ENGINEERING REPORT PROPOSED SARASOTA AREA FLOOD

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ENGINEERING R E P O R TPROPOSED SARASOTA AREAFLOOD CONTROL DISTRICTDECEMBER 1962BOARD O F COUNTY COMMISSIONERSCounty o f SarosotaWarren S. Henderson,ChairmonBoyd R . G e r n h a r dJames A . SpanosF r e d HaighG. Johnson

I t w i l l be noted t h a t t h e above scope p a r a l l e l s our o v e r a l l a s s i g n ment s e t o u t p r e v i o u s l y .The d e p t h o f t r e a t m e n t f o r t h i s p h a s eis t e n t a t i v e and preliminary, and our engineering has been l i m i t e dt o correspond with the needs a t t h i s time.11.BACKGROUND A N D REFERENCEST h e h i s t o r y o f f l o o d s i n r e c e n t y e a r s i s common k n o w l e d g e a n d am a t t e r o f r e c o r d i n many w a y s .Severe f l o o d s of 1957, 1958,1959, and 1960 culminated i n t h e d i s a s t r o u s f l o o d of September21, 1962.It is unnecessary t o review here t h i s h i s t o r y i n d e t a i l ,b u t s u i t a b l e r e f e r e n c e s w i l l be n o t e d .P e r h a p s t h e m o s t c o m p r e h e n s i v e summary o f t h i s h i s t o r y a s i ta f f e c t s P h i l l i p p i Creek w i l l be t h e r e c o r d of t h e s p e c i a l h e a r i n go n N o v e m b e r 3 0 , 1 9 6 2 c a l l e d b y t h e U . S . Army C o r p s o f E n g i n e e r s .I n a d d i t i o n t o r e c o g n i t i o n of v a r i o u s e n g i n e e r i n g r e p o r t s andt e c h n i c a l d a t a , t e s t i m o n y a n d e v i d e n c e f r o m many l o c a l s o u r c e swas s p r e a d u p o n t h e r e c o r d .The f o l l o w i n g l i s t s u m m a r i z e s s e l e c t e d r e f e r e n c e s a n d i n f o r m a t i o ns o u r c e s w h i c h a r e deemed most p e r t i n e n t t o t h e m a t t e r , a l t h o u g hi t i s by n o means e x h a u s t i v e :A.R e p o r t on P h i l l i p p i Creek Basin Flood C o n t r o l(June, 1961) p r e p a r e d by Smally, W e l l f o r d & Nalven,including plans referenced therein.B.R e p o r t on Flood R e l i e fTamiami T r a i l ( A u g u s t ,Company.C.R e p o r t on S a r a s o t a County C o a s t a l Basin FloodC o n t r o l S t u d y (September, 1961) p r e p a r e d bySmally, Wellford & Nalven, including plans referenced therein.D.Supplementary p l a n s , l e t t e r - r e p o r t s and documentarym a t e r i a l p r e p a r e d by Smally, W e l l f o r d & Nalven, a sa p p e a r i n g i n t h e r e c o r d s of t h e Board of CountyCommissioners and departments of t h e Countyadministration.This includes r e s o l u t i o n s ands t a t e m e n t s prepared f o r f e d e r a l and s t a t e a g e n c i e s , andf o r our representatives i n Congress.E.R e p o r t on Flood of 20-21 September 1962, SouthwestF l o r i d a ( N o v e m b e r , 1 9 6 2 ) p r e p a r e d b y U . S . ArmyCorps of Engineers.F.Newspaper a c c o u n t s of o n - t h e - s c e n e e v e n t s , i n c l u d i n gphotographs on t h e ground and from t h e a i r .I-2S t u d y o f P h i l l i p p i (:reek a t t h e1 9 6 1 ) p r e p a r e d by J . E . G r e i n e r-S M A L L Y - L V E L L F O R D'('N5IIiTNF.F N I I . 1 F i i &N A L V E NC A R P C C T AF1 ( ' R I D A

G.R e p o r t s of e y e - w i t n e s s e s and o t h e r competent s o u r c e s a st o t h e e v e n t s t h a t o c c u r r e d and t h e i r d i r e c t andl o n g - r a n g e i m p a c t on t h e c o m m u n i t y , s u m m a r i z e d moste f f e c t i v e l y t o d a t e d u r i n g t h e November 3 0 , 1 9 6 2 C o r p s o fEngineers hearing.The f i r s t f o u r i t e m s a b o v e h a v e b e e n u t i l i z e d by t h e B o a r d o fCounty Commissioners a s t h e c o r e of t h e o f f i c i a l l y a d o p t e d" S a r a s o t a County Comprehensive Flood C o n t r o l P l a n " .Variouse l e m e n t s of t h i s o f f i c i a l p l a n have a l r e a d y been proven e f f e c t i v e ,s u c h a s t h e c o n t r o l of b u i l d i n g e l e v a t i o n s i n c e r t a i n f l o o dh a z z a r d a r e a s a n d t h e p l a c e m e n t of s u r v e y i n g monuments d e l i n e a t i n gt h e f u t u r e right-of-way f o r P h i l l i p p i Creek.111.BOUNDARIES OF PROPOSED DISTRI""F i g u r e 1 , o n t h e f o l l o w i r g p a g e , s u m m a r i z e s on a c o n v e n i e n ts c a l e the outer boundaries proposed f o r the D i s t r i c t .Detailedb o u n d a r i e s s h o w i n g t h e b a s i n s w h i c h would compose t h e D i s t r i c ta r e d e l i n e a t e d o n t h e l a r g e r maps w h i c h s u p p l e m e n t t h e r e p o r t .The p r o p o s e d d i s t r i c t b o u n d a r i e scriteria:a r e b a s e d on t h e f o l l o w i n g1.I n c o r p o r a t i n g t h e c o u n t y a r e a s which have been mosth e a v i l y damaged o r t h r e a t e n e d by f l o o d s .2.Contiguous geographic a r e a s a s an i n t e r r e l a t e d landg r o u p i n g , w i t h l a n d u s e s t h a t a r e u r b a n oy a r et e n d i n g toward u r b a n i z a t i o n .3.Physically r e l a t e d t o basin hydrology, i n the sense ofc o n c e n t r a t i o n of r u n o f f w i t h i n b a s i n s and c h a n n e l i n gthrough major o u t l e t s .Water does n o t r e c o g n i z e p o l i t i c a l b o u n d a r i e s , u n l e s s s u c h bounda r i e s a r e a r t i f i c a l l y i m p o s e d by c o n s t r u c t i o n s u c h a s d i k e s .Areas of t h e C i t y of S a r a s o t a l i e w i t h i n t h e b a s i n s p r o p o s e d , andconsequently the t e n t a t i v e D i s t r i c t boundaires extend i n t o p a r t sof t h e C i t y .The c o a s t a l a r e a s w h i c h d r a i n d i r e c t l y t o n e a r b y o u t f a l l s a r ee x c l u d e d , because t h e y a r e n o t p a r t of d e f i n a b l e b a s i n s andc a n b e o r o t e c t e d by l o c a l s t o r m d r a i n a g e .This appliest o a major p o r t i o n of t h e C i t y of S a r a s o t a which d r a i n sd i r e c t l y t o t h e bay.The f o l l o w i n g b a s i n s a r e i n c l u d e d , f o r w h i c h commonly a c c e p t e dp l a c e names c o n s i s t e n t w i t h p r e v i o u s r e p o r t s h a v e b e e n u s e d :.S M A L L Y - W E L L F O R DJIEN:&N A L V E N' P , ( P ' c , T Ai ; , - l n

Area i n Square Miles581.P h i l l i p p i Creek2.W h i t a k e r Bayou83.H u d s o n Bayou24.Matheny Creek35.E l l i g r a w Bayou26.H o l i d a y Bayou17.Clower Creek1-75 Square MilesT o t a l AreaIV.PROPOSED IMPROVEMENTSThe p r i n c i p l e s a n d c r i t e r i a a p p l i e d a r e i n a c c o r d a n c e w i t h o u rp r e v i o u s r e p o r t s t o t h e Board which have been c i t e d a b o v e , andw i l l n o t be r e p e a t e d h e r e .O n l y t h o s e i m p r o v e m e n t s a n d s t r u c t u r e s t h a t a r e r e q u i r e d bye x i s t i n g c o n d i t i o n s a r e included i n t h e c o s t s and f i n a n c i n gdeveloped l a t e r i n t h i s r e p o r t .T h e s e a p p l y m a i n l y t o downs t r e a m channels and b u i l t - u p a r e a s .M a r g i n a l s t r u c t u r e s wouldbe r e t a i n e d f o r economy.The b a l a n c e o f t h e u l t i m a t e i m p r o v e m e n t s i s n o t i n c l u d e d .Althoughc o n c e i v a b l y t h e s e c o u l d b e f i n a n c e d by t h e D i s t r i c t i n y e a r s t ocome, i t i s b e l i e v e d t h a t t h e w e l l - e s t a b l i s h e d p o l i c y f o r u n i m p r o v e dl a n d s c o u l d be f o l l o w e d o f r e q u i r i n g r i g h t - o f - w a y and c o n s t r u c t i o nby t h o s e t h a t i m p r o v e a n d s u b d i v i d e t h e l a n d s , i n a c c o r d a n c e w i t ht h e County Comprehensive P l a n .This does n o t imply, however,t h a t c o o p e r a t i o n a n d a d j u s t m e n t s s h o u l d n e v e r b e made i n k e e p i n gwith e q u i t y and p u b l i c p o l i c y .The p o w e r s o f t h e D i s t r i c t s h o u l dpermit reasonable f l e x i b i l i t y .The p r o p o s e d i m p r o v e m e n t s a r e s e t o u t o n t h e p l a n s w h i c h s u p p l e m e n tt h e r e p o r t and t h e c o s t e s t i m a t e s which c o r r e s p o n d a r e i n c o r p o r a t e dbelow.V.COST OF IMPROVEMENTSPreliminary costimprovements, a sc o n s t r u c t i o n andpossible federalthe total cost.e s t i m a t e s h a v e b e e n made f o r t h e p r o p o s e ddefined above.These e s t i m a t e s i n c l u d e b o t hright-of-way.No a l l o w a n c e h a s b e e n made f o ra i d , which might r e d u c e t h e D i s t r i c t t . s s h a r e of-4-.S M A L L Y - W F L L F O R DC h i T l l l T I N C -FNr INFL C&N A L V E NC A R r S C i 4IIrRIL)A

JMlNATEECOUNTYMANATEECOUNTYDE SOTOCOUNTYMEXICOCITYOFCHARLOTTECOUNTYBOUNDARIES O F PROPOSEDSARASOTA AREA FLOOD CONTROL D I S T R I C TFIGURE ISMALLYJOB NO 5 7 1-8DECWELLFORD (I NALVEN CONSULTING ENGINEERSSARASOTA.1862I- 5 -FLORIDA

ExcavationS t r u c t u r e s andBulkheadsR i g h t - o f -WayTotalP h i l l i p p i CreekWhi t a k e r BayouH u d s o n BayouMatheny CreekE l l i g r a w BayouH o l i d a y BayouClower CreekTotalAlthough t h e above e s t i m a t e s a r e n e c e s s a r i l y approximate, t h e ya r e s u f f i c i e n t l y accurate f o r the purpose of exploring the ordero f m a g n i t u d e o f a bond i s s u e w h i c h c o u l d f i n a n c e t h e p r o g r a m .-.VI.FISCAL ANALYSISThe a s s u m p t i o n a s t o f i n a n c i n g o f t h e p r o p o s e d D i s t r i c t w h i c hu n d e r l i e s t h i s r e p o r t i s t h a t t h e c o s t s w i l l b e p a i d by l e v y i n ga n n u a l a s s e s s m e n t s a g a i n s t a l l p r o p e r t i e s , on a n o n - e x e m p t b a s i sI n order t o e s t i m a t e t h e millage r a t e , t h e v a l u a t i o n of propert i e s must be d e t e r m i n e d .T h i s h a s b e e n d o n e by a s y s t e m m a t i ca n a l y s i s of t h e r e c o r d s of t h e County Tax A s s e s s o r c o v e r i n gthe specific lands within the District.The f o l l o w i n g t a b l esummarizes our f i n d i n g s , which have been rounded o f f i n keepingwith the other estimates:NON-EXEMPT PROPERTY VALUATIONSBasinAmount P h i l l i p p i Creek88,000,000W h i t a k e r Bayou14,000,000H u d s o n Bayou2 8,000,000Matheny, E l l i g r a wH o l i d a y , ClowerTOTAL.S M A I L Y - W E L L F O R D Y C I I I 'NC,FW(:IN;7 : '&N A I V E NC A R P S , ; ,F ,I P I P A

A p p l y i n g the a b o v e v a l u a t i o n , e a c h m i i l levied i n 1 9 6 2 wouldyield 136,000 for debt service o n a bond issue.I n a d d i t i o n to the costs of the improvements themselves, acomplete f i s c a l analysis must include o n e - t i m e expenses s u c h aslegal and financing fees for a bond issue. Annual income m u s tprovide f o r maintenance and o p e r a t i o n e x p e n s e s , which a r eassumed to average 50,000 per year.Equipment m u s t be utilized for maintenance and o p e r a t i o n , w h i c hcould be either purchased or leased. F o r the purpose o f thisanalysis 1 5 0 , 0 0 0 w o r t h of equipment is assumed to be purchased,the funds for w h i c h a r e included i n the bond issue.The following table summarizes the elements that a r e includedi n a bond issue that could finance the District:PROPOSED BOND ISSUEConstruction CostsExcavationStructures 569,0001,354,000Engineering 1,923,00096,000Capitalized Maintenance EquipmentMaintenance and O p e r a t i o n , F i r s t Y e a r150,00050,000Acquisition of R i g h t - o f - W a y s980,000L e g a l , F i n a n c i n g & Miscellaneous150,000Contingencies151,000TOTAL 3,500,000Although it is not necessary to determine the final features ofthe proposed bond i s s u e , f o r w h i c h the assistance o f a qualifiedf i s c a l agent should be e n l i s t e d , i t is important to demonstratethe general features of s u i t a b l e financing. Therefore a financialforecast has b e e n developed based o n a 2 0 y e a r bond issue at 4 percentinterest, to be secured bygeneral obligation bonds applyingto the District.

DEBT SERVICE SCHEDULE 3,500,000Year ofDistrictOperationIncomeRequired-20 Y E A RB O N D ISSUEOperationandMaintenanceDebtService-4 % his debt s e r v i c e schedule i n d i c a t e s t h a t an i n i t i a l 2% m i l l a s s e s s ment ( b a s e d on 1962 v a l u a t i o n s ) would be r e q u i r e d t o s e r v i c e t h e 3 , 5 0 0 , 0 0 0 bond i s s u e .While o p e r a t i o n and maintenance c o s t s mightr i s e d u r i n g t h e l i f e o f t h e b o di s s u e , f u t u r e c o n s t r u c t i o n w i l lcause a greatly increased val,,ation base.Even a l l o w i n g f o r ap o s s i b i l i t y o f some a n n u a l i m p r o v e m e n t c o s t s n o t f i n a n c e d by d e velopers, the n e t e f f e c t snould r e s u l t i n a long-term annual r e d u c t i o n of m i l l a g e a s s e s s m e n t s .VII.FEDERAL A I DT h e D i s t r i c t E n g i n e e r o f t h e U . S . Army C o r p s o f E n g i n e e r s h a s b e e na l l o c a t e d f u n d s by Congress f o r a s t u d y o f P h i l l i p p i C r e e k , whichi s now i n p r o c e s s .I n order to qualify for construction assistancet h e p r o j e c t would be recommended by t h e C o r p s o n l y i f t h e b e n e f i t t o - c o s t r a t i o were found t o be f a v o r a b l e i n a c c o r d a n c e w i t h t h e i re s t a b l i s h e d f o r m l l a sa n d p r o c e d u r e s .

I t was made a p p a r e n t a t t h e November 3 0 , 1 9 6 2 h e a r i n g h e l d by t h eCorps i n S a r a s o t a t h a t t h e e a r l i e s t p o s s i b i l i t y of f e d e r a l fundst o a s s i s t c o n s t r u c t i o n would be i n f i s c a l y e a r 1965.I n anyevent Congress must appropriate funds s p e c i f i c a l l y f o r such aproject.T h e r e i s no a s s u r a n c e t h a t C o n g r e s s would a p p r o v es u c c e s s i v e a p p r o p r i a t i o n s , n o r a n y way o f f o r e t e l l i n g how m u c hof t h e o v e r a l l p r o j e c t needs i n t h e l a r g e b a s i n would be recommended by t h e C o r p s o f E n g i n e e r s a n d a p p r o v e d by C o n g r e s s .Whether o r n o t f e d e r a l a i d i s e v e r forthcoming, i t i s n e c e s s a r yt o o r g a n i z e a p r o c e d u r a l framework which w i l l be p r e p a r e d t oc o o p e r a t e w i t h t h e Corps of Engineers and t o f u r n i s h t h e l o c a lshare of funds t h a t a r e necessary.Federal a s s i s t a n c e a t mostwould a p p l y t o a major p o r t i o n of c o n s t r u c t i o n c o s t s .Theb a l a n c e of c o n s t r u c t i o n c o s t s and a l l of t h e c o s t s of l a n da c q u i s i t i o n would f a l l upon l o c a l i n t e r e s t s .The p o s s i b i l i t yof federal assistance should expedite, not delay, the formationof a District.No m e a n i n g f u l p r e d i c t i o n s o f t h e a m o u n t o f p o s s i b l e f e d e r a lfunds i s p o s s i b l e u n t i l t h e e x t e n t of involvement i n t h e b a s i ni s determined.Moreover, f e d e r a l a i d would a u t o m a t i c a l l yc a l l f o r p l a n s t o b e p r e p a r e d by t h e C o r p s o f E n g i n e e r s w h i c hm i g h t d i f f e r i n some d e g r e e f r o m o u r p r e l i m i n a r y p l a n s t o d a t e .The bond i s s u e o u t l i n e d i n t h iend" t y p e , which would p e r m i tu p t o t h e maximum a u t . o r i z e d .f i n a n c i n g a n d construction i nf u t u r e a c t i o n s by t h e C o r p s o fVIII.s r e p o r t c o u l d be o f t h e "openf l o a t i n g o f bonds by i n c r e m e n t sThe i l i s t r i c t c o u l d t h u s s t a g eaccordance with the course ofEngineers and Congress.CONCLUSIONS A N D RECOMMENDATIONS-- -Formation of aFloodControlD i s t r i c t t o i n c l u d e 75 s q u a r em i l e s o f n o r t h w e s t S a r a s o t a County would e s t a b l i s h t h e frameworkf o r e f f e c t i v e a l l e v i a t i o n of floods t h a t continue t o i n f l i c th a r d s h i p a n d i n j u r e t h e economy.The framework o f t h e D i s t r i c ts h o u l d p r o v i d e f o r f l e x i b l e a c t i o n , p r o c e e d i n g by s t a g e s , a n dc o m p a t i b i l i t y w i t h both independent a c t i o n and f e d e r a l a i d .The p r o p o s e d i m p r o v e m e n t w i t h i n t h eDistrict could be financedb y a b o n d i s s u e of a p p r o x i m a t e l y 3 , 5 0 0 , 0 0 0 , w i t h o u t a l l o w a n c ef o r f e d e r a l aid.Based on a 20 y e a r g e n e r a l o b l i g a t i o n i s s u ea t 4 p e r c e n t i n t e r e s t and allowing f o r annual maintenance ando p e r a t i o n expenses, a n i n i t i a l assessment of about 22 m i l l swould a p p l y t o p r o p e r t i e s w i t h i n t h e D i s t r i c t .This millager a t e s h o u l d d r o p s t e a d i l y a s new c o n s t r u c t i o n , w h i c h w i l l b ee n c o u r a g e by t h e i m p r o v e m e n t s , i n c r s a s e s t h e t o t a l v a l u a t i o n s .P r o p e r t y v a l u e s s h o u l d b e p r o t e c t e d a n d e n h a n a e d Fy t h e r e m o v a lo f e c o n o m i c b l i g h t c a u s e d by f l o o d h a z a r d w i t h i n t h e D i s t r i c t .

The bond i s s u e c o u l d be o f t h e open-end t y p e , p e r m i t t i n gs t a g i n g of e n g i n e e r i n g and c o n s t r u c t i o n .The t i m i n gcould allow f o r the p o s s i b i l i t y of f e d e r a l a i d a s f u t u r ea c t i o n s o f t h e C o r p s o f E n g i n e e r s a n d C o n g r e s s may r e v e a lAny f e d e r a l a i d s h o u l d r e d u c e t h e m i l l a g e r e q u i r e d .T h e r e a r e p r o l a b l ym o r e w o r t h w h i l e p r o j e c t s w h i c h f a i l t om a t e r i a l i z e because of d i f f e r e n c e s o v e r methods t h a n o u t r i g h topposition.The p r o p o s e d D i s t r i c c would p e r m i t a c t i o n t ob e g i n now w h e t h e r o r n o t f e d e r a l a i d m i g h t b e c o m e a v a i l a b l esome y e a r s i n t h e f u t u r e .The p r o c e d u r e s n e c e s s a r y t o e s t a b l i s h a n e n t i t y a s l a r g e and important a s the D i s t r i c t nece s s a r i l y r e q u i r e a s p i r i t o f c o m p r o m i s e among a l l p a r t i e s ,i n the public interest.I f t h e B o a r d o f C o u n t y C o m m i s s i o n e r s d e s i r e t o move f o r w a r dwith t h i s matter, the following s t e p s appear t o be i n ordera t this time:IX.1.Delineate the boundaries of the proposedD i s t r i c t i n a form s u i t a b l e f o r l e g a l descriptions.2.Engage a f i s c a l a g e n t t o c o o p e r a t e w i t h t h eCounty Attorney and t h e County's ConsultingEngineers i n the preparation of a formalpresentation t o the freeholders within theproposed D i s t r i c t , leading t o an e l e c t i o n .This e l e c t i o n could be based on a n open-endbond i s s u e e q u i v a l e n t t o t h a t o u t l i n e d i n t h i sr e p o r t o r on some f o r m o f m i l l a g e l i m i t a t i o n .ATTACHMENTSThe f o l l o w i n g p l a n s h a v e b e e n p r e p a r e d s p e c i f i c a l l yreport.for thisE-571-134Drainage Improvements,P h i l l i p p i Creek BasinE-571-135Drainage Improvements, WhitakerE-571-136D r a i n a g e I m p r o v e m e n t s , H o l i d a y Bayou & Matheny C r e e k ,E l l i g r a w Bayou, Clower C r e e k B a s i n sE-571-137Boundaries of& Hudson BayouProposed Flood Control District.Respectfully submitted,SMALLY, WELLTORD ' & NALVENConsulting EngineersIh,h*.-ADonald J.1f,. 4,k' 0Smally, P.EBasins

@'@ A S I N NUMBERZ-vREFERENCE K E YNUMBERMAJOR RIDGE L I N E,--I\,. ,-'63REFERENCEKEY NUMBER8I f Y T E Y M I T T E N T ROPOXSOSTRUCTURESTRUCTUREWEIR4k"CHI'2 b t x 8 ' 3K(I 2AWELR.: 0 -elxjl?x; 18'x5'!?p

A. Report on Phillippi Creek Basin Flood Control (June, 1961) prepared by Smally, Wellford & Nalven, including plans referenced therein. B. Report on Flood Relief Study of Phillippi (:reek at the Tamiami Trail (August, 1961) prepared by J.E. Greiner Company. C. Report on

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