INTRODUCTION
	PROJECT OVERVIEW
	THE CITY OF ST. AUGUSTINE     HISTORICAL OVERVIEW                Project History		SOCIAL AND ECONOMIC DEMANDS     FUTURE LAND USE PLAN                 Planning Context     TRANSPORTATION SYSTEM LINKAGE     CAPACITY AND DEMAND                 Two Lane Versus Four Lanes Analysis SUMMARY OF NEEDS     IMPORTANCE OF THE BRIDGE OF LIONS     STRUCTURAL AND FUNCTIONAL DEFICIENCIES     NAVIGATIONAL AND VEHICULAR SAFETY ISSUES
	CHARACTERISTICS OF THE BRIDGE OF LIONS     STRUCTURAL CONDITION                Recent Maintenance History     DESIGN DEFICIENCIES     SAFETY AND EVACUATION     NAVIGATION                Channel Data                Ship Traffic                Ship Impacts

INTRODUCTION

The historic Bridge of Lions is an integral part of both the St. Augustine and eastern St. Johns County transportation system. Economically, the bridge provides a critical link between Anastasia Island and the historic downtown area, which comprise the tax bases for the city. Maintaining this important crossing is essential to the continued success of emergency evacuation measures on Anastasia Island and to the economic stability of historic St. Augustine and the surrounding environs.

The purpose of this Environmental Impact Study is to evaluate ways to solve the existing substandard condition of the Bridge of Lions. The bridge is listed by the FDOT as being structurally deficient and functionally obsolete, and is subject to constant repair leading to the current weight restrictions being placed on the bridge. Other deficiencies in load carrying capacity result from research on structural behavior which lead to changes in design rules. Additionally, the Bridge of Lions’ navigational clearance does not meet the U.S. Coast Guard guide channel clearances.

PROJECT OVERVIEW

This Final Environmental Impact Statement (FEIS) has been prepared and submitted to obtain location and design concept acceptance for the Bridge of Lions in St. Augustine, St. Johns County, Florida (refer to Figure 1-1). The Bridge of Lions carries S.R. A1A over the Matanzas River/Intracoastal Waterway. The limits of the project are approximately 0.5 kilometers (0.3 miles) and include the bridge and its approaches. The project extends from downtown St. Augustine to Anastasia Island (refer to Figure 1-2).

This FEIS and its supporting documents have been prepared pursuant to and in accordance with 42 U.S.C., 4332(2)(c), Title 23 U.S.C. 128, Title 33 U.S.C., Title 16 U.S.C. 470, and the National Environmental Policy Act (NEPA) of 1969.

Figure 1-1: Vicinity Map - (click to view)

THE CITY OF ST. AUGUSTINE

The economic base of St. Augustine is heavily dependent upon its traditional atmosphere, historic attractions and scenic parks. Tourism is a major industry. As shown on Figure 1-2, the major portion of the St. Augustine historical area and central business district lies between the San Sebastian River on the west and the Matanzas River (Intracoastal Waterway) on the east. West of the San Sebastian River are residential areas and a commercial district along U.S. 1. East of the Matanzas River lays a residential area on Anastasia Island, served by a commercial strip along Anastasia Boulevard (S.R. A1A) extending to the southern city limits. Farther south along Anastasia Boulevard are major recreational facilities such as Anastasia State Park and the St. Augustine beaches.

The Bridge of Lions plays an integral part of the economic stability of the region, serving as the transportation connection between historic St. Augustine and Anastasia Island, and is considered by many to be a tourist attraction in its own right.

Figure 1-2: Location Map - (click to view)

HISTORICAL OVERVIEW

Located in the east central portion of St. Johns County, Florida, the City of St. Augustine is rich in historic significance. It was colonized by Don Pedro Menendez de Aviles in 1565 under orders from King Phillip II of Spain, and is the oldest continuous European settlement in North America. Just outside the old city gates stands the Spanish fortress Castillo de San Marcos, a National Monument. Begun in 1672, the fort is the oldest existing masonry fort in the United States. In the 1880's, Henry M. Flagler developed the town as a major tourist resort; his vision began the “golden era” for St. Augustine. During this time, St. Augustine was noted for its temperate climate and unique ambiance, offering wealthy travelers golfing, yachting, and leisurely enjoyment of the beaches.

The citywide fires of 1887 and 1914 destroyed much of the historic attributes of Flagler’s St. Augustine. Despite this destruction, the city retained many features of its long and colorful history and became a center of colonial Spanish culture and an important tourist destination for the State of Florida. An ongoing preservation effort has meticulously restored many colonial structures to their original appearance.¹

The Bridge of Lions replaced an older wooden toll bridge built in 1895. After major renovation in 1904, the wood bridge accommodated an electric trolley line. Due to the increase in automobile traffic and a desire to remove an ”eyesore”, work began in 1925 to build a modern, high-quality bridge that would complement the city. The Bridge of Lions opened to traffic in 1927 and connects the historic downtown business district with Anastasia Island. The bascule drawbridge opens to allow the passage of commercial and recreational boats. In 1982, the Bridge was listed on the National Register of Historic Places.

The downtown area has been designated a ”National Historic Landmark”. This designation is made to “encourage the long range preservation of nationally significant properties that illustrate or commemorate the history and prehistory of the United States”. ²

Project History

The traffic environment has changed significantly since the 1927 opening of the Bridge of Lions. Over the years, the corrosion of salt water and the burden of carrying millions of cars across its spans has substantially deteriorated the bridge. In 1974, the City of St. Augustine began a study to improve the traffic capacity of the Bridge of Lions. The study was completed but the project did not progress beyond this phase due to insufficient funding. During the 1970's, over $2.2 million in substantial mechanical and structural repairs were made on the bridge by the Florida Department of Transportation (FDOT), temporarily improving its safety and reliability of operation as well as replacing or supplementing some of its deteriorated structural components, thereby altering its appearance.

In 1981, the FDOT initiated a routine inspection of the bridge. The inspection found problems at the underwater pilings and piers and recommended the bridge be replaced. However, further studies into replacing the bridge were halted due to public opposition and controversy. Instead, effective repairs were implemented and the bridge rating was limited to a maximum 30-ton load. The FDOT continued to monitor the structural condition and the traffic growth rate on the Bridge of Lions and the load limit was later downgraded to 15-tons. In 1990, after growing concerns about the condition of the aging bridge and upon request by the St. Augustine City Commission (see Exhibit A-1 in the Appendix), the FDOT began new studies into rehabilitation and/or replacement alternatives.

CHARACTERISTICS OF THE BRIDGE OF LIONS

Continuing its role since opening, the Bridge of Lions provides an important crossing of the Matanzas River connecting historic St. Augustine and the north section of Anastasia Island. It is a designated emergency evacuation route for Anastasia Island, providing a vital link to safety and ready access for fire and rescue units. Figure 1-3 provides a photograph of the bridge as it exists today.

Click the image to enlarge Figure 1-3

The bridge is considered historically important on local, state and national levels and is strongly associated with the City of St. Augustine by both residents and tourists. The striking architecture of the bridge is considered an important component of the fabric of the city; the bridge towers are prominent in every skyline rendering of St. Augustine. The bridge light poles fly decorative and ceremonial flags periodically throughout the year to mark major holidays and special events. The following photograph depicts the bridge commemorating the 1996 passage of the Olympic Torch through the historic city on its way to Atlanta, Georgia.

Above: The Bridge of Lions commemorates the 1996 Olympics.

Economically, the bridge provides a critical link between Anastasia Island and downtown, thus connecting the two parts of the city’s tax base. Without this crossing, the social and economic stability of the region could be damaged.

STRUCTURAL CONDITION

Illustrated on Figure 1-4, the roadway on the two lane bridge is 22 feet (6.7 meters) wide and has 5 foot(1.5 meter) sidewalks on both sides. An aluminum post and railing system is used as a combination vehicle/pedestrian traffic railing along the entire length of the bridge. In its existing condition, the Bridge of Lions consists of 23 steel girder spans (16 of which are arched) and one double leaf rolling bascule channel span. The structure is 1545 feet ( 471.0 meters) long and has an overall deck width of 35 feet (10.8 meters). The bridge rests on untreated timber piles, covered at the mud line by reinforced concrete piling caps. The reinforced concrete piers rest on these piling caps and support the steel girder spans. The bridge deck is constructed of reinforced concrete supported by steel floor beams and the bascule piers are protected by a timber fender system. The charted horizontal navigational clearance is 76 feet (23.2 meters); the horizontal clearance from fender to fender is 79.5 feet (24.2 meters). The bridge’s minimum midspan vertical clearance is 24 feet (7.3 meters) at mean high water (MHW). The Bridge Tender’s office is located on the north side of the east bascule pier, while the draw span controls are located on the north side of the west bascule pier.

Figure 1-4: Existing Typical Sections - (click to view)

The FDOT lists the bridge as being structurally deficient and functionally obsolete. With a low sufficiency rating of 2.0 out of a possible 100, with 100 being in pristine condition, it is a prime candidate for replacement under the FDOT bridge replacement program. As part of this environmental impact analysis, an extensive inspection of the existing bridge was completed by FDOT. This inspection included a detailed analysis of the superstructure, substructure, and the mechanical and electrical systems on the bridge. Divers were employed to inspect the piers below the waterline and on some piers below the mudline to examine the timber piles. In addition, a geotechnical evaluation, including scour analysis, was completed. The inspection revealed advanced corrosion damage in portions of the superstructure requiring the replacement of a minimum of seven spans nearest the bridge ends and implementation of weight restrictions on the bridge. Deterioration has also impacted the mechanical and electrical equipment, both of which are nearing the end of their useful lives. The substructure deficiencies above the foundations are mostly superficial, with the exception of the east abutment where the bearing seats have failed. Other deficiencies in load carrying capacity arise mostly from changes in design rules for steel members brought about by research on structural behavior since the bridge was built.

As shown in the following photographs, the bridge piers are covered with marine growth and the original concrete is cracked and spalled. Scour was observed at nine of the 24 piers with severe localized scour and damaged piles apparent at Pier 4. Evidence of damaged piles was also noted at Pier 5. In addition, Piers 8 and 9 were determined insufficient to carry new design loads. Consequently, these four piers will require extensive foundation work and, in addition, extensive scour protection is needed for the entire bridge. All of the above mentioned deficiencies reduce the safety of the structure. In addition, the vehicular service is considered deficient.

Above: Deterioration of Pier 7 as evidenced by the cracked pedestal.

Above: Major cracks in concrete abutment.

Above: Evidence of bridge spalling to concrete piling.

RECENT MAINTENANCE HISTORY

The following chart summarizes the maintenance activities that have occurred on the bridge from 1996 through 2000.

DESIGN DEFICIENCIES

There are also several design deficiencies apparent with the bridge and its approaches. The horizontal roadway alignment at the eastern end of the bridge on Anastasia Boulevard (S.R. A1A) has a substandard curve. The charted horizontal clearance of the main channel is also substandard according to current U.S. Coast Guard guidelines. The existing 23.2 meter (76 foot) charted clearance is below the guide channel clearance of 125 feet (38.1 meter) for structures over the Intracoastal Waterway along Florida’s Atlantic coast. Table 1-2 shows the clearances of bridges north and south of the Bridge of Lions.

The existing two travel lanes are a narrow width of 10 feet 2 inches (3.1 meters). This width does not meet the current FDOT standards of 12 feet (3.6 meters). Moreover, the safety railings are all substandard. To meet current standards, the bridge requires crash-tested barriers and safety rails. Bicycle and pedestrian access is limited by available area and proximity to the travel lanes, with a high potential for vehicular collisions due to the inadequacy of safety railings and the absence of barriers.

Above: Bicyclists and pedestrians are not adequately protected from vehicles.

SAFETY AND EVACUATION

Despite efforts by the FDOT to improve unsafe conditions on the deteriorating structure, there have been a number of vehicular and pedestrian crash incidents on the Bridge of Lions and its approaches in recent years, including fatalities. Table 1-3 presents the most available statistics . Not shown on this table is a fatality that occurred in October 1999 when a bicyclist riding on the sidewalk, fell from her bike and into oncoming traffic where she was repeatedly hit.

While the structure and its approaches do not exceed statewide averages for crash rates, the railing system and other substandard roadway and pedestrian elements limit the safety of the structure. The width of the existing travel lanes do not meet the current standards of 12 feet (3.6 meters). In addition, the bridge does not have a refuge or breakdown area to accommodate traffic incidents. These deficiencies will cause problems in emergency situations. Providing improvements are expected to result in decreased traffic-related incidents on this bridge.

The Bridge of Lions is used in the evacuation plans for Anastasia Island. It provides a vital link to safety and emergency response for fire and rescue units. The operational problems with the drawbridge and frequent marine traffic, coupled with substandard horizontal clearances, all play a major role in the inadequacy of the bridge from a public safety perspective. With either of the four build alternatives, operation of the drawbridge will be more reliable.

In order to address these safety problems, the bridge requires rehabilitation or replacement. There are no “quick-fix” solutions to the identified safety problems.

NAVIGATION

As shown earlier in Figure 1-1, the bridge crosses the Matanzas River/Intracoastal Waterway approximately 6,000 feet (1,829 meters) south of the river’s confluence with St. Augustine Inlet and the North River. At the Bridge of Lions, the Matanzas River is bordered on the west side by a concrete seawall and on the east side by a small marsh overbank over which the east abutment was constructed.

The Matanzas River navigational channel bends 80 degrees to the east approximately 1,312 feet (400 meters) north of the bridge as it approaches the St. Augustine Inlet. Just south of the bridge the channel bends 30 degrees to the east. The river is approximately 1,600 feet (488 meters) wide at the bridge location and averages about 20 feet (6.0 meters) deep at mean low water (MLW). The deeper portion of the river at the bridge location lies in the eastern half of the river where depths average between 24 feet (7.3 meters) at MLW and 35 feet (10.6 meters) at MLW.

The U.S. Coast Guard will require a navigational permit for the project’s temporary bridge. As such, coordination with the U.S. Coast Guard has been on-going throughout the study of the proposed action; they are included as a cooperating agency for this FEIS.

Channel Data

The Intracoastal Waterway channel was authorized as a Federal Navigation Project in 1927 (refer to Figure 1-5). Since that time, no dredging has been required in the vicinity of the bridge to maintain the authorized minimum depth of 12 feet (3.6 meters) at MLW. Immediately north of the bridge, channel depths are more uniform. The deep channel is capable of conveying a significant amount of water to the western portion of the bridge during a hurricane flood event. These conditions create high velocities and produce significant scour.

Figure 1-5: Matanzas River Navigational Channel - (Click to view)

Ship Traffic

During the course of any given day, the bridge is required to open frequently to allow marine vessels safe passage. Regulations stipulate when the drawbridge shall open, if vessels are waiting to pass, only on the hour and half-hour from 7:00 a.m. to 6:00 p.m., Monday through Friday, with no openings at 8:00 a.m., 12:00 noon, and 5:00 p.m. due to peak roadway traffic. This same schedule, without the peak hour restriction, applies on Saturdays, Sundays, and legal holidays. The drawbridge must open at any time on signal for the passage of U.S. public vessels, tugs with tows, and vessels in distress.

In 1985, 209,000 tons of cargo were moved on the Intracoastal Waterway between Jacksonville and Miami. By 1997, that volume had increased to 424,000 tons. Over the past two years, the volume has almost doubled as indicated on Figure 1-6. Likewise, the cargo traffic passing through the bridge has also increased substantially over the past two years with preliminary estimates indicating 74,000 tons of cargo traversing under the Bridge of Lions.³

Figure 1-6: Tonnage Growth on Intracoastal Waterway - (Click to view)

Over the years there has not been a great increase in the number of vessels but there has been an increase in the size and width. Data taken from a 1995 boat traffic survey revealed that a substantial portion of the waterway traffic is comprised of fishing trawlers and taller pleasure and sport fishing craft and commercial marine craft, all of which require a vertical clearance over 25 feet (7.6 meters). The width of barges using the Intracoastal Waterway has increased from a standard 26 feet (7.9 meters) wide hopper barge in 1980, to include petroleum barges with widths greater than 60 feet (18.3 meters) today. Single petroleum barge tows currently exceed 300 feet (91.4 meters) in length.

Ship Impacts

Documented historic accident records have been reviewed relating to ships striking the Bridge of Lions. The causes of these accidents vary from mechanical malfunctions with the drawspan to the navigational restrictions in the channel, especially the limited horizontal clearance between the bascule spans. As summarized in Table 1-4, forty-four (44) ship impacts were recorded between December 1982 and May 2000 with total bridge damages estimated at more than $404,830 (not all cost damages were reported). The bridge has been struck more than any other bridge in the 7th Coast Guard District which includes the Atlantic Coast of Florida, Georgia and South Carolina.

A question raised at a public meeting held for this Bridge of Lions project concerned the contribution of operator error to the number of ship impacts. The most thorough investigation of an incident took place on October 6, 1995 and can be found as Exhibit F in the Appendix. The investigator identified local conditions, age and construction of the bridge as posing a significant hazard. Waterway users have identified the width of the navigational opening, and strong currents as hazards during transit. The United States Coast Pilot advises mariners approaching the Bridge of Lions, “caution is advised because the tidal currents, particularly ebb, run at right angles to the bridge. It is advisable to drift large tows through this opening with favorable currents”.⁴

SOCIAL AND ECONOMIC DEMANDS

Information from the Future Land Use Element and the Coastal Element of the St. Johns County Comprehensive Plan and the City of St. Augustine Comprehensive Plan was used to develop population growth rates within the project area of Downtown St. Augustine and Anastasia Island. Population trends have increased 5 percent annually between 1985 and 1998.⁵ Future population increases are predicted to level off due to the city essentially being built-out, with only ten percent of the vacant land available considered developable.

Conversely, tourism growth continues to increase, after an initial decline in 1990, at a rate of three percent per year. These figures further stress the importance of tourism as the primary economic factor for the region. The tourism statistics are based upon visitor records from the Castillo de San Marcos Fort and the Anastasia Island State Park. As previously shown on Figure 1-2, the Bridge of Lions is the transportation link between these two tourist attractions.

The St. Johns County Department of Emergency Services further emphasized the importance of maintaining the Bridge of Lions crossing in its letter to the FDOT (refer to Exhibit L in the Appendix). When asked their view with regard to rerouting Bridge of Lions traffic to the adjacent SR-312 bridge, Fire Chief McElroy stated that “to reroute traffic to SR 312 would have a negative impact on our ability to provide for the health, safety, and welfare of the community.”

FUTURE LAND USE PLAN

According to the St. Augustine Comprehensive Plan (dated 7/12/99), the future land use plan for the study area shows both residential and commercial land uses increasing on Anastasia Island. Opportunity for future commercial development does exist in the historic downtown area but in the form of infill development of vacant or underutilized buildings. Consequently, the future land use plan shows little change to existing land uses within the study area.

Figure 1-7 illustrates the City of St. Augustine’s Future Land Use Map. Section 3 of this environmental document delves into existing and future land uses in more detail.

Figure 1-7: Future Land Use Map - (Click to view)