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Item I1 I.1 BOARD OF COUNTY COMMISSIONERS C ounty of M onroe Mayor Sylvia Murphy, District 5 Mayor Pro Tem Danny Kolhage, District 1 TheFloridaKeys Michelle Coldiron, District 2 Heather Carruthers, District 3 David Rice, District 5 County Commission Meeting February 20, 2019 Agenda Item Number: I.1 Agenda Item Summary #5149 BULK ITEM: No DEPARTMENT: Engineering / Roads TIME APPROXIMATE: STAFF CONTACT: Judith Clarke (305) 295-4329 11:00 a.m. AGENDA ITEM WORDING: Presentation by Florida Department of Transportation (FDOT) on the Cow Key Channel Bridge Rehabilitation Project. ITEM BACKGROUND: FDOT is providing an update on the Cow Key Channel Bridge Rehabilitation Project. PREVIOUS RELEVANT BOCC ACTION: None CONTRACT/AGREEMENT CHANGES: NA STAFF RECOMMENDATION: DOCUMENTATION: Cow Key to Key West New Bridge White Paper (2 5 19 kp) FINANCIAL IMPACT: Effective Date: Expiration Date: Total Dollar Value of Contract: Total Cost to County: Current Year Portion: Budgeted: Source of Funds: CPI: Indirect Costs: Estimated Ongoing Costs Not Included in above dollar amounts: Packet Pg. 1339 I.1 Revenue Producing: If yes, amount: Grant: County Match: Insurance Required: Additional Details: None REVIEWED BY: Judith Clarke Completed 01/14/2019 9:52 AM Christine Limbert Completed 01/14/2019 10:47 AM Budget and Finance Completed 01/14/2019 11:01 AM Maria Slavik Completed 01/14/2019 11:19 AM Kathy Peters Completed 01/14/2019 11:36 AM Board of County Commissioners Pending 02/20/2019 9:00 AM Packet Pg. 1340 I.1.a January 8, 2019 1. BACKGROUND During a telephone conversation between Commissioner Robert Spottswood of the Fish and Wild Conservation Commission (FWCC) and Florida Department of Transportation (FDOT) District Six Secretary James Wolfe, on December 21, 2018, Commissioner Spottswood expressed an interest in the feasibility of a second bridge connection to Key th West, Florida, along the alignment of 5 Avenue on Cow Key, over the Cow Key Channel to Wall Road connecting to South Roosevelt Blvd on Key West. There is a Cow Key Bridge rehabilitation project currently under design, on SR 5/ US-1, FM 441740-1-52-01 (SR 5/US-1/Overseas Highway over Cow Key Channel Bridge Repair/Rehabilitation). The anticipated construction begin date is April 13, 2020 with a total construction time of 370 days. Estimated construction cost is $3.3 million. This white paper is intended to provide information regarding the feasibility of and requirements for the construction of a new bridge as an additional connection between Key West and Cow Key. 2. EXISTING CONDITIONS A field reconnaissance was conducted on December 27, 2018, and an Area of Interest Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) Screening was conducted through the Efficient Transportation Decision Making (ETDM) nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 1 of 16 Packet Pg. 1341 I.1.a Environmental Screening Tool (EST). Existing Cow Key Bridge plans and the proposed rehabilitation plans were reviewed. From Key West where the bridge under study begins, the land belongs to the federal government. It is currently used as Naval Branch Health Clinic of Key West. The Wall Road mentioned in the introduction no longer exists. Where Wall Road used to be is staff parking area of Naval Clinic. Figure 1- Proposed Bridge Location Map thth From Cow Key, the subject bridge is to be connected to 5 Avenue. 5 Avenue is a local road which is not federal aid eligible. It consists a two-lane roadway with a 50-foot right of way. The posted speed limit is 25 MPH. From observation, the travel lanes are narrower th than the standard 12-foot lanes. 5 Avenue connects to SR 5/US-1 by Cross Street. nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 2 of 16 Packet Pg. 1342 I.1.a th At the west terminus of 5 Avenue, there are two existing businesses, Manatee Dock Kayak & Paddleboard Tours on the south side, and Cow Key Marina on the north side. th 5 Avenue traverses through a residential area with mostly trailer type housings. th Figure 2 5 Avenue, looking east. On SR 5/US-1, the existing Cow Key Bridge is to the north northwest of this study location. To the southeast corner of Cow Key Bridge, there are existing businesses along US-1, most notably is the Hurricane Hole Marina and Sunset Boat Rental and Tours. The Cow Key Bridge minimum vertical clearance at center span is 9.6 feet above MHW. The horizontal clearance between pile bents is 36.8 feet. nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 3 of 16 Packet Pg. 1343 I.1.a Figure 3 Cow Key Channel Bridge on SR 5 / US-1 / Overseas Hwy Figure 4 Plan and Elevation of Cow Key Bridge nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 4 of 16 Packet Pg. 1344 I.1.a Ingress and egress of all boats to and from these marinas are using Cow Key Channel to the south, where the subject study of the bridge is to be located. A boat vessel survey, types of vessels using this waterway and their heights will have to be conducted to determine the minimum vertical clearance for the proposed bridge. From field visit, sports fishing boats were the most common. 3. SITE ANALYSIS AND BRIDGE GEOMETRY Due to the needs to provide accesses to the marinas, the proposed bridge will needto be designed for a navigable waterway. A United States Coast Guard (USCG) permit will be required and possibly a United State Army Corps of Engineers (USACE) permit. These permits will federalize the project. As such, compliance with the National Environmental Policy Act (NEPA) is required and the lead federal agency will determine an appropriate Class of Action. The proposed bridge will be under three jurisdictions, City of Key West, Monroe County, and Federal Government. Either Monroe County or City of Key West will be the Action Agency with either the USCG or USACE as the lead federal agency for this thth project. 5 Avenue and Cross Street (which connects) 5 Avenue to US-1 on Cow Key, will be federalized as part of this project. The Action Agency will need to coordinate with the federal governing agencies, e.g. Federal Lands to get the required approvals/permits and the process required to convert the existing parking lot of Naval Health Clinic to bridge/roadway. The timeline for this action is unknow at this time. These are the assumptions for this white paper. The bridge typical section would be 47.0 feet wide to accommodate two12-foot lanes with 10-foot shoulders. The estimated bridge channel span with 35 feet vertical clearance and 100 feet horizontal clearance are used in this analysis, to provide accessibility to the boat traffic. The Conceptual Plan and Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) Elevation of the proposed bridge is shown in Figure 5 below: nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 5 of 16 Packet Pg. 1345 I.1.a Figure 5 Conceptual Bridge Plan and Elevation 4. AREA OF INTEREST (AOI) SUMMARIES A Geographic Information System (GIS) screening was conducted for this white paper using the Area of Interest (AOI) Efficient Transportation Decision Making Environmental Screening Tool to examine natural, physical, cultural, and social and economic resources that may be impacted as a result of a new bridge being constructed across the Cow Key Channel, connecting Key West to Cow Key, in Monroe County, Florida. The project is located within the Census Designated Places of Stock Island and Key West as well as two Areas of Critical State Concern in Florida \[Key West and Florida Keys\]. As part of the AOI analysis, a 500-foot buffer was applied to the linework denoting the bridge to identify specific resources within the vicinity Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) of the project that could be affected. As such, the resources cited within this document nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 6 of 16 Packet Pg. 1346 I.1.a are located within a radius of 500 feet from the project. Detailed findings of the AOI that was conducted are provided below. Natural Resources Examining the area for wildlife and habitat resources, the project is located within the Florida Keys Ecosystem Management Area; Rare Range for the Florida black bear; and United States Fish and Wildlife Service (USFWS) consultation areas for the American crocodile, the Miami-Dade keys plants, piping plover, roseate tern, and Stock Island tree snail. Based on the Florida Natural Areas Inventory (FNAI) database, there are potential occurrences of twelve endangered or rare plant and animal species within the 500-foot buffer. Additionally, the Stock Island tree snail is listed as threatened by the federal government. A number of other threatened and endangered plants, vertebrates, and fish also exist within the project area. Coordination with all appropriate federal and state agencies will be required to address potential impacts and resulting mitigation regarding the present sensitive habitats and listed species. The project occurs within the Florida Bay-Florida Keys watershed and the Vero Beach Coastal Assessment Framework \[CDA_S206\]. The lower Florida Keys is designated as Rare and Imperiled Fish Habitat for the mangrove rivulus. Further, the project is located within two National Oceanic and Atmospheric Administration (NOAA) marine protected areas \[Florida Keys National Marine Sanctuary (also submerged land) and Florida Keys Outstanding Florida Water\]. It should be noted that 10.75 acres (30.94%) of discontinuous seagrass beds and <0.1 acre (0.16%) of continuous seagrass beds are located within the 500-foot project buffer. Coordination with all appropriate federal and state agencies will be required to address potential shading impacts to seagrass beds as a result of a new bridge and other potential impacts to the present sensitive marine habitat and noted species. Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 7 of 16 Packet Pg. 1347 I.1.a Concerning wetlands, there are 15.83 acres (45.56%) of estuarine wetlands within the 500-foot project buffer according to the USFWS National Wetlands Inventory database; 0.63 acre (1.81%) of mangrove swamp is reported within the same area through the South Florida Water Management District wetlands database. Pertaining to water quality, the project is located within two impaired waters \[Key West (WBID: 6014A) & Stock Island (WBID: 6014B), both are impaired for copper\] and a principal aquifer of the state of Florida \[Other Rocks\]; the project is also located within the 100- year floodplain \[34.74 acres of Flood Zone AE\]. It should additionally be noted that three United States Environmental Protection Agency (USEPA) water quality data monitoring stations are located within 500 feet from the project. Coordination with all appropriate federal and state agencies will be required to address required compensatory wetland mitigation, floodplain compensation, and higher standards of stormwater treatment and attenuation associated with discharge to impaired waters and Outstanding Florida Waters as a result of the project. Physical Resources Several potential sources of sub-surface contamination exist within the area. The Key West Naval Branch Health Clinic is listed as both a hazardous waste facility and a USEPA Resource Conservation and Recovery Act (RCRA) regulated facility. On the eastern end of the project, the Cow Key Marina is listed as one of two storage tank contamination monitoring sites with the second site listed as closed \[Trawler Station\]. These sites will need to be investigated to determine their potential risk; proper mitigation will need to take place if medium to high risk sites are identified. Infrastructure within the 500-foot buffer includes one FM tower structure, one television broadcast structure \[WKIZ-LD\], and seven wireless antenna structures \[Seattle Streaming Radio, LLC.\]; two of these features are also listed as Federal Aviation Administration obstructions. Additionally, one onsite sewage facility exists. Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) All of these aforementioned structures are located on Stock Island or within the Cow Key Channel. It should also be noted that the Key West Naval Branch Health Clinic nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 8 of 16 Packet Pg. 1348 I.1.a owns a large portion of land that composes the western end of the project. Street lights and/or power lines additionally line the streets of the proposed bridge approaches. Potential conflicts with existing infrastructure are present; utility relocations will likely be required. Community features within the 500-foot project buffer that may be sensitive to noise and vibration effects as a result of presumable noise level increases from higher traffic volumes due to improved operational conditions with a new bridge and increased noise levels during construction of the bridge, include: the Sunset Harbor Trailer Village mobile home park, the Casa Roma Condo, and the Key West Naval Branch Health Clinic. Enjoyment of recreational features and sensitive natural resources (i.e., marine mammals) within proximity to the project may additionally be affected. Noise abatement measures will likely be required given the proximity of sensitive noise sensitive receptors to the project. Regarding navigation, United States Coast Guard (USCG) authorization will be required for construction of a new bridge as the bridge will have to meet or exceed the minimum required clearances specified for Cow Key Channel. Cultural Resources Based on the Florida Site File database, nine historic standing structures within the 500-foot project buffer are eligible for the National Register of Historic Places as determined by the State Historic Preservation Officer. Also, seven previous surveys have taken place within the project buffer area. Section 4(f) may apply to the noted standing structures. Coordination with all appropriate federal and state agencies will be required to address potential impacts to these protected features. A number of private businesses that offer services pertaining to coastal recreational Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) activities (including boating, kayaking, jet skiing, etc.) are located within the 500-foot project buffer. Public recreational features within the project area include Florida Keys nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 9 of 16 Packet Pg. 1349 I.1.a Overseas Heritage Trail and Florida Keys National Marine Sanctuary. These resources are protected under Section 4(f). Coordination with all appropriate federal and state agencies will be required to address potential impacts to these protected features. Social and Economic Resources Compared to Monroe County, the 500-foot project buffer has significantly higher percentages of African American, Other Race, and Hispanic populations; a higher percentage of individuals age 18 and under; a higher percentage of occupied housing units with no vehicle; and a lower median household income ($17,105), including higher percentages of households below the poverty level and households with public assistance income. In addition, 15.20% of the population within the buffer area (19 persons) speaks English not well or not at all. Potential environmental justice issues will need to be further assessed. Viewsheds of the area could be altered depending on the design of the new bridge. Opinions and preferences of residents and businesses in the area will need to be solicited regarding project effects and general design concepts related to the aesthetics of the bridge. Given the number of residences and businesses along the streets of the proposed bridge approaches, relocation impacts (including modified access to these establishments) could occur as a result of the new bridge depending on its design. Further assessment of relocation effects will need to be conducted as more detailed and finalized project information regarding right-of-way needs becomes available. Summary Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) In summary, US Geological Survey (USGS) authorization will be required for construction of a new bridge as the bridge will have to meet or exceed the minimum nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 10 of 16 Packet Pg. 1350 I.1.a required clearances specified for Cow Key Channel. As with construction of any new transportation facility, particularly over a waterway, numerous permits as well as extensive mitigation and agency coordination will be required should this project advance to future phases. 5. MAJOR PROJECT TASKS AND SCHEDULES A new bridge construction project will need to have the following studies completed before the final design and construction. First, a detailed Feasibility Study, which will identify any fatal flaws of proposed project. If deemed feasible, then a Project Development and Environmental (PD&E) following NEPA will need to be conducted. The PD&E study will further analyze the impacts this project may have to the environment and the surrounding residents and businesses. The NEPA Class of Action will be determined during PD&E study, and the recommendations of mitigations strategies will be made to the impacts. Permitting requirements will also be identified during PD&E study. Final design will begin after the completion of PD&E Study. The estimated total project time is 126 months or 10.5 years Table 1 below provides an estimated project schedule, assuming the Feasibility Study concludes that the bridge is feasible. Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 11 of 16 Packet Pg. 1351 I.1.a Table 1 Project Schedule Task Duration Feasibility Study 12 months Concurrent with Feasibility Programming/Funding Study PD&E Consultant Procurement 6 months PD&E Study 36 months Final Design Procurement 6 months 36 months (include 24 months Final Design for Right of Way Acquisition) Construction Engineering Concurrent with Final Design Inspection (CEI) Procurement Construction Project 6 months Advertisement and Letting Construction 24 months Total Project Duration 10.5 years (126 months) 6. ADVANTAGES Construction of a second bridge connection from Cow Key to Key West will have the following advantages: Provide additional traffic relief to and from Key West. Additional emergency evacuation route for Naval Clinic and Key West. Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 12 of 16 Packet Pg. 1352 I.1.a 7. MAJOR CONCERNS The following are the concerns identified with the construction of a second bridge connection: Right of Way impact o The proposed bridge begin point will need right of way acquisition. It is federal land and currently being used as US Naval Branch Health Clinic. th o The existing right of way width of 5 Avenue is 50 feet. To accommodate an end bent of a 47.0 significantly wider than the existing right of way. This will affect both th businesses on either side of 5 Avenue. Bridge Geometry o Without a detailed boat survey, the vertical clearance of channel span clearance requirement cannot be accessed. 35 feet used in this study is only based on the field observation. o If the bridge for sport fishing boat access with a 100-foot channel spanand 35-feet vertical clearance, the touch down point will be approximately 550 th feet encroached into the 5 Ave and Naval Clinic from the coast line. Note that the business access will be impacted if begin and end bridge cannot be maintained at the coast line. Environmental Impact o Natural resources impact along coastline and subaqueous ( under ocean). Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) o Sociocultural impact to the neighborhood due to introduction of new traffic volume and potential Right of Way impacts. nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 13 of 16 Packet Pg. 1353 I.1.a Environmental Permitting o The possible permitting agencies are: US Coast Guards, United States Environmental Protection Agency and Florida Department of Environmental Protection, US Army Corps of Engineers and US Geological Survey. Funding th o 5 Avenue on Cow Key is a local road and not federal aid eligible. It needs to be federalized. 8. COST ESTIMATES The estimated cost associated with the proposed bridge will be based on the following bridge geometric assumptions: Approximate waterway width 600 feet. Channel Span horizontal clearance 100 feet, Span length 110 feet. (Assumed for the passage of recreational fishing boats) Channel Span vertical clearance 35 feet. (Assumed for the passage of recreational fishing boats) Assume 8 feet superstructure depth and existing ground elevation at 5.0. At 5% slope, the required approach spans length is 550 feet, which makes the total bridge length of 1,710 feet, approximately. Bridge typical section width is 47.0 feet, which will provide two 12 ft. lanes, 10 ft. shoulders. Bridge per square foot cost assumed to be $130/SF. Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 14 of 16 Packet Pg. 1354 I.1.a Based on the above assumption, the construction cost for the bridge is $10.5 million. Considering the related roadway improvement as 10%, 10% of Mobilization, 10% of Maintenance of Traffic and 25% Contingency. The estimated total construction cost will be $16.3 million. Environmental mitigation and Right of Way cost are not available at this time. Total project cost is estimated at $23.1 million, as shown in Table 2 below. Table 2 Project Cost Estimates Task Cost (millions) Feasibility Study $ 0.3 PD&E $ 2.5 Final Design $ 2.0 Construction $ 16.3 Construction Engineering $ 2.0 Inspection (CEI) Environmental Mitigation * Right of Way * Total Project Cost $ 23.1* Where * indicates actual costs are not available at this time. Final Design and CEI are estimates as 12% of total construction cost, and 15% for PD&E Study. 9. NEXT STEPS Determine the Action Agency for this project which should be either Monroe County or City of Key West, since the project will be on local roads, and the construction will be in both the County Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) th Add the 5 Avenue and Cross Road on Cow Key to the Federal Aid roadway system nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 15 of 16 Packet Pg. 1355 I.1.a Determine Lead Federal Agency Determine a Purpose and Need for this project Secure the source of funding Conduct Feasibility Study With the outcome of Feasibility Study, determine the action plan for next steps. 10. CONCLUSIONS The design of a new bridge over Cow Key Channel will require federal permits from US Coast Guard, US Army Corps of Engineers and US Geological Survey. The Right of Way impacts to the residents may need Environmental Justifications due to the low income th and minority families residing along 5 Avenue and Cross Street. The acquisition of federal land Right of Way will require approval from Federal Lands Office. Environmental impacts to the protected species and seagrass are to be determined. All these processes may significantly increase the schedules for PD&E study and final design process, which may require additional time to complete this project from the estimated 10.5 years. It is advisable that the Action Agency creates detailed project plans and follows through all protocols to ensure the successful completion of a project such as this. Without a detailed Feasibility Study, a definitive recommendation is not prudent. Due to potential environmental impacts as well as the potentials for Federal Permits, compliance with NEPA will be required. We recommend a Class of Action to be an Environmental Assessment (EA) and then, if significant environmental issues are identified, the Class of Action will need to be elevated to an Environmental Impact Statement (EIS). Attachment: Cow Key to Key West New Bridge White Paper (2 5 19 kp) (FDOT Presentation Cow Key Channel Bridge) nd White Paper on the Feasibility of 2 Bridge Connection From Key West to Cow Key Page 16 of 16 Packet Pg. 1356