TASK FORCE FINAL REPORT - M-CORES

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NorthernTurnpikeConnectorTASK FORCEFINAL REPORT11.15.2020

NORTHERN TURNPIKE CORRIDORITASK FORCE FINAL REPORTI2

TABLE OF CONTENTSINTRODUCTION AND OVERVIEW. . . . . . . . . . . . . . . .4TASK FORCE OVERVIEW. . . . . . . . . . . . . . . . . .7STUDY AREA OVERVIEW. . . . . . . . . . . . . . . . . . . . .12RECOMMENDATIONS. . . . . . . . . . . . . . . . . . . . . . .18ACTION PLAN . . . . . . . . . . . . . . . . . . . . . . . . . . .36APPENDIXAppendix A – Task Force Members. . . . . . . . . . . . . . . . .A-1Appendix B – Task Force Work Plan . . . . . . . . . . . . . . . .B-1Appendix C – Meeting Locations. . . . . . . . . . . . . . . . . .C-1Appendix D – Board Resolutions and Letters from Municipalities . .D-1NORTHERN TURNPIKE CORRIDORITASK FORCE FINAL REPORTI3

INTRODUCTIONAND OVERVIEWThe statute directs the Florida Department of Transportation(FDOT) to advance the construction of regional corridorsintended to accommodate multiple modes of transportation andmultiple types of infrastructure in three defined study areas:Section 338.2278, F.S.created the Multi-useCorridors of RegionalEconomic Significance(M-CORES) Program.The purpose ofthe program isto revitalize ruralcommunities,encourage jobcreation, and provideregional connectivitywhile leveragingtechnology,enhancing the qualityof life and publicsafety, and protectingthe environment andnatural resources.4 SUNCOAST CONNECTOR, extending from Citrus County toJefferson County;4 NORTHERN TURNPIKE CONNECTOR, extending from thenorthern terminus of the Florida Turnpike northwest to theSuncoast Parkway; and4 SOUTHWEST-CENTRAL FLORIDA CONNECTOR, extendingfrom Collier County to Polk THWEST-CENTRALFLORIDA CORRIDORNORTHERN TURNPIKE CORRIDORITASK FORCE FINAL REPORTI4

The statute specifies these corridors as part of a broader program to address the complete statutory purpose ofM-CORES, including revitalizing rural communities and enhancing economic development. The statute also providesFDOT with direction and tools to help advance other regional goals related to the statutory purpose, includingenhancing quality of life and protecting the environment. The breadth of the program’s purpose, the scale of theidentified corridors, and the additional tools provided to FDOT all point to the need for a thoughtful, collaborativeapproach to implementing the M-CORES program, analyzing corridor needs and alternatives, and building consensusaround future actions among FDOT and a wide range of partners.The statute directed FDOT to convene a Task Force for each corridor as an inclusive, consensus-building mechanism.The FDOT Secretary appointed the members who were representatives from state agencies, regional planning councils(RPC), metropolitan planning organizations (MPO), water management districts, local governments, environmentalgroups, and the community.THE STATUTE CHARGED EACH TASK FORCE WITH:Coordinating with FDOT on pertinent aspects of corridoranalysis, including accommodation or co-location of multipletypes of infrastructure;Evaluating the need for, and the economic, environmental,hurricane evacuation, and land use impacts of, the specificcorridor;Considering and recommending innovative concepts tocombine right of way acquisition with the acquisition oflands or easements to facilitate environmental mitigation orecosystem, wildlife habitat, or water quality protection orrestoration;Addressing specific issues related to specific environmentalresources and land uses identified in each study area;Holding public meetings in each local government jurisdictionin which a project in the identified corridor is beingconsidered; andIssuing its evaluations in a final report to the Governor, thePresident of the Senate, and the Speaker of the House ofRepresentatives.NORTHERN TURNPIKE CORRIDORITASK FORCE FINAL REPORTI5

This report summarizes the activities and recommendationsof the Northern Turnpike Corridor Task Force.Due to the early stage of planning for this corridor and the limiteddata and analysis on potential needs and impacts available at thistime, the Task Force was not able to fully address its charge ofevaluating the needs for and impacts of the Northern TurnpikeCorridor. The Task Force directed FDOT to establish at least apreliminary determination of transportation need and initial financialfeasibility before proceeding with the PD&E process. The Task Forcebuilt upon the purposes outlined in the statute to develop high-levelneeds that need further evaluation by FDOT. Recommendationsincluding high-level needs, guiding principles, and instructions weredeveloped by the Task Force for further evaluation by FDOT. The TaskForce identified a series of potential high-level needs for futureevaluation by FDOT and developed recommendations for how FDOTshould assess the need for a corridor of the scale specified in statute.The Task Force did not reach a conclusion, based on the informationavailable at this time, that there is a specific need for a completelynew greenfield corridor or modifications of existing facilities throughthe study area to achieve the statutory purpose. Project-level needswill be evaluated consistent with the Task Force’s recommendations. Ifspecific needs are identified, the Task Force expressed a preferencefor improvement or expansion of existing major highway corridors.The Task Force acknowledged the process for FDOT to consider a “nobuild” alternative in future project development activities until a finalrecommendation about each specific project is made. The Task Forcealso recommended guiding principles, instructions, and an action planas a set of directions to FDOT and other partners for future planning,project development, and implementation activities related to theM-CORES Program.In completing this report, the Task Force’s charge was to provideconsensus recommendations for how FDOT can work with localgovernments and other agencies and partners to carry outthe M-CORES Program as specified in s. 338.2278, F.S. Theserecommendations address how needs and feasibility should beevaluated and how corridor development and related activities shouldmove forward to implement the statute and support the environment,quality of life, and prosperity of the study area and the state. Futureactivities related to project-specific needs, environmental, andeconomic feasibility will be fully developed by FDOT consistent withthe Task Force’s recommendations.February 12, 2020The statute charges FDOT, to the maximum extent feasible, to adhereto the recommendations of each Task Force in the design of themultiple modes of transportation and multiple types of infrastructureassociated with the corridor. The Task Force recommended, andFDOT committed to, an action plan for future activities in this studyarea consistent with the guiding principles and instructions.NORTHERN TURNPIKE CORRIDORITASK FORCE FINAL REPORTI6

TASK FORCEOVERVIEWMEMBERSHIPISSUES FOR CONSIDERATIONBY ALL M-CORES TASK FORCESIn August 2019, FDOT convened the Northern Turnpike CorridorTask Force with 39 members representing state agencies, waterorganizations, regional planning councils, environmental groups,s. 338.2278 (1), Florida Statute Hurricane evacuation.and community organizations (see Appendix A for Membership Congestion mitigation.List). Trade and logistics.MEETINGS Broadband, water, and sewer connectivitymanagement districts, local governments, metropolitan planningThe Task Force met 12 times and had an online training Energy distribution.between August 2019 and October 2020 through eight Task Autonomous, connected, shared, and electricvehicle technology.Force meetings and four webinars or virtual meetings. Over Other transportation modes, such as shared-usenonmotorized trails, freight and passenger rail,and public transit.the course of 15 months, the Task Force reviewed data, trends,and issues; discussed key considerations for planning potentialtransportation corridors, including specific issues as identified in Mobility as a service.the Florida Statute (see box); and received and reviewed publicinput. Subject-matter experts joined the Task Force meetings toprovide information related to specific aspects of the Task Force’scharge, including community planning, economic and workforcedevelopment, agriculture, environmental resources, broadbandand utilities, emerging technology, and emergency management.The Task Force developed specific recommendations relatedto identifying and evaluating high-level needs related to thestatutory purpose, as well as guiding principles and instructions Availability of a trained workforce skilled intraditional and emerging technologies. Protection or enhancement of wildlife corridorsor environmentally sensitive areas. Protection or enhancement of primary springsprotection zones and farmland preservationareas designated within local comprehensiveplans adopted underChapter 163.for potential corridor development and related activities to helpaddress these needs, as documented in subsequent sections ofthis report. The Task Force also recommended an action plan formoving forward.In March 2020, some unique challenges arose resulting from theCOVID-19 pandemic. The Task Force adapted meeting formatsto comply with the Governor’s Executive Order Number 20-122.The later Task Force meetings were designed with a combinationof virtual and in-person locations for both Task Force membersand the public to participate (see Appendix B for Work Plan andISSUES FOR CONSIDERATION BY THENORTHERN TURNPIKE CORRIDOR TASKFORCEs. 338.2278 (3) (c) 8, Florida Statute Evaluate design features and the need foracquisition of state conservation lands thatmitigate the impact of project constructionwithin the respective corridors on:a.The water quality and quantity of springs,rivers, and aquifer recharge areas;b.Agricultural land uses; andc.Wildlife habitat.Appendix C for Meeting Locations).A facilitator and staff supported the Task Force meetings toassist with discussion, provide technical support, and documentthe Task Force’s deliberations and recommendations. Additionaldocumentation of the Task Force activities, including meetingagendas, materials, and summaries, can be found on the projectwebsite (http://www.FloridaMCORES.com).NORTHERN TURNPIKE CORRIDORITASK FORCE FINAL REPORTI77

DATA AND MAPPING TOOLSFDOT staff developed and maintained a Geographic Information System(GIS) tool to provide the Task Force and general public access to a widevariety of data on existing demographic, economic, land use, environmental,infrastructure, and other resources in the study area.This tool was specifically used to help identify areas where direct impacts from corridors should be avoided, as well asareas where a connection to a corridor may be appropriate for future evaluation. FDOT staff conducted one-on-onetechnical briefings to provide Task Force members with a tutorial of the GIS tool and to discuss data-related questions.The Task Force used the GIS tool to help understand the relationship between draft guiding principles, draft instructions,and potential corridor location decisions. Task Force members suggested that other data sources related to conservationlands, water resources, and wildlife habitat be included in the tool as GIS layers for Task Force discussion to supportdevelopment of guiding principles and instructions.The GIS tool served as a living instrument and was updated based on feedback and suggestions from the Task Forcemembers. The GIS tool remains publicly accessible at all times on the project website (http://www.FloridaMCORES.com)and through a mobile-friendly thern-turnpike-connector-gis-map-2/NORTHERN TURNPIKE CORRIDORITASK FORCE FINAL REPORTI8

PUBLIC ENGAGEMENTPublic engagement was a critical component of the Task Force process. The public engagement process was designed toallow residents and visitors the ability to comment on all Task Force deliberations, reports, and products at any time throughthe 15-month period using a variety of mediums from in-person to online. The statutory charge to hold meetings in each localgovernment jurisdiction in which a project is being considered in the study area was met as described below.Opportunities for public engagement were included ateach Task Force meeting through a dedicated publiccomment period, and comment stations were set upto receive written comments. In-person Task Forcemeetings were held in Tampa (Hillsborough County),Lecanto (Citrus County), Ocala (Marion County), andFanning Springs (Levy County). All of the Task Forcemeetings and webinars were broadcast live on TheFlorida Channel (with the exception of Task ForceMeeting #4 in Fanning Springs, which was streamed liveon the M-CORES website), and recordings were postedon the project website for members of the public whocould not attend in person. The public could also attendthe webinars and hybrid meetings virtually through theGoToWebinar platform. Overall, a total of 534 peopleattended the in-person meetings and 1,553 peopleattended the webinars and meetings virtually. 163 peopleprovided public comments at Task Force meetings.To further public engagement, seven Community OpenHouses were held in Lecanto (Citrus County), Wildwood(Sumter County), Chiefland (Levy County), CrystalRiver (Citrus County), and Bushnell (Sumter County) toshare information about the process and receive publicinput. Due to the COVID-19 pandemic, the last threeCommunity Open Houses were held in a combinationof in-person and virtual meetings. At the CommunityOpen Houses, members of the public could directly askquestions of FDOT staff, view informational material, andexperience hands-on use of the GIS tool. A total of 728people participated in the seven open houses.FDOT received communication 24/7 through the projectwebsite, the FDOT Listens email address, phone, socialmedia, letters, newsletters, and more. In total, FDOTreceived 3,050 unique and 11,193 form letter commentsthrough these communication methods, which wereshared with the Task Force.Table 1. Task Force and Community Open House MeetingsEventTask Force Meeting #CommunityOpen House #DateFormatIn PersonAttendanceVirtualAttendance1*Tuesday, August 27, 2019In Person311NA2Tuesday, October 22, 2019In Person79NA3Wednesday, December 18, 2019In Person62NA4Wednesday, February 12, 2020In Person58NAOnline**Friday, April 17, 2020VirtualNA34Webinar 1Wednesday, April 29, 2020VirtualNA291Webinar 2Thursday, May 14, 2020VirtualNA158Webinar 3Wednesday, June 3, 2020VirtualNA248Virtual Meeting 4Thursday, June 25, 2020VirtualNA1626Wednesday, July 22, 2020Hybrid41647Wednesday, August 26, 2020Hybrid91648Tuesday, September 22, 2020Hybrid91619Thursday, October 22, 2020Hybrid21711Thursday, October 24, 2019In Person14NA2Thursday, December 19, 2019In Person10NA3Tuesday, January 28, 2020In Person172NA4Thursday, January 30, 2020In Person127NA5Thursday, August 27, 2020Hybrid21526Wednesday, September 23, 2020Hybrid161607Thursday, October 22, 2020Hybrid570*Meeting was held jointly between all 3 corridors**Task Force Meeting 5 was held via online training modulesNORTHERN TURNPIKE CORRIDORITASK FORCE FINAL REPORTI9

These comments varied from concerns over the development of these corridors due to their potential environmental,community, and financial impacts to support for the corridors due to their potential transportation, economicdevelopment, and quality of life benefits. In addition, there was significant concern about the timing of this processgiven the COVID-19 pandemic. The Task Force was provided with periodic summaries of the comments received aswell as copies of all comments, so the public input could be considered in the development and refinement of the TaskForce’s recommendations. The majority of the comments submitted through the various forms expressed opposition orconcern about the corridor.Common themes of the public comments received include:Environment and Land Conservation: Avoid habitat fragmentation by preserving habitat and wildlife corridors. Avoid action that can promulgate invasive species. Protect water resources including wetlands, aquifers, springsheds and watersheds. Avoid disturbing existing conservation lands and considering acquisition of lands important to wildlife habitat, waterresources, and ecological connectivity.Quality of Life and Economic Opportunity: Preserve rural and agricultural character. Balance rural character with the need for economic development. Support agricultural activities by considering productive agricultural lands as well as supply chain logistics. Do not promote urban sprawl. Protect, expand and promote ecotourism.Corridor Considerations: Prioritize improvements to existing highways and interstates, co-locate with existing highways and add capacity asneeded, thoughtfully design corridors and interchanges to minimize impacts. Provide congestion relief during hurricane evacuation, assess existing road adequacy for hurricane evacuation,support sheltering, and improve evacuation routes in the center of the state. Concern over equity impacts of tolling and support for tolling as an alternative to other funding sources. Assist communities in securing high-speed internet and cellular coverage, expand broadband without constructing anew road, and support utility connection opportunities for water and sewer. Multi-modal transportation considerations which include high-speed rail and alternative modes of transportation,expanding public transit services, impacts of connected and autonomous vehicles, and improving bike andpedestrian safety. Consideration of no-build option to avoid potential impacts.Comments specific to the Northern Turnpike Corridor were concerns about urban sprawl threatening rural lifestyle andwildlife of the Nature Coast; need for accessible internet for rural communities; limiting routes through Central Florida;concerns that tolls will negatively impact local residents; need to minimize impacts to the aquifer, Rainbow Springswatershed, and Outstanding Florida Springs; and a suggestion to co-locate the corridor along US 19/98 or US 41.NORTHERN TURNPIKE CORRIDORITASK FORCE FINAL REPORTI10

The draft Task Force report was posted for a 15-day public comment period from September 19 toOctober 14, 2020. A total of 242 members of the public submitted 381 comments during that period.A copy of these comments and a summary of the key themes were provided to the Task Force at its final meeting.Common themes of the public comments from the public on the draft Task Force report are included below. Prioritize upgrading existing roadways and co-locate new roads with existing roads and utilities. Consider the no-build option to minimize impacts. Keep “The Task Force recognized the general need to enhance transportation safety, mobility, and connectivityin the study area but did not identify a specific need for a completely new greenfield corridor across the entirestudy area based on the available information at this time” in the report. Funding for conservation land acquisitions to mitigate project activities and enhancements need to come fromFDOT and not from other sources. Protect endangered wildlife and their habitats. Concern over corridor need and feasibility of the new toll road. Protect springs, wetlands, aquifer, floodplain and other water resources. Evaluate or include other transportation modes such as freight, transit, rail, and pedestrian and bicycleaccommodation. Concerns over the cost to implement M-CORES projects. Protect against urban sprawl.In addition to engaging the public, FDOT conducted active engagement with partners. FDOT gave 13presentations to interested agencies and organizations at their

NORTHERN TURNPIKE CORRIDOR I TASK FORCE FINAL REPORT TASK FORCE FINAL REPORT I 77 MEMBERSHIP In August 2019, FDOT convened the Northern Turnpike Corridor Task Force with 39 members representing state agencies, water management districts, local governments, metropolitan planning organizations, regional planning councils, environmental groups, and community organizations (see Appendix A for .

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