
the consolidation of three separate transit offices and also pro
vide space for City functions related to transit operation. This
new location would be much more adaptable to the one-way
street system proposed for the Central Core than the present
facility.
Proposed Intermediate Transit Routing
The effectuation of a one-way street system and the possible
relocation of the bus terminal will necessitate the revision of the
transit routing system in the core area. Such a revision is indi
cated in Figure 13, Proposed Intermediate Transit Routing Map.
This routing system would utilize the one-way streets to best
advantage and actually provide more complete coverage of the
Central Core, while freeing certain areas from transit use.
Ultimate Transit Routing System
The adoption of the proposed belt loop expressway system
around the Central Core and the incorporation of pedestrian
malls will require an ultimate plan for the rerouting of bus lines
to conform with these changes in traffic circulation. The Ulti
mate Transit Routing Plan is depicted in Figure 14. This plan
follows the expressway system where adaptable and services the
core area most adequately. It also utilizes the ACL Passenger
Station as the transit terminal and provides a shuttle bus service
between the CBD and the major peripheral parking areas.
Page 28
Expressway Authority
The need for a network of expressways and limited access
highways to expedite traffic within and between the metro
politan areas of Pinellas County and the 1arger Tampa Bay
metropolitan complex, has long been recognized. However, the
wherewithal of financing these projects has not been determined.
Federal assistance will probably be available for part of this
system and a north-south expressway from the Third Bay Bridge
to the core area of St. Petersburg is being studied for possible
inclusion in the Federal Aid Interstate system by the State Road
Department.
In order to hasten and coordinate an expressway and limited
access highway system in the County, it is recommended that an
Expressway Authority be established through proper State Legis
lation, and authorizing the transfer of all powers, jurisdiction,
and controls vested in the Florida State Improvement Commis
sion in Pinellas County to the Authority, and that the Authority
be empowered to issue revenue bonds and establish and collect
tolls and devise other means of financing a limited access high
way system.
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PRIORITIES FOR ACTION
STAGE
I—Target Date for Completion
—
Fall of 1959
Designation of 3rd and 4th Streets as one-way alter
nates from 13th Avenue South to 5th Avenue North
and 4th and 5th Avenues North from Beach Drive to
4th Street.
Legislation for Expressway and Parking Authorities.
Establish City policy for provision of off-street parking and designate parking facilities to be City oper
ated and those which will be provided by private enterprise. All proposed parking garages should be
provided by private enterprise.
By this time expansion and renovation plans by private enterprise should be co-ordinated with the sched
uling of public improvements.
Start clean-up campaign for alleys between Central
and 1st Avenues North and South.
Specific plans for the renovation and improvement
of the Waterfront Parks and recreation areas.
STAGE Il—Target Date for Completion
—
Fall of 1960
Establish 1st Avenues North and South as one-way
alternates,
Include funds necessary for parking program in
1959-60 City Budget.
First parking garage to be provided by private en
terprise.
City should review and reduce curb loading spaces
and establish an annual fee for these uses.
Page 30
STAGE Ill—Target Date for Completion
—
Fall of 1962
Establish 8th and 9th Streets and 4th and 5th Ayenues South as one-way alternates in compliance with
the one-way street plan.
Establish new transit routing system to conform with
one-way street plan and use of ACL Passenger Sta
tion as a bus terminal.
Experimental closing of Central Avenue for Pedes
trian Mall and expanded street tree planting program.
All proposed parking garages.
Shopper and patron parking areas on the fringes of
the C.B.D. and all-day parking facilities should be
expanded.
Acquisition of Civic Center site and area needed for
Municipal Building expansion should begin.
Adoption of policy prohibiting vehicular traffic in
alleys between Central and 1st Avenues North and
South during principal day-light hours.
.
By this time plans for major renovation and ex
pansion of private enterprise should be firmly estab
lished and under way.
The many small governmental and welfare agencies
requiring a central location should be incorporated
into an office building within the Civic Center.
STAGE IV—Target Date for Completion
—
Fall of 1965
Completion of Interstate Expressway System in St.
Petersburg including the south leg of the Belt-Loop
System. The right-of-way for the remainder of the
Belt-Loop should be acquired.
By or before the winter season of ‘65, Pedestrian Mall
on Central Avenue should be completed in its entirety.
By this time all major properties should be in com
pliance with the minimum off-street parking and
loading requirements provided in the revised Zoning
Ordinance.
New structure for the transit terminal at the present
ACL passenger station.
Attorney’s Mall should be completed and in use.
Renovation plans for existing facilities in the waterfront recreation areas should be completed, and the
beach facilities proposed for North Shore Waterfront
Park should be in use.
The Civic Auditorium and necessary parking areas.
The Central Yacht Basin improvement and proposals
for development of the South Mole.
Expansion of the Municipal and County Buildings.
All City maintained parking facilities should be in
operation.
STAGE V—Target Date for Completion
—
Fall of 1975
Operation of Belt-Loop Expressway.
Operation of the Expressway from the CBD to the
Northwest urban area (via Tyrone Boulevard).
Major buildings in the Civic Center.
All proposed improvements for the Waterfront Parks
and recreation areas.
The plans and proposals for improving the Central Core
can become reality only by the adoption, support, and continued
cooperation of public, civic, and private interests. Without such
coordination of interests, no plan can be successful.
Page 31
FOOTNOTES
American Society of Planning Officials, Planning Advisory Se,vice—”Programs For
Central Business District Improvement.” (Chicago, November, 1955). 21 pp.
U. S. Department of Commerce, Central Business Districts and Their Metropolitan
Areas: A Summary of Geographic Shifts in Retail Sales Growth, 1948-54.
(Washington, November, 1957). p. 1.
Cincinnati City Planning Staff, The Cincinnati Central Business District Space Use
Study. (Cincinnati, Ohio, August, 1956). 13 pp.
St. Petersburg Planning Board, Minutes. (St. Petersburg, June 20, 1957). p. 2.
City Planning Division—Board of Public Land Commissioners of Milwaukee, Down
town Milwaukee—I 975. (Milwaukee, May 1, 1957). 52 pp.
Bartholomew, Harland and Associates, Report Upon The Central Business District.
(Columbus, April, 1955). p. 23.
Denver Planning Office, Central Area Land Uses—Reasons for Location and
Change. (Denver, March, 1957). 70 pp.
New York Department of Commerce, Solving Parking Problems: A Guide To Com
munity Action. (New York, 1950). p. 26.
Harland Bartholomew and Associates, A Report Upon the Central Business District—
Columbus Urban Area. (Saint Louis, April, 1955). 45 pp.
Parsons, Brinckerhoff, Hall and MacDonald, City of St. Petersburg, Florida—
Municipal Yacht Basin Master Plan. (New York, August, 1957). 13 pp.
Page 32
SELECTED BtBLIOGRAPHY
Public Parking Authority of Pittsburg, The First Ten Years, 1947-57. (Pittsburg,
October, 1957). 15 pp.
American Society of Planning Officials, Planning Advisory Service—”Civic Center
Planning.” (Chicago, February, 1956). 38 pp.
Ramp Building Corporation, Parking Survey and Program, Central Business District,
St. Petersburg, Florida. (New York, December, 1956). 56 pp.
American Society of Planning Officials, Planning Advisory Service.—”Municipal
Auditoriums and The City Plan.” (Chicago, October, 1949). 21 pp.
State Road Department of Florida, The Interstate System in Florida. (Tallahassee,
1957). 12 pp.
American Society of Planning Officials, Planning Advisory Service—”Municipal
Provision of Parking Facilities.” (Chicago, October, 1952). 18 pp.
University of North Carolina, Department of City and Regional Planning, The
Central Business District in Transition. (Chapel Hill, May, 1957). 44 pp.
American Society of Planning Officials, Planning Advisory Service—”Parking Fa
cilities, Central Business Districts.” (Chicago, November, 1949). 9 pp.
Victor Gruen and Associates, St. Petersburg Central Business District Study. (De
troit, 1957). 55 pp.
TOWARD A MORE VITAL CENTRAL
•R
•
f commercial, residential and public and semi-public
LAND USE PL.AN for Better organization 0
activities.
•
ONE-WAY STREET PLAN to relieve traffic tie-ups, using existing streets and right-of-way.
•
BELT-LOOP EXPRESSWAY
•
EXPRESSWAY AUTHORITY
•
PARKING PROGRAM
District.
•
PARKING AUTHORITY
Program.
•
PEDESTRIAN MALL
•
IMPROVED MASS TRANSIT SYSTEM.
•
PARKS & RECREATIONAL AREAS
tional potential.
•
CIVIC CENTER
•
A more attractive and vital Central Core through coordinated action of civic, public, and private
interests.
—
—
—
—
—
—
Elevated, limited access highway to service core area.
established by special State Legislation.
provide and finance additional off-street facilities through Special Assessment
also through special act; to establish assessment rates and administer Parking
for on-foot traffic only on Central Avenue between 1st and 9th Streets.
—
renovation and organization of uses to realize greatest recrea
Site for a Municipal Auditorium, Central Office for social and welfare agencies, etc.
City Planning Department
175- 5th Street North
St. Petersburg, Florida