Section 3

The Bridge of Lions is located in St. Johns County, Florida, in the City of St. Augustine. The bridge crosses the Matanzas River/Intracoastal Waterway and connects the downtown area with Anastasia Island. The Matanzas River is lined with seawalls in the project’s vicinity. The project study area is urban in character with commercial and residential land uses on the Island and an historic district in the downtown area west of the bridge. This section of the report provides a discussion of social, economic, and environmental aspects of the area that will be most affected by the proposed bridge project.

The City of St. Augustine is rich in historic significance. Under orders from Spain’s King Phillip II, it was colonized by Don Pedro Menendez de Aviles in 1565, and is the oldest continuous European settlement in North America. The major cultural environment within the study area consists of archaeological/historic sites and properties, and park areas.

A Mediterranean Revival bridge, the Bridge of Lions spans the Matanzas River/Intracoastal Waterway. It replaced a wooden toll bridge that connected St. Augustine and Anastasia Island from 1895 to 1925. The St. Augustine government decided to construct a high-quality bridge that would complement the city’s historic and architectural ambience. It was planned as a monumental ornamental structure that would enhance the beauty of the bayfront while performing a utilitarian function needed to bring the city its share of the land boom prosperity. When opened during the Ponce de Leon Celebration on April 7, 1927, the “million-dollar bridge” was by far the largest undertaking ever attempted by the local government in modern times. The American Society of Civil Engineers recognized the Bridge of Lions in its 1976 publication “Civil Engineering Landmarks, State of Florida.” ¹

The Bridge of Lions is one of the most recognized landmarks in St. Augustine. Its graceful arches and tile roofed towers flanking the draw span, reflect the influence of the town’s Spanish architectural heritage. Distinctive concrete lamp posts with wrought iron fixtures were removed, and replaced with aluminum posts and modern fixtures sometime after 1956. A sidewalk on each side of the bridge provides access for pedestrians and bicyclists.

Lion Statues Guarding the west end, and providing the name for the structure, are two marble lions on concrete bases. They were presented as a gift from an associate of Henry Flagler, Dr. Andrew Anderson, a prominent physician and resident. The lions were sculpted in 1924 from high-quality Italian Carrera Marble by F. Romanelli of Florence, and modeled after the pair guarding the Loggia Dei Lanzi in Florence. They were placed at the foot of the bridge in 1926. A Conservation Examination Report completed for the FDOT in November 1999, examined the condition of the two lion statues and offered recommendations for rehabilitation. The north statue is in good to fair condition. Cracks are visible on the statue’s surface, but are more pronounced and deeper on the marble platform section. The south statue is also in good to fair condition with visible cracks on the lion. There are some areas of stone loss and cracking around the right eye of the lion. The cracks in the marble platform are more pronounced and deeper and there is an original fill or repair in the sculpture’s marble platform under the sphere. Several lead filled letters in the platform’s inscription are missing.

In 1982, the bridge was listed on the National Register of Historic Places because of its Mediterranean Revival architecture and its historical significance, summarized above. The National Trust for Historic Preservation included the bridge as one of America’s 11 Most Endangered Historic Places - 1997. For the purposes of this environmental study, the Bridge of Lions Park and the lion statues are also considered eligible for listing on the National Register of Historic Places because they are closely associated with the Bridge of Lions.

As shown on Figure 3-1, the forty-six-block St. Augustine Historic District, (a National Historic Landmark) extends over an area of approximately 113 acres (45.7 hectares) and is bordered to the west by Cordova Street; to the north by the Castillo de San Marcos; to the east by the Matanzas River/Intracoastal Waterway; and to the south by St. Francis Street. The boundaries generally follow the original town plan of St. Augustine as it appeared in 1764 at the end of the First Spanish period.²

The District consists of buildings reflecting a variety of uses, styles, materials, and several distinct periods of development. Properties within the District date from the sixteenth century through the early twentieth century and are mostly colonial or Spanish-influence in style. Its oldest standing structure is 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.

An Historic Resource Survey was completed on Anastasia Island to determine the historic attributes of the five buildings potentially affected by the project. It was determined, after coordination with the State Historic Preservation Officer (SHPO), that no building in the Area of Potential Effect on Anastasia Island is eligible for listing on the National Register of Historic Places. (See Exhibit H in the Appendix).

Within 0.6 miles (1 kilometer) of the Bridge of Lions, nine archaeological surveys have been conducted and thirty-one sites recorded. All these recorded sites are on the western side of the bridge; no sites are listed on the eastern side. A recent survey undertaken for this environmental impact evaluation effort, included an extensive analysis of both the terrestrial and marine components of the study area to determine if the project alternatives would have an impact to archaeological resources. This survey concluded that the project may potentially impact two archaeological sites: the Trolley Station site (8Sj3312) and the Ballast Pile site (8Sj3313).³ Figure 3-2 illustrates the location of these archaeological sites within the study area. The referenced archaeological study was corroborated with the SHPO (refer to Exhibit H in the Appendix).

Because of the archaeologically-sensitive nature of St. Augustine, a total of 2.5 acres (1.0 hectares) was thoroughly investigated for the presence of archeological resources. An extensive surface and subsurface survey was conducted in all areas of exposed soils, and in the low tide mud flats adjacent to the seawall. Although some prehistoric and historic archaeological material was recovered, it is believed the material came from the fill brought in during the construction of the Trolley Station and the bridge, and was not inherent to the location.

In addition, the survey examined a known site (the Trolley site) located on the southwest bridge abutment and within the Bridge of Lions Park. This site is important to the history of St. Augustine and to the development of Anastasia Island. No other prehistoric or historic archaeological sites were encountered during the survey.

The entire bridge corridor was subjected to an underwater maritime survey to determine the existence of underwater cultural resources. Of a total of ten targets, only two were determined to be potentially significant cultural resources. One target, found along the eastern shoreline, is the remains of a possible pier/support for the trolley bridge and is associated with the Trolley Station site (8Sj3312). The other target is a ballast pile with associated artifacts dating to the latter half of the 18th century. Subsequent underwater surveys conducted after the Public Hearing, determined that the Ballast pile site is not eligible for listing on the National Register of Historic Places.

The Bridge of Lions west approach intersects with the Bridge of Lions Park, dedicated by the city in 1986. As shown on Figure 3-3, this passive park includes arbors north and south of the bridge and is home to the two marble lions described earlier in this report. The Trolley Station Archaeological Site is included within its boundaries. The park is located outside the boundaries of the St. Augustine Historic District.

Another recreational facility near the bridge is the municipal marina located just south of the bridge, on the western bank of the Matanzas River/Intracoastal Waterway. The bridge also serves as the transportation connection to the Anastasia Island recreational areas.

In addition, the Bridge of Lions, the St. Augustine Historic District (a National Historic Landmark), and the Castillo de San Marcos (a National Monument) properties are protected by Section 4(f) of the Department of Transportation Act of 1966. Another Section 4(f) Property is the Bridge of Lions Park located at the western bridge abutment. Impacts to these properties will depend on the alternative selected. An aerial photograph of the Bridge of Lions is provided as Figure 3-4.

With sidewalks on both sides, there is frequent use of the bridge by pedestrians. On any given day, approximately 200 pedestrians cross the Bridge of Lions. Bicycle activity is also prevalent in the area and across the bridge, however, the bridge is not part of a designated bike route. Approximately 170 bicyclists travel the bridge on an average day. As illustrated in the following photograph, the existing bridge cross section does not provide adequate separation between motorists and pedestrians. There is a combination vehicle/pedestrian traffic railing that does not conform to specifications. The existing structure does not meet the requirements set forth in the Americans with Disabilities Act (ADA).

The City of St. Augustine, with its wealth of historic structures, relies upon the aesthetic compatibility of its cultural resources. The “view” of St. Augustine encompasses the Matanzas Inlet to the Castillo de San Marcos, the picturesque Historic District, the Bridge of Lions and the Bridge of Lions Park, and Anastasia Island.

St. Augustine is an incorporated city located in the northeast corner of the State of Florida in St. Johns County and serves as the governmental center for the county.

Information from the Future Land Use Element of the St. Augustine Comprehensive Plan was used to develop population growth rates within the project area of Downtown St. Augustine and Anastasia Island. Demographic features within the Downtown and Island sectors are similar. The most current available data lists the population as 77.8 percent Caucasian and 21 percent African-American, which comprises the only numerically significant minority group. The median age throughout the city is 34.2 years. However, the highest median age (47.1 years) can be found in the Island sector. According to the City’s Comprehensive Plan, the per capita income level in these two sectors is $6,711 (Downtown) and $9,530 (Island). These income levels are below that of St. Johns County ($10,823). ⁴

The Comprehensive Plan projects growth trends in conjunction with both St. Johns County and the nearby Jacksonville urban area shown on Figure 1-1, as St. Augustine is but one component of the larger area economy. Because St. Augustine is virtually built-out, population projections for the Year 2000 are almost even with those for the Year 1998 (12,481). However, tourism is expected to continue increasing at an annual rate of 3 percent.

Although less than one-fourth of St. Johns County residents live within the City of St. Augustine, more than 50 percent of county jobs are located in this area. This indicates the economic dominance of the city in the county. Traditionally, the largest employment sector other than government, has been tourism. Unlike the population trends experienced in St. Augustine, tourism growth continues to increase, after an initial decline in 1990, at a rate of 3 percent per year. More than 3.5 million people visited St. Augustine in 2000 , indicating the importance of tourism as the primary economic factor for the region.

Anastasia Island, while relying on tourism as part of its economic stability, is also a heavily commercialized area. The highest level of income within St. Augustine is found on Anastasia Island where a large number of residents engage in executive and professional occupations.

Economic trends projected in the City’s Comprehensive Plan cite the dominance of the tourism industry as a barrier to future economic growth. St. Augustine is striving to diversify its economic base and has formed the Chamber of Commerce Committee of 100 to help stabilize the local economy.

Bridge of Lions Waterway Analysis The Bridge of Lions has a 25-foot (6-meter) vertical clearance at the mid span; therefore frequent daily openings are required throughout the year. The peak bridge opening months normally occur in the spring between April and May, and in the fall between October and November. Pleasure, commercial and government vessels use the Intracoastal Waterway. Shown on Table 3-1 and in Exhibit M is the 2001 Waterway Analysis from the Bridge Tender Logs.

TABLE 3-1 Bridge of Lions Waterway Analysis
Year 2001	Total Openings	Total Vessels¹	Total Pleasure Vessels²	Total Commercial Vessels³	Total Sailboats
January	318	454	374	79	272
February	271	369	288	80	210
March	381	536	473	60	356
April	561	1039	956	76	725
May	634	1218	1133	83	778
June	506	748	666	80	496
July	401	536	456	77	329
August	367	461	390	71	305
September	338	463	386	76	263
October	534	924	813	110	428
November	575	1370	1264	105	887
December	471	787	689	91	555
*Total*	5355	8905	7888	988	5604
Year 2002	Total Openings	Total Vessels¹	Total Pleasure Vessels²	Total Commercial Vessels³	Total Sailboats
January	332	461	375	84	293
February	347	474	360	113	287
*Total*	679	935	732	197	580
¹ - Includes government vessels. ² - Includes commercial sailboats.< ³ - See Appendix for details developed from the Year 2001 and 2002 Bridge Tender Logs.

The data presented for Year 2001 represents a three percent increase over Year 1996 data for the number of sailboats utilizing the Intracoastal Waterway under the Bridge of Lions. The majority of these sailboats had a mast height exceeding 23 feet (7.0 meters). Data taken from the 2001 Bridge of Lions Bridge Tender Logs and using the sailboat mast height factors from the 1996 data, is summarized in the following Table 3-2.

TABLE 3-2 Sailboat Mast Heights
Sailboat Mast Height feet (meters)	Number of Vessels 1996 Data	Percent of 1996 Total	2001 Projected Number of Vessels
< 23 ft (7 m)	17	0.31	17
21 - 33 ft (7 - 9.4 m)	427	7.85	440
31 - 40 ft (9.4 - 12.1 m)	631	11.59	650
40 - 50 ft (12.1 - 15.2 m)	1590	29.22	1637
50 - 60 ft (15.2 - 18.2 m)	1775	32.62	1828
> 60 ft (18.2 m)	1002	18.41	1032
Totals	5442	100	5604

Intracoastal Ship Tonnage The Intracoastal Waterway is used to ship raw materials by barge. Ship tonnage traversing the Bridge of Lions varies from year to year (See Figure 1-6). Principal commodities include fabricated metal products, machinery, and miscellaneous mineral products.

A review of the utilities within the limits of the bridge identified miscellaneous piping and conduit providing control and electrical power to the new traffic gates and signals on the bridge. There are also plumbing pipes attached along the edge of the bridge, spanning the outriggers, for the toll operator’s station.

The main component of the natural environment encompassing the bridge site is the Matanzas River/Intracoastal Waterway. This body of water is tidal with a nearby connection to the Atlantic Ocean. There are no substantial salt marsh or tidal/mud flat habitats within the immediate project area. The river bank has been altered from its natural state with the construction of seawalls on both sides of the river. The river itself is being used by marine traffic. A heavily urbanized area is present landward from each bank, the nature of which has been previously described in this report.

Anastasia Island is a heavily developed coastal barrier island bordered to the west by the Matanzas Inlet and to the east by the Atlantic Ocean and contains the City of St. Augustine Beach and Anastasia Island State Park, both important recreational areas.

The Matanzas River/Intracoastal Waterway is tidally influenced and receives runoff directly from the existing bridge. Within the project area, the Matanzas River is classified as Class III surface waters of the State by the Department of Environmental Protection and the St. Johns River Water Management District. Class III water bodies are suitable for recreation, propagation, and maintenance of a healthy, well-balanced population of fish and wildlife. Chapter 40C-42 of the Florida Administrative Code, requires a baseline level of treatment for stormwater management systems that discharge to Class III water bodies. The river is not listed as an Outstanding Florida Water, Wild and Scenic River, nor is it in an Aquatic Preserve.

The project crosses the Matanzas River/Intracoastal Waterway upstream of the St. Augustine Inlet. The Matanzas River, in the vicinity of the Bridge, is a deepwater tidal habitat with a primarily unconsolidated bottom. The river is approximately 1,600 feet (488 meters) wide at the bridge crossing. As illustrated in Figure 3-5, there is a narrow fringe of wetland along the shore, south of the eastern bridge abutment. The wetland fringe varies from 30 to 60 feet (9.1 to 18.2 meters) wide and approximately 700 feet (213 meters) long. This 0.7 acre (0.3 hectare) wetland is bordered by a seawall and crossed by two boat piers. The primary functions provided by this wetland are nutrient processing and fisheries habitat. However, the adjacent development and the size of the wetland results in a low value for wetland function.

This wetland area, shown in the photograph below, is classified as estuarine, intertidal, emergent, persistent and is flooded irregularly by tides. Spartina alterniflora is the dominant vegetation.

The Bridge of Lions’ proximity to the St. Augustine Inlet, channel physiography, and drainage basin characteristics significantly influence the flow regime in this area. The Flood Insurance Rate Map for this area of St. Johns County indicates that the base flood elevation is 11 feet (3.3 meters) for a 100-year flood event in Zone AE (Community Panel No. 125145-004-D). There are no regulatory floodways in the project area.

The project is located in an urbanized area. Therefore, wildlife populations are limited. To comply with the Endangered Species Act, a list was obtained from the U.S. Fish and Wildlife Service (USFWS) and the National Marine Fisheries Service. USFWS indicated that the manatee (Trichechus manatus latirostris) may be located within the project area (see Exhibit E in the Appendix).

A compilation of Federally listed species with ranges within the vicinity of the Bridge of Lions is illustrated on Table 3-3. This list was developed by a search of the literature, and by pedestrian surveys of the area. No “Critical Habitat,” as defined by the USFWS and the National Marine Fisheries Service, occurs within the study area. No listed species were observed during project site visits.

TABLE 3-3: FEDERALLY THREATENED (T) AND ENDANGERED (E) SPECIES POTENTIALLY OCCURRING IN THE PROJECT VICINITY AND THE PROBABILITY OF OCCURRENCE
SPECIES COMMON NAME	SPECIES SCIENTIFIC NAME	FEDERAL STATUS	PROBABILITY OF OCCURRENCE
Reptiles:
Atlantic loggerhead turtle	Caretta caretta caretta	T	Moderate
Atlantic green turtle	Chelonia mydas mydas	E	Low
Hawksbill sea turtle	Eretmochelys imbricata	E	Low
Leatherback turtle	Dermochelys coriacea	E	Low
Atlantic ridley turtle	Lepidochelys kempi	E	Low
Birds:
Piping plover	Charadrius melodus	T	Low
Arctic peregrine falcon	Falco peregrinus tundrius	T	Low
Bald eagle	Haliaeetus leucocephalus	E	Very Low
Wood stork	Mycteria americana	E	Low
TABLE 3-1 (Cont.): FEDERALLY THREATENED (T) AND ENDANGERED (E) SPECIES POTENTIALLY OCCURRING IN THE PROJECT VICINITY AND THE PROBABILITY OF OCCURRENCE
SPECIES COMMON NAME	SPECIES SCIENTIFIC NAME	FEDERAL STATUS	PROBABILITY OF OCCURRENCE
Mammals:
Anastasia Island beach mouse	Peromyscus polionotus phasma	E	None
West Indian manatee	Trichechus manatus latirostris	E	High

The National Marine Fisheries agency has reviewed the Draft Environmental Impact Statement and anticipate that any adverse impacts upon marine and anadromous fishery resources would be minimal (refer to Exhibit D-7).

The comprehensive planning process in the project area is the responsibility of the City of St. Augustine. The two planning sectors within this project study area are the Intown Sector and the Island Sector. The Intown Sector represents the historical downtown area whereas the Island Sector represents Anastasia Island.

Figure 3-6 depicts existing land uses within the two project-study area Sectors: Intown and Island. Refer to this figure as reference for the following discussion. The Island Sector continues to lead the city in terms of single-family new construction and has the largest amount of developable vacant land. While new construction is primarily infill development on vacant lots, one large tract of land, Pelican Reef, remains vacant but designated for single-family residential development.⁶ Other land uses within this sector include commercial uses along S.R. A1A (Anastasia Boulevard) and public/semi-public uses (in the form of a communications facility and a school).

On the Island, a large majority of the land use (63.73 percent) is recreation/open space as represented by Anastasia State Recreation Area.

The Intown Sector has the least amount of vacant land among the five planning sectors. Historic downtown St. Augustine accounts for 42.81 percent of the city’s multi-family residences. This Sector also has single-family land uses and a large amount of commercial/office land uses. A small amount of light-industrial land uses are intermixed throughout the Sector. Ten percent of the land use within the downtown area is public/semi-public and includes the Lightner Museum, City Hall, the St. Johns County Courthouse, Flagler College, and St. Joseph’s Convent. Recreation/Open Space comprises three percent of the Sector and consists of baseball diamonds and tennis courts at San Marco/Francis Field.

As illustrated on Figure 3-7, future land uses within the project study area are predicted to remain the same as existing, with few exceptions. Residential land uses will continue to grow on Anastasia Island as vacant land is converted to single-family developments. Commercial development is expected to increase a total of 13 percent during the next ten years and be concentrated on infill and redevelopment areas. Within the Island Sector, this growth will be along SR A1A (Anastasia Boulevard). In the historic district, commercial growth will continue to infill the area. When comparing the Existing Land Use Map with the Future Land Use Map, it must be noted that the City of St. Augustine created a new land use designation “historic district.” This designation was not in place at the time the Existing Land Use Map was originated. Therefore, the Existing Land Use Map gives a detailed breakdown of land uses within the historic district whereas the Future Land Use Map does not.