June 2014

St. Augustine Stormwater Program 450 Years Later

FSA Summer Conference 2014

José Maria Guzmán, PEReuben Franklin, PE

Outline1. Brief historical background of stormwater and

storm damage in St. Augustine2. The 2012 stormwater master plan update3. The 2013 stormwater utility update

Acknowledgments: Bobbie-Jo Manning, Jenny Wolfe (City of St. Augustine)

The city of St. Augustine was founded in the Matanzas-Tolomato estuary to protect ships

from storms• City was founded

in 1565 • Spanish vessels

were often damaged and destroyed by hurricanes

• Barrier islands protect St. Augustine

1589 – Francis Drake attack on St. Augustine

Historical records show that storms damaged frequently the city buildings and fort

• The fort was initially built in wood but was frequently destroyed by storms

• After a major pirate raid in 1672 (Robert Searles) the fort was rebuilt using coquina stone

1783 – John Bower

1819 – Plan of St. Augustine, Birch

At the end of the 19th Century barrier islands were still undeveloped

• Bridge from City to Anastasia Island was not built yet.• Barrier islands are still depicted as undeveloped.• Henry Flagler began construction of the Hotel Alcazar.

1862 – US Coastal survey View from the Cathedral (Before 1927)

Horse-drawn tram on causeway across the marsh (Before 1904)

The bridge from St. Augustine to Anastasia Island was originally built in wood and was frequently damaged

• In 1925 the wooden bridge to Anastasia Island was replaced by a the Bridge of Lions

• Construction was accelerated to coincide with the 1927 Ponce de León celebration

Bridge of Lions in construction (1927)

In 2010 the Bridge of Lions was rehabilitated by FDOT maintaining its historical value

Historical records show numerous hurricanes and tropical storms

occurring in the area in the past

A recent FEMA study re-evaluated the historical hurricane information and coastal surge

• The study evaluated storm information available for North East Florida, including St. Augustine

• Map shows tropical storms recorded from 1940-2010.

• Limited spatial data was available prior to 1940

In modern St. Augustine the combination of urbanization with high tides generates frequent

flooding

• Flat terrain

• Impervious areas

• High groundwater Cordova and Bridge Streets

Court Edna Avenida Menendez

Granada Street

The City has implemented numerous projects that were identified as part of the 1995 stormwater master plan

Project Status FundingBay Front Area Built CityComares Avenue and Herada Street Area Built City

San Carlos Avenue area Built CityRiberia Street and Lincolnville Area Built SharedRiberia/Castillo Area Built CityKing Street Built StateCharlotte Place Vortex Box Built CityInlet Vortex Box Built CityPine Street Vortex Box Built CityCharlotte Street Drainage Improvements Built City

Josiah Street Basin Built City

Maria Sanchez Lake Basin Partially complete City

Oviedo Street Partially complete City

Treasury Street area Not complete CitySeawall Rehabilitation Ongoing SharedRiberia Street Phase II Ongoing CityO t C k t h d i t Pl i Cit

• In 1993 City established its stormwater utility

• The utility revenue funded a citywide stormwater master plan in 1995.

The Master Plan was updated in 2012

5. Pilot Area Improvement Plans

1. Data Collection, Evaluation, and Site Visits2. Citywide Hydrologic Model Development3. Citywide Hydraulic Schematic Development4. Definition of Stormwater Levels of Service

CDM Smith established a Level of Service (LOS) to rank projects and confirm problem areas

• Future projects shall be assessed based on a design tidal condition of 2.2 ft-NAVD. This value corresponds to the 1-year still water elevation

Arterial/Collector Road Flood Frequency

Local Road Flood Frequency

New Structures Flood Frequency

50Year

5Year

100Year

11.0 inches

5.2 inches

12.8 inches

Citywide Hydrologic Model Development

• 249 Hydrologic Units (HUs) Delineated and labeled

• Each HU has specific hydrologic characteristics based on topography, soil type and land use

• Rainfall data from SJRWMD used to develop 24 hour runoff hydrographs for each HU

• City coordinated with St Johns county hydrologic boundaries and inflows.

Three Pilot Projects were identified in Phase I Stormwater Master Plan

2015 - Sidney Street Outfall

Improvements$360,000

2017 - Downtown Drainage Improvements

$ 3,073,000

2014 - South Dixie Outfall

Improvements$1,300,000

Pilot Project 1: Sidney Street

Outfall

• Basin area: 83 Acres• Collection system along

Sidney St.• Inlets with flumes at

ditch crossings• Wet detention pond

with control structure

Pilot Project 2: South Dixie

Highway Outfall• Basin Area: 36 Acres• Upsize and extend

collection system• First flush collectors

around inlets along South Dixie Highway

• Wet detention pond with control structure

• Resurfacing of South Dixie Corridor between King St. and S.R. 207

Pilot Project 3: Downtown Drainage

Improvements• Basin Area: 86 Acres• Upsize collection system• Underground storage

vault with pump• Inverted crown roadway

at Cordova St. and Bridge St. Intersection to outfall

• Hardscaping along Granada, Bridge and Cordova St.

• Grant opportunities

Master Plan Update Recommendations• Implementation of pilot projects• Review of stormwater utility• Ordinance Recommendations:

– Control of Erosion From Coquina Parking Lots and Driveways

– Set finished floor elevations to FEMA estimated BFE of 9 ft NAVD

– Encourage the use of landscape areas for the collection, storage, and harvesting (reuse) of stormwater runoff

Sediment from Coquina Driveway

CDM Smith reviewed the basis for the 1993 stormwater utility

• Billing unit basis since :

o $5.00/ERU residential

o $7.50/ERU non-residential

o 1 ERU = 2,000 sq. ft. (Florida’s average)

• Initial yearly revenue (1993): $ 143,900

• Estimated yearly revenue (2013): $ 750,000

• Maximum charge: 10 ERUs

• 2012 Stormwater reserve balance: $3.4M

CDM Smith developed a Statistical GIS sample of Residential Customers to determine the Disparity in

the SFH Impervious Areas

The City organized a stormwater committee representing residential, commercial, real estate and

educational institutions.

• 4 monthly meetings• Overview of stormwater program• City’s responsibilities• Funding options• Proposed alternatives

Revenues and expenditures were balanced in the existing utility

Annual Revenue (2012)Residential Fees $

399,000Commercial Fees 345,600Interest Earnings 11,200

$ 755,800Annual Expenditures (2012)

Operational Expenditures $ 532,464

2011 Bond Debt Service 223,336$ 755,800

Budgeted Income (Loss) $ -

Reserve Balance $ 3,552,955

Notes:

* Operating expenses includes $146,954 in infrastructure repairs and maintenance.

** Operational expenses include personnel, supplies, and overhead.

Committee members had several questions

• Why do we have to update the utility?

• How can we pursue shared funding opportunities?

• Why should we keep a stormwater reserve?

• Can the city consider other financing options such as bonds, or bank loans?

• Why shouldn’t we use the city’s general fund?

GeneralFund

General Administration

39%

Physical Environment

16%

Public Safety36%

Interest/Fiscal 6%Culture /Recreation 2%

Transportation 1%

ST AUGUSTINE GENERAL FUND

CDM Smith proposed a new billing structure based on the most recent information

• Single family unit of 2,752 square feet• Tiered structure based on statistical residential sample• Delineation of each non-residential customer impervious area • Consideration of a combination of non-utility revenue sources

City staff set forward a recommendation to the stormwater committee

1. Removing cap for non-residential customers2. Establishing a tiered residential structure (SFU)3. Monthly fee:

– $7.00/Month (2014-2017)– $9.00/Month (2017 -)

4. Yearly adjustment based on CPI (2-3% in recent years)5. Implementation of pilot capital improvement projects as

funds become available6. Neighborhood projects were identified by city staff.

In addition to the pilot projects, the City proposed a series of neighborhood projects

No. Neighborhood Project in Alphabetical Order

1 Alerto/Davis Shore Improvements

2 Arrendo/Flagler (N Davis Shores)

3 Ballard/Myrtle Improvements

4 Coquina Ditch

5 Court Edna/Theodore

6 Dolphin Dr. Backflow Preventers (2)

7 Helen Street Improvements

8 Inlet Drive N Davis Shores

9 Isla Drive Improvements

10 Magnolia/Lighthouse

11 Marina Inlet – Avenue Mendez Cave In

12 N. Davis Shores Backflow Preventer

13 Palmetto Stormwater Improvements

14 San Carlos (between US1 and S. Marco)

15 Treasury/Cordova/King Street

16 Washington Street Shoreline

CDM Smith estimated the reserve balance based on the City’s recommendation

Comparison of current utility rates with the proposed $7.00/SFU

• Many customers experienced a fee reduction.• City developed an outreach program to contact customers.

The City deployed an outreach program to inform customers of the upcoming upgrade

• Radio interviews• Newspaper articles• Webpage

The City prepared a flyer that was mailed to each customer

• Flyer explains the concept of a stormwater utility

• Described the methodology behind the new fee structure

• Provided contact information and links to additional resources

A 30% credit policy is available for non-residential customers with permitted on-site facilities

• Facilities have to be maintained by owner

• Permit information must be provided

• CDM Smith estimates that about 800 SFUs could apply for a credit

• A potential revenue reduction of 4.3%

The City is already implementing the recommendations included in the master plan

• Rates were updated in April 2014.

• South Dixie Highway (design)

• Downtown improvements (construction)

• Sea level rise planning considerations will be started in 2014

• Upcoming 450th anniversary

HYPOLITA STREET (May 2014)

Acknowledgements:

- City of St. Augustine Historical Records (Jenny Wolfe)- NOAA – Historical Hurricane Review- RS&H – Bridge of Lions Replacement Report – 2011

1926 Bridge of Lions Construction