Final Environmental Impact Statement Summary
In its continuing role since opening, the Bridge of Lions provides an important crossing of the Matanzas River/Intracoastal Waterway connecting historic St. Augustine and the north part of Anastasia Island. The existing bridge carries approximately 20,000-25,000 vehicles per day over the Matanzas River, and is considered an important component of the St. Augustine and eastern St. Johns County transportation system. The bridge is a designated emergency evacuation route for Anastasia Island, providing a vital link to safety during an emergency, and providing access for fire and rescue units.
The Bridge of Lions is considered historically important on a local, state and national level and is strongly associated with the City of St. Augustine by both residents and tourists. The bridge is listed on the National Register of Historic Places. Economically, the bridge provides a critical link between Anastasia Island and the historic downtown area, which comprise the tax bases for the city. Without this crossing, the social and economic stability of the city and region could be damaged. It is vital that this crossing be maintained.
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During this analysis of the proposed action, the need to provide more than routine maintenance to the Bridge of Lions became evident. The FDOT lists the bridge as being structurally deficient and functionally obsolete. Additionally, an extensive inspection of the existing bridge revealed advanced corrosion damage in portions of the superstructure, leading to the current weight restrictions placed on the bridge. Other deficiencies in load carrying capacity result from research on structural behavior which lead to changes in design rules. Deterioration has also impacted the mechanical and electrical equipment.
Because the river is a part of the Atlantic Intracoastal Waterway, strict navigational clearances of bridges are required. The Bridge of Lions’ navigational clearance does not meet the U.S. Coast Guard guide channel clearance of 125 feet (38.1 meters) The bridge’s existing horizontal channel clearance is 79.5 feet (24.2 meters) fender to fender, but is “charted” by the Coast Guard at 76 feet (23.2 meters).
Therefore, this project involves either rehabilitating or replacing the existing two-lane Bridge of Lions in the City of St. Augustine, St. Johns County, Florida. The bridge project limits include the existing bridge and its approaches. The project study area extends from downtown St. Augustine (intersection of Avenida Menendez with King Street and Cathedral Street) to Anastasia Island (Anastasia Boulevard), a distance of approximately 0.5 kilometers (0.3 miles). The bridge carries S.R. A1A over the Matanzas River/Intracoastal Waterway.
OTHER MAJOR GOVERNMENTAL ACTIONS
On Anastasia Island, from S.R. 312 south for a distance of approximately 12.9 kilometers (8 miles), S.R. A1A has been widened to four lanes. In addition, the S.R. 312 bridge was also widened to four lanes from U.S. 1 to S.R. A1A (refer to Figure 1-1), providing additional capacity to Anastasia Island. The completion of this project will greatly aid in evacuating Anastasia Island in the event of a hurricane.
Preliminary concepts were developed, evaluated, and documented in the project’s Draft Preliminary Engineering Report (DPER). The two most viable concepts were to rehabilitate the existing bridge or replace the existing bridge with a new two-lane structure. The other concepts, which involve construction of a four-lane bridge, were eliminated from further consideration. At that time, it was determined that a four-lane structure was not viable due to the adjacent existing street system being incompatible. If the downtown street system is expanded in the future, then alternatives to provide more capacity across the river can be investigated.
The No-Build Alternative serves as a baseline of comparison for all alternatives. It would provide no rehabilitation, capacity, structural, safety or aesthetic improvements except routine maintenance and repair. The existing two lane bridge is 22 feet (6.7 meters) wide, and consists of two 10 foot (3.1 meter) travel lanes, two 5 foot (1.5 meter) sidewalks on both sides, and inadequate safety railings.
This alternative would not bring the bridge up to current roadway design or navigation guidelines. The expected traffic volumes and continued deterioration of the bridge make the No-Build the least efficient. The No-Build Alternative does not meet the Department’s goal of maintaining this important crossing. Section 1 describes the existing bridge in detail.
Under the Rehabilitation Alternative, the roadway and shoulder width on the bridge is increased to 25 feet (7.6 meters) to include two traffic lanes of 11 feet (3.3 meters) each. This alternative would also include 5 foot 2 inch (1.6 meter) sidewalks and a crash tested barrier separating pedestrians from motorists. The degree of bridge rehabilitation is extensive as portions of the superstructure, the entire bridge deck, all of the approach piers, and all bridge railings would be replaced.
This alternative would incorporate a horizontal alignment shift of Anastasia Boulevard to improve the existing deficient curve at the east abutment. The Rehabilitation Alternative would require the use of a temporary bridge for maintenance of traffic during construction.
Two options were developed for the Rehabilitation Alternative: Option 1A and Option 1B. These two options are identical except for the horizontal clearance for navigation. Option 1B provides a wider clearance than Option 1A. In contrast to Option 1A which maintains the existing clearance, Option 1B increases the horizontal channel clearance width to 151 feet (46.0 meters), thus satisfying the U.S. Coast Guard clearance criteria. To accomplish this, construction of new bascule piers shoreward of the existing piers and new bascule leaves to accommodate the enlarged opening would be required. In addition, with Option 1A, sidewalks on the bascule section would only be 3 feet (0.9 meters) as opposed to Option 1B which would have sidewalks of 5 feet 2 inches (1.6 meters). For more information on the Rehabilitation Alternative see Section 2.
The Replacement Alternative consists of a new concrete two-lane bridge with a steel bascule span. The new bridge would provide two 12 foot (3.6 meter) travel lanes with a 10 foot (3.0 meter) shoulder on each side. The shoulders would accommodate bicyclists. Sidewalks of 5 feet 2 inches (1.6 meters) would accommodate pedestrian traffic, separated from vehicular traffic by a concrete safety barrier. The deck of the replacement bridge would be approximately 8 feet (2.4 meters) higher than the existing bridge. A horizontal channel clearance of 125 feet (38.1 meters) would also be provided. This clearance would satisfy the U.S. Coast Guard clearance criteria.
Two options were developed for the Replacement Alternative: Option 2A and Option 2B. These options are identical except for alignment and treatment of traffic during construction. Option 2A would be constructed just south of and parallel to the existing bridge and would utilize the existing bridge to maintain traffic during construction. Option 2A, while using the existing bridge to maintain traffic, would still require complete closure of traffic during certain phases of construction. Upon completion of the new Option 2A bridge, the existing structure would be removed or, if desired by the community, portions of the old bridge could be retained as fishing piers.
Option 2B would be constructed on the same alignment as the existing bridge, thereby requiring a temporary bridge for maintenance of traffic during construction. The existing bridge would be removed. For more information on the Replacement Alternative and U.S. Coast Guard criteria, see Section 2.
The main concern for the proposed action is to resolve outstanding vehicular, navigational, and structural safety issues. These issues are discussed in detail in Section 1. However, no matter which alternative is selected, every effort will be made to consider community and historic interests. The Bridge of Lions is considered by many residents as an important component of the historic make-up of the City of St. Augustine. The bridge is listed on the National Register of Historic Places, and as such, many people are strongly opposed to any effort to replace it. In addition, the National Trust for Historic Preservation has placed the bridge on its list of "Most Endangered Historic Places."
The proposed action has been intensely followed by local, state, and national media. Opponents of the Replacement Alternative feel the historic character of the city will be undermined by a new bridge. During the public involvement process, visual impacts resulting from the Replacement Alternative were cited as major concerns of many St. Augustine citizens. Specifically, the replacement bridge, with a higher clearance and wider typical section, is not considered in “scale” with the downtown area. The dimensions of the proposed Replacement Alternative are perceived as “out of proportion” with the historic city. In addition, their concern is not only of how a replacement bridge will be aesthetically compatible with the adjacent historic surroundings, but of how the view of historic St. Augustine and all its cultural resources will look from a new bridge.
In addition, many people in the community support the new bridge options, feeling that the safety benefits of a new bridge out-weigh the historic importance of the existing bridge. Some citizens are concerned that the rehabilitation option does not help solve the traffic capacity problems within St. Augustine.
Replacement Options 2A and 2B would utilize ornate architecture that would be compatible with the surrounding area. The replacement bridge, while somewhat modernized, would reflect the historic setting of St. Augustine. The two lion sculptures would remain in the park unchanged by this project.
The existing charted horizontal clearance of the main navigation channel is well below the minimum channel clearance desired of new structures over the Intracoastal Waterway. The U.S. Coast Guard has indicated they have concerns about retaining the substandard horizontal clearance found at the existing bridge. At the project’s public hearing, several comments were received suggesting that the historical nature of the Bridge of Lions outweighs any navigational concerns raised during this project.
To further illustrate the controversial nature of this project, the St. Augustine City Commission, who requested this study of the bridge in 1989, passed a resolution on February 12, 1996 recommending that the Bridge of Lions be replaced with a two-lane bridge. On April 14, 1997, the Commission reversed itself by passing a new resolution recommending rehabilitation of the existing bridge. Most recently in February 1999, the Commission reversed itself by passing a resolution in favor of Replacement Alternative 2A. Each of these resolutions were achieved by a voting margin of three to two. (Refer to Exhibit A in the Appendix.)
After the public hearing, the St. Augustine Ports and Waterways Commission voted to rehabilitate the bridge (see Exhibit A).
Throughout the study of the proposed action, this project has generated great interest in the community. Supporters of both the Rehabilitation and Replacement Alternatives have actively voiced their views and concerns through public meetings and correspondence.
Based upon comments received on the Draft Environmental Impact Statement (DEIS), and as a result of comments received at the Public Hearing held June 7, 1999, the FDOT selected Rehabilitation Option 1A as the Preferred Alternative. Option 1A would rehabilitate major portions of the bridge in an attempt to minimize impacts to the historic nature of the structure. By maintaining the existing “charted” horizontal navigational clearance of 76 feet (23.2 meters), the existing bascule piers would be retained, thus allowing the bridge to remain listed on the National Register of Historic Places.
In addition to rehabilitating the Bridge of Lions, improvements would also be made to the bridge approaches. The bridge’s east approach would incorporate a northerly shift in the substandard horizontal alignment of Anastasia Boulevard. This modification would make the roadway curve approaching the bridge less sharp and thus safer for vehicular traffic. The intersection reconfiguration would involve creating intersections at St. Augustine Boulevard and Anastasia Boulevard, at St. Augustine Boulevard and Oglethorpe Boulevard, and closing access to Flagler Boulevard from Anastasia Boulevard. In addition, this improvement would increase safety through the simplification of traffic operations.
The use of a temporary bridge would be required for both Rehabilitation Options (including the Preferred Option 1A), and Replacement Option 2B to maintain traffic during construction.
REASONS FOR SELECTION OF ALTERNATIVE
Option 1A was selected as the preferred alternative because it both minimizes impacts and harm to the historic bridge structure by retaining the bascule piers and re-using the approach span arched steel plate girders, thereby allowing the bridge to remain listed on the National Register of Historic Places. Option 1A also has the least amount of impacts to the adjacent Landmark Historic District.
In addition to retaining the bridge’s historic value, this alternative provides increases in both safety and traffic operations on the bridge and both approaches, as summarized in the following discussion.
The preferred alternative will result in the widening of the existing 10 foot travel lanes to 11 feet. In addition, crash tested barriers will be constructed. The roadway alignment will also be improved on the eastern approach of the bridge.
The bridge structure will undergo an extensive rehabilitation. The approach piers will be replaced and the approach spans will be completely rehabilitated, as will the bascule piers. This action will eliminate the structural problems identified with the existing bridge.
The preferred alternative will not increase the existing horizontal clearance of the existing bridge. The U.S. Coast Guard has expressed concern over this situation. However, the existing mooring dolphin system will remain in place to alleviate potential ship impacts to the bridge. In addition, the fender system will be improved under the preferred alternative.
The proposed improvements for Rehabilitation Option 1A and the temporary bridge do not take any wetlands. Therefore, Executive Order 11990 does not apply.
The project does not involve the base floodplain, therefore, Executive Order 11988 does not apply. In addition, the project does not involve a regulated floodway.
The Office of Planning and Budget, Office of the Governor has determined that this project is consistent with the Florida Coastal Zone Management Plan (see Exhibit C.)
The Preferred Rehabilitation Option 1A rehabilitates major portions of the bridge and minimizes impacts to the historic nature of the structure. The Preferred Option would not require replacement of the bascule piers; therefore, the bridge would continue to remain eligible for listing on the National Register. FHWA, after consultation with the SHPO, has determined that no sites listed or eligible for listing on the National Register of Historic Places would be significantly impacted by the project.
THREATENED AND ENDANGERED SPECIES
The USFWS indicated that manatees may be located within the project area. However, it has been determined through coordination with USFWS, that the project, as proposed, would have no effect on any threatened or endangered species.
Through coordination with the Soil Conservation Service, it has been determined that the project area which is located in the urbanized area of St. Augustine, does not meet the definition of farmland as defined in 7 CFR 58. Therefore, the provisions of the Farmland Protection Policy Act of 1984 do not apply to this project.
LIST OF OTHER GOVERNMENT ACTIONS REQUIRED
A permit from the U.S. Coast Guard, a cooperating agency on this project, is required for the construction of a temporary bridge under Preferred Option 1A. A U.S. Army Corps of Engineers permit for dredge and fill activities in wetlands is not anticipated. A St. Johns River Water Management District Noticed Environmental Resources General Permit will be required. A National Pollutant Discharge Elimination System (NPDES) permit will also be required.
A Section 106 Memorandum of Agreement developed by the Federal Highway Administration (FHWA), FDOT, State Historic Preservation Officer (SHPO), and the Advisory Council on Historic Preservation provides mitigation for impacts associated with the Preferred Option 1A (refer to Exhibit K in the Appendix).
PROBABLE ADVERSE EFFECTS WHICH CANNOT BE AVOIDED
The Preferred Option 1A would have an unavoidable effect on the existing Bridge of Lions, an historic structure listed on the National Register of Historic Places. However, the Preferred Alternative would retain the original bascule piers, re-use the approach span arched steel plate girders, and replace certain elements of the bridge with new elements constructed in a manner similar to the original 1927 construction. In addition to these considerations, the minor changes in the appearance associated with the new construction would allow the structure to remain eligible for listing on the National Register.
Preferred Option 1A would have unavoidable temporary impacts to the Bridge of Lions Park during construction. The Preferred Option 1A requires the use of the adjacent park for the temporary bridge required to maintain traffic during construction.
IRRETRIEVABLE AND IRREVERSIBLE COMMITMENT OF RESOURCES
The Preferred Option 1A would require commitment of resources for labor and materials. Construction impacts would be temporary. Some fill material may have to be obtained from outside the proposed right-of-way, thus committing to the alteration of the terrain in nearby borrow areas.
FEASIBLE MEASURES TO AVOID OR MINIMIZE POTENTIAL ADVERSE IMPACT
The Preferred Rehabilitation Option 1A was rigorously investigated in order to avoid demolishing a historic bridge listed on the National Register. A Memorandum of Agreement (refer to Exhibit K in the Appendix) between FHWA, SHPO, FDOT, and the Advisory Council on Historic Preservation highlights stipulations to ensure minimization of adverse impacts. Specifically, recordation measures will be carried out prior to any demolition, alteration, or rehabilitation activity affecting the Bridge of Lions and the lion statues. The Bridge of Lions Park will be restored in a manner similar to the original 1927 construction.
SHORT-TERM IMPACTS VERSUS LONG-TERM ENVIRONMENTAL BENEFITS
Short-term impacts related to road and bridge construction will occur. This will cause some temporary interruption to vehicular traffic flow in and around the project area. Temporary air pollution from exhaust fumes and noise associated with construction operations cannot be avoided, neither can the visual impacts associated with construction debris and equipment. However, all will be managed in accordance with local and state regulatory agencies permitting this project.
The Florida Department of Transportation and the City of St. Augustine will develop a Joint Participation Agreement (JPA)with regard to the conservation of the Lion Statues. As part of this JPA, a restoration plan of the statues will be developed in consultation with the SHPO. The restoration plan will include a technical plan for the restoration and information regarding the professional qualifications of the statues’ conservator. Restoration will begin with the removal of the two lion statues before bridge construction activities commence. The restored lion statues will then be incorporated into the design of the rehabilitated Bridge of Lions.
Long-term benefits associated with the Preferred Option 1A are centered around the Bridge of Lion’s continued eligibility for listing on the National Register of Historic Places. In addition, economic benefits attributed to the existing structure would not be altered.
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