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08/03/1988 SPECIAL WORK SESSION - CLEARWATER PASS BRIDGE August 3, 1988 The City Commission of the City of Clearwater met at City Hall, Wednesday, August 3, 1988, at 9:35 a.m. with the following members present: Rita Garvey Mayor-Commissioner James Berfield Vice-Mayor/Commissioner Lee Regulski Commissioner Don Winner Commissioner William Nunamaker Commissioner Also present were: Ron H. Rabun City Manager Cynthia E. Goudeau City Clerk William C. Baker Public Works Director Gerald Rehm Representative James Terry Pinellas County Dr. Ross Representatives of Volkert Engineering Nancy White, representing Representative Bilirakis The Mayor called the meeting to order and the following items were discussed: Future Bridge In May of 1987 the Clearwater Pass Bridge experienced a foundation failure caused by extensive scouring of the Pass bottom. The scour reduced the penetration of the piles into foundation materials thus reducing the load capacity of some piles to the extent they could no longer support the imposed loads. A study was authorized by the City of Clearwater to evaluate feasible alternatives for a permanent correction of the precarious condition of the bridge. The objective of the study is to provide documented information for the City to reach a decision as to the type and extent of repairs and improvements which should be made to this important transportation facility. The City Manager stated this is to provide the Commission with an update regarding the bridge problem and information regarding attempts to find state or federal aid in construction of the bridge. He stated the bridge scour problem began as soon as the bridge was built and he reviewed the steps taken to protect the bridge, including placement of rip-rap, jetties, additional dredging and structural repairs that have occurred. In May of 1987, there was a 10-inch drop in the area of particular piles. Crutch bents were installed and a 15-ton weight limit and a 15-mph speed limit were imposed. It is the hope of the City to keep the bridge safe and open and the City is moving forward on the installation of additional crutch bents. The City Manager stated the City is seeking assistance in financing the replacement of the existing bridge which will require $11-$14 million. William C. Baker, Public Works Director, reviewed the history of the bridge stating it was designed in 1960 for the Florida Department of Transportation. When FDOT decided not to build the bridge, the City of Clearwater proceeded. The bridge construction was completed in 1962, and with the issuance of the first annual report on the bridge, the scour problem was noted. There were a series of recommendations provided to the City to protect the bridge and Clearwater did each item recommended. The University of Florida study recommended the construction of a North and South jetty and the dredging of the channel. All of this was done. In 1974, the annual report stated there was no significant change in the bay bottom, and that the scour problem had been eliminated. In 1985, the Florida Department of Transportation, who has inspection authority for the bridge, rated the bridge 75 out of 100. In 1987, the bridge slumped and the City undertook immediate repair. David Volkert & Associates were hired in January of 1988 to recommend the best solution to the City. Mr. Baker emphasized that the City has done everything that has been recommended to it for protection of the bridge. He stated now the Commission must decide whether to repair the existing bridge or construct a new one. He stated whatever the decision, the City needs to have as few exposures to hurricane seasons as possible. Jack Roberts, of Volkert & Associates, stated the study objectives were to make a decision regarding the type of improvement, to be made, to provide preliminary design for that improvement to produce a typical section of the improvement to identify right-of-way requirements and cost of alternatives. He stated they have developed three alternatives: (1) permanent restoration of the current bridge; (2) replacement with a mid-level bascule span bridge; and (3) replacement with a high level fix span bridge. Dr. Ross reviewed the history of the scour problem and explained that given time all piles will be exposed, which does not bode well for repairing the existing bridge. He stated the closing of Dunedin Pass has had an impact regarding the velocities in Clearwater Pass as they have increased by 5 to 8 percent. This has caused an increase in the rate of sand motion from 28 to 47 percent. Local scour at the bridge has increased 11 to 18 percent. If Dunedin Pass is not open, it will increase the velocity at Clearwater Pass. Tom White of Volkert & Associates reviewed the recommendations. He stated restoration of the existing bridge would call for additional crutch bents which would cause more obstruction in the Pass and would increase the scour problem. There would also need to be repairs to the existing bascule span. During repairs, the bridge would be open most of the time but there would be some closures. Regarding the two replacement options, there would be two 12-foot lanes, for a total of 51 feet, constructed right beside the existing bridge. Upon completion, the existing bridge would be demolished. Right-of-way needed is one-half acre currently occupied by Fisherman's Wharf Restaurant plus an additional two-tenths of an acre. The mid-level bascule span bridge would be 32 feet in height. The requirements for opening of the bridge would be reduced by 20 percent. Some traffic coordination would be needed. There would be no major environmental impacts; however, storm water runoff would need to be treated. The shape of the piers would be streamlined and as few as possible would be used, aligning them with the flow of the Pass. The proposal for a high-level fixed bridge would call for a 65-foot vertical clearance and would need approval of the Coast Guard. Movement of the channel would need approval by the Corps of Engineers. Utility and water lines would have to be moved for both replacement options. Storm water treatment would also be needed. The time frames for the replacement options are: renovation of the current bridge would take approximately 25 months from October 1988 to November 1990; a mid-level bascule span bridge would require 43 months from October 1988 to May 1992 and a high-level fix span would take approximately 47 months from October 1988 to September 1992. Mr. Roberts indicated that they have compared environmental, traffic right-of-way requirements, and maintenance needs. Initial project costs and life cycle cost for the three alternatives: Option A - repair of the existing bridge would cost $11,800,000. Option B - a mid-level bascule span bridge would cost $20,200,000. Option C - a high-level fixed span would cost $12,100,000. Although the present cost of Option A is less than that of Option C, it is assumed that the existing bridge will eventually have to be replaced. Therefore, Option C is being recommended as the best long-term solution. In addition, evaluating concerns regarding service beyond 2004, more stringent environmental restraints in the future, and possible restrictions on vertical clearance, it is the conclusion of Volkert and Associates that Option C is the best long-term solution. It is recommended that the existing bridge be replaced with a high-level fixed span structure; that the City initiate environmental assessment and final design of the bridge and that the City pursue funding for the construction. William C. Baker, Public Works Director, indicated that the Bridge Task Force agreed with Volkert's assessment. Dunedin Pass Jim Terry of Pinellas County presented a brief history regarding the Dunedin Pass dredging project. He stated that the County has answered all the questions posed to it by the Department of Environmental Regulation and they are anticipating an answer regarding the permits by August 15, 1988. He stated the construction plans are 95 percent complete and that there is some funding available through the City and the County. Mr. Terry indicated the main concerns regard the quality of the dredge material and whether or not the activities would cross grass beds. Concerns were expressed regarding the impact on the residents of Sand Key if the permit to dredge Dunedin Pass is denied. Present Bridge Public Works Director stated that Kisinger & Campo are continuing their work on the current bridge. Seven crutch bents were installed during last summer and the Commission has authorized additional crutch bents. Concerns were expressed that the addition of crutch bents was not as economically feasible as the placement of rip-rap around the piles. Mr. Baker indicated that while rip-rap is stabilizing, it would not allow the replacement of sand in those areas where the sand has already eroded. In response to a question regarding at what point is there a critical loss of sand, Jack Campo of Kisinger Campo stated this has already been exceeded and that the additional crutch bents are the prudent economical approach. He stated the replacement of rip-rap would not enhance the structural integrity of the bridge and will accelerate the velocity of the water flow. Funding The City Manager reported that the City is hopeful that it will be able to find federal and state funding for the bridge. The City is trying to have this project placed in the fifth year of the five-year funding program. He stated if the City has to build the bridge on its own, it will be expensive. The Mayor stated she wished to clarify a news report that had indicated that State funding for the engineering was available. It has now been reported that the funds are not there. In response to a question, it was indicated that the $600,000 for engineering services includes investigation of environmental concerns. Dan Deignan, Finance Director, stated that, if Federal or State funds are provided, there will be no tolls on the new bridge. However, the City would have to pay off the current debt on the existing bridge. He stated an analysis of the seven-year revenue requirements indicated the City needs a cash flow of $1,568,000 per year. He said under the current revenues there will be a short fall of $488,000 per year. It was stated that once the tolls are raised there will be a decline in usage of the bridge. It was suggested that Sand Key parking lot revenue be used toward the bridge. A question was raised regarding whether or not the County had been approached regarding taking over the bridge, and whether or not there was any movement regarding a recommendation for a bridge authority. Discussion ensued regarding various funding options and it was the consensus to agenda an item in two weeks for discussion. In response to a question regarding what stopped the scour in 1974, Dr. Ross responded that the Pass is completely event driven and in 1972 the storms put sand in the Pass. That sand was relatively stable until hurricane Elena occurred at which time there was a dramatic decrease in sand. Direction from the Commission was for staff to approach the County regarding taking over the bridge, to continue pursuing State and Federal funding, to agenda for Thursday night's acceptance of the report, and to agenda for the August 18, 1988, meeting a formal decision regarding the options. Staff is to report possible increase in tolls at the next meeting. The City Manager indicated that the City is on a fast track for the ultimate solution for the bridge. It was indicated that public input should be received prior to making a decision. The meeting adjourned at 12:01 p.m.