courtney campbell scenic highway five year corridor

Courtney Campbell Scenic Highway • 5‐Year Corridor Management Plan (CMP) Update

COURTNEY CAMPBELL SCENIC HIGHWAY

Five‐Year Corridor Management Plan (CMP) Update

November 2010

Photo by Bob and Denise Lane with the following comment:

“We returned to the Causeway Beach this morning at 7AM. A totally cloudy sunrise this morning revealed peep‐type shorebirds at what appeared to be nearly double that of yesterday. Short‐billed Dowitchers increased to an amazing 350+.”

Courtney Campbell Scenic Highway • 5‐Year Corridor Management Plan (CMP) Update 2

WESTBOUND VIEW OF THE COURTNEY CAMPBELL CAUSEWAY

HISTORIC PHOTOGRAPHS

Agnes Rice Hawrsk at Rocky Point (around 1935)

Agnes’s family settled in the Rocky Point area and

watched the building of the Causeway.

Davis Causeway – Bridge Tender House


TABLE OF CONTENTS

Tables, Exhibits and Figures ............................................................................................................. 5

SHAC Comments and Responses ..................................................................................................... 6

Introduction to Corridor Management Plan Update ..................................................................... 13

Corridor Conditions........................................................................................................................ 13

Impact on Intrinsic Resources since Designation........................................................................... 16

Vision Statement............................................................................................................................ 17

Goals, Objectives and Strategies with Five Year Update ............................................................... 17

Corridor Story................................................................................................................................. 23

Community Participation ............................................................................................................... 25

Local Support ................................................................................................................................. 26

Evaluation of Protection Techniques ............................................................................................. 27

Funding .......................................................................................................................................... 28

Corridor Promotion and Measuring Success ................................................................................. 31

Local Government Comprehensive Plan Relationship................................................................... 32

Partnerships ................................................................................................................................... 32

Problem Areas................................................................................................................................ 32

Action Plan Update Summary ........................................................................................................ 34


LIST OF FIGURES, TABLES, AND EXHIBITS

Figures:

Courtney Campbell Causeway, Multi Use Trail, Hillsborough and Pinellas counties .................... 30

Figure 1.1 Study Area ‐ Westshore Area Pedestrian System Plan Addendum .............................. 31

Figure 2.1 Priority Sidewalk Enhancements ‐ Westshore Area Pedestrian System Plan Add. ...... 32

Figure 2.3 Priority On‐Road Bikeways ‐ Westshore Area Pedestrian System Plan Addendum..... 33

Figure 2.4 Off‐Road Trails ‐ Westshore Area Pedestrian System Plan Addendum........................ 34

Tables:

Table 1: New Construction within last 5‐years ................................................................ 35

Table 2: Traffic Volumes: Pinellas – west of Hillsborough line ....................................... 36

Table 3: Traffic Volumes: Hillsborough – west of Eisenhower Blvd................................ 37

Exhibits:

Letters of Support from:

Pinellas County Board of County Commissioners................................................ 39

City of Tampa ....................................................................................................... 40

Pinellas County MPO............................................................................................ 41

Keep Hillsborough County Beautiful ................................................................... 42

City of Clearwater ................................................................................................ 43

URS Corporation .................................................................................................. 44

Westshore Alliance .............................................................................................. 45

Tampa International Airport................................................................................ 46

Hillsborough County MPO ................................................................................... 47


SHAC COMMENTS AND RESPONSES FROM THE DESIGNATION REVIEW


Eastbound on the Courtney Campbell Causeway


INTRODUCTION TO CORRIDOR MANAGEMENT PLAN UPDATE

The Courtney Campbell is perhaps unique for a Scenic Highway within Florida. For most of the distance it consists of a long causeway which is totally owned by the Florida Department of Transportation. Thus this road has an owner with compatible goals as the Corridor Management Plan (CMP).

The remaining portion has adjoining property owners that are quite supportive of the CMP.

Accordingly, the last five years the Corridor Management Entity (CME), through its Corridor Advisory Committee, has sought partnership opportunities that will enhance the intrinsic resources of the roadway. As detailed in this report, significant accomplishments have occurred, as well as groundwork being laid for even more significant ones with considerably longer term implementation consistent with

availability of financial resources.

None‐the‐less, the current situation of the road fully complies with the Florida Scenic Highway user experience expectations.

CORRIDOR CONDITIONS

During the five years since its designation several enhancements have taken place on the Scenic Highway and several others are in process. The credit for these enhancements goes to the unique partnership of organizations participating in the Corridor Advisory Committee. Special credit goes to the Florida Department of Transportation who, as the owner of most of the road right of way and the causeway itself, has several projects in various stages of implementation.

Corridor Limits (no change)


1. Corridor Conditions

a. Roadway/ROW Description: i. The FDOT LINKS project linking Veterans Expressway, State Road 60 to I‐275,

was completed in early 2010. The LINKS project significantly improved the aesthetics of the eastern gateway of the corridor and resulted in landscaping enhancements.

b. Existing Land Use and Zoning: i. A new Westin Hotel replaced a restaurant on the north side of the Courtney

Campbell Scenic Highway (CCSH) east of Rocky Point. ii. Total amount of new construction within the last five years in the Westshore

Business district:

Table 1

Office 860,000 s.f.

Retail 170,000 s.f.

Hotels 5 hotels, 914 rooms

Multi‐family Apartments 5 communities with 1,434 units

Current Office Vacancy 21.4%

The Courtney Campbell Scenic Highway (CCSH) serves as a significant gateway to the Westshore business district which anchors the eastern limits of the Causeway. The Westshore business district is located at the geographic center of the Tampa Bay area and has over 90,000 employees.

iii. There have been no changes to the west end of the Causeway in Clearwater – it has been stable for the last five years.

c. Signage: i. Commercial signage and billboards were removed at the extreme eastern end of

the CCSH as part of the FDOT LINKS Project. Now the area is a beautifully landscaped right of way.

ii. In addition, the historic 1947 Courtney Campbell Monument was relocated and rededicated as part of the 75th Anniversary Celebration of the Causeway. A new plaque was placed on the reverse side of the historic monument documenting the Anniversary and the designation of the Courtney Campbell as a State Scenic Highway

d. Safety: i. A signalized intersection was implemented at Damascus Road on the eastern

end of the causeway as a safety improvement for the entrance to the Clearwater Christian College.

ii. As part of ongoing FDOT operations, guardrail enhancements and maintenance continue.


e. Traffic volumes: i. Pinellas – west of Hillsborough line

TABLE 2

Year LOS AADT Direction 1 (East) Direction 2 (West)

2009 D 50,500 E 26,000 W 24,500

2008 D 52,000 E 27,000 W 25,000

2007 D 54,500 E 27,500 W 27,000

2006 D 52,500 E 25,500 W 27,000

2005 D 55,000 E 28,000 W 27,000

ii. Hillsborough – west of Eisenhower Blvd.

TABLE 3

Year LOS AADT Direction 1 (East) Direction 2 (West)

2009 C 66,500 E 33,500 W 33,000

2008 C 67,500 E 34,000 W 33,500

2007 2007 information not available due to road construction

2006 E 71,500 E 36,500 W 35,000

2005 C 69,500 E 35,500 W 34,000

Note: The decline in vehicle trips is believed to be attributable to the traffic delays associated

with construction activity on the LINKS project during the last 3 years.

f. Level of Service: i. LOS C, D & E Based on 2009 FDOT Quality/Level of Service Handbook Table 1

Generalized Annual Average Daily Traffic (AADT) Volumes for Florida’s Urbanized Areas. LOS was lowered as a result of the LINKS project.

g. Social and Economic Conditions: i. The Westin Tampa Bay Hotel a new 16 story 255 room hotel opened January 22,

2009. h. Tourism and User Facilities:

i. A major FDOT Enhancement study report was completed evaluating the feasibility of providing safe bicycle/pedestrian access across the causeway bridges (Goal 2b). This will eliminate the current requirement that bicycles and pedestrians use roadway shoulders on bridges.

ii. A major trail link opened connecting the Multi‐use trail on the Courtney Campbell to the Tampa trail network at Cypress Point Park. The design of this so‐called U‐Path was facilitated by the CAC.

i. Other Programs: i. Bi‐annual cleanups sponsored by Keep Hillsborough County Beautiful occurred

each year during the period covered by this report.


2. Changes in progress: a. Safety and Recreational Aspects:

i. FDOT has initiated a resurfacing safety project with the design phase programmed for 2010 and construction in 2012. This project will include a Multi‐Use path from the west end of Ben T. Davis Beach to east of Rocky Point Drive. The Corridor Advisory Committee (CAC) was instrumental in the advocacy for having this Multi‐Use path included in the resurfacing project. Significant pedestrian safety improvements are planned for the Rocky Point intersection. Some relocation of guardrails and trees will occur to further enhance vehicular safety.

ii. As an outgrowth of the 2009 FDOT Enhancement Grant Project, the CCSH organization has submitted an application for a National Scenic Byways Program Grant for design and construction of a pedestrian bridge over a tidal flow opening under the causeway Segment #2. This would be part of the multi‐use trail along the CCSH. This project was ranked as the fifth priority by the Florida Scenic Highway Advisory Committee (SHAC).

iii. The Tampa Bay Trail situation changed this past year with the closure of the Gandy Bridge across bay pedestrian/trail due to structural problems with the old bridge. This leaves the Courtney Campbell Scenic Highway as the only potential trail crossing available across Tampa Bay. Partly as a result, the MPO’s for the Tampa Bay area (Chairs Coordinating Council) have submitted Enhancement Applications to complete two segments of the identified gaps in the CCSH Trail plan.

iv. The Tampa Westshore Alliance’s Pedestrian Master Plan now includes areas of the Courtney Campbell. Implementation will be in phases and will include pedestrian, bicycle, and transit enhancements. (See Maps starting on page 27)

v. The Tampa Bay Estuary Program in partnership with other governmental entities is initiating a project focusing on Old Tampa Bay water quality north of the Causeway.

3. Notable Change Since Designation: a. The Clearwater Chamber’s Visitors Information Center, located on the western end of the

Causeway, closed because decreasing usage and greater usage of the Internet for tourism information.

IMPACT ON INTRINSIC RESOURCES SINCE DESIGNATION

As indicated above the traffic counts have remained fairly constant since designation.

There have been no additional safety issues arising as a result of the Designation of the Scenic Highway. Progress has been made toward resolving safety issues that pre‐dated Designation.

With the completion of the LINKS project in mid‐2010 the Causeway traffic flow has improved significantly.


VISION STATEMENT

The Courtney Campbell Causeway is a testament to modern society and nature co‐existing in a productive, equally beneficial manner. The Courtney Campbell Causeway is a vital artery in the body that is Tampa Bay, providing a vital link to the cities of Tampa and Clearwater. It is a porthole to a globally important and unique ecosystem. The Causeway is literally alive through its self‐created ecosystem and the numerous species of wildlife that depend on the bay and causeway for food, shelter, and breeding. Not only does the corridor house wildlife, it also is a haven and destination for people to enjoy themselves. The most significant scenic, natural, and recreational resources of the corridor are set aside for use by visitors and the community in the form of nature preserves, beaches, and recreational sites. The entire length of the scenic highway running at sea level along the Bay is picturesque. It is full of opportunities for recreation, and life. There is a strong community tie to the corridor and citizens are committed to its preservation. The Courtney Campbell Causeway should be preserved and enhanced not as a highway, but as a scenic corridor, a vital resource to the prosperity of the region.

GOALS, OBJECTIVES AND STRATEGIES WITH FIVE YEAR UPDATE

1. Goal: Resource Protection – Support the Protection of the Environmental Resources of the Causeway. [required goal]

a. Objective: Retain the current physical cross sectional character of the Causeway reminiscent of its historic origin.

i. Strategy – Work with the two County Metropolitan Planning Organizations (MPOs) to adopt policies to maintain the historic visual character of the roadway without impacting the function of the roadway. [Short term priority]

b. Objective: Support a coastal‐style, native Florida landscape along the Causeway as

additional landscaping is required or needs to be replaced. i. Strategy – Identify, for future removal and eradication, locations of exotic

infestation along the Causeway. Volunteers from Keep Hillsborough County Beautiful can be used as resources to implement this strategy. Investigate State programs to eradicate Brazilian Peppers and coordinate with local governments to remove Australian Pines. [Short term priority]

ii. Strategy – Work with Florida Department of Transportation (FDOT) to identify native flora that can be used along the corridor (jointly with objective 5.a.ii). [Short to mid term priority]

iii. Strategy – Develop guidance to municipalities on desirable species to be used for future corridor plantings. [Short to mid term priority]

iv. Strategy – Partner with local agencies and environmental advocates on implementation strategies that could include funding and/or in‐kind services. [Continuous priority]

c. Objective: Maintain the natural environment of the Causeway. i. Strategy – Partner with local environmental advocates to support the bird

populations of special concern along the Causeway by identifying current nesting areas, supporting population counts, enhancing protecting habitat, and installing signage to protect nesting areas. [Mid term priority]

ii. Strategy – Monitor Tampa Bay Estuary Program Research affecting areas adjacent to the Causeway. [Continuous]


d. Objective: Promote community partnerships to control litter. [Continuous] i. Strategy – Partner with Keep Hillsborough Beautiful and Keep Pinellas Beautiful on

semi the annual coastal cleanup program and the Spring Great American Cleanup. ii. Strategy – Strengthen Adopt‐a‐highway/Adopt‐a‐Shoreline sponsorship for the

entire length of the Causeway. [Tampa Bay Parrot Head Group currently participates.]

iii. Strategy – Monitor local municipalities’ efforts to identify locations for additional trash container sites along the Causeway and ensure that they are kept in good repair and emptied frequently enough to ensure that debris is not overflowing from them to be in accordance with their maintenance agreements with FDOT.

2. Goal: Work to Enhance Vehicle and Pedestrian Safety. [required goal] a. Objective: Improve highway safety by identifying and working to implement engineering

solutions. i. Strategy – Support the installation of a traffic signal at the Clearwater Christian

College entrance and the western beach area (joint project of FDOT and the City of Clearwater). [Short term priority] COMPLETED remove this strategy.

ii. Strategy – Partner with FDOT, Hillsborough MPO, and Westshore Alliance to evaluate improving pedestrian crossing safety at Rocky Point. [Short term priority] This element is currently a part of the FDOT improvement project in design by PB Americas.

iii. Strategy – Work with FDOT and local governments to identify traffic and pedestrian safety issues (beaches, boat ramp, and future scenic highway kiosks) and implement appropriate solutions where necessary. [Mid term priority]

b. Objective: Improve bicycle/pedestrian safety enhancements. i. Strategy – Work with the FDOT, MPOs, and local governments to develop a

continuous bicycle/pedestrian trail parallel to the main roadway to avoid auto traffic conflicts. [Continuous priority]

ii. Strategy – Submit and promote the application for National Scenic Byway Grant to provide a pedestrian bridge over the tidal opening parallel to FDOT Bridge 10064.

iii. Strategy – Pursue enhancement grants for the multi‐use trail segments on the Pinellas side of the Courtney Campbell. This is particularly needed now that the Gandy Pedestrian Bridge across Tampa Bay has closed due to structural problems.

3. Goal: Build Community Support for Long‐term Success. [required goal] a. Objective: Incorporate Causeway plan elements in the Comprehensive Plans of the four

local government jurisdictions – Pinellas County, City of Clearwater, Hillsborough County, and City of Tampa. [Short term priorities]

i. Strategy – Work with local government staff to identify the current comprehensive plan elements that support the plan.

ii. Strategy – Support the review and update of the local comprehensive plans to support the inclusion of goals, objectives, and strategies of the plan.

iii. Strategy – Support the approval and adoption of the amendments required in local government comprehensive plans to implement the objectives, goals, and strategies of the plan.


b. Objective: Continue the Corridor Management Entity as an ongoing and effective sponsor and advocate for the Scenic Highway designation process and implementation of improvements. [Continuous priority]

i. Strategy – Implement Continue the Corridor Management Entity and Operating Policies as adopted, and manage effectively.

ii. Strategy – Maintain the membership of the Corridor Management Entity and meet a minimum of four times each year.

iii. Strategy – Develop Generate an Annual Report on the Progress implementing the Corridor Management Plan each year and report to local and state organizations.

iv. Strategy – Seek out long term funding strategies for the Regional Planning Council to continue to function as the CME.

v. Strategy – Coordinate with private interests along the Causeway and seek partnerships that accomplish goals, objectives, and strategies of the plan.

vi. Strategy – Seek out local, state, and federal support and apply for and receive gifts and grants to implement the plan.

c. Objective: Advocate and monitor intergovernmental coordination between the four governmental entities having jurisdiction for the Causeway. [Continuous priority]

i. Strategy – Maintain the effectiveness of intergovernmental coordination designation process and implementation of improvements.

ii. Strategy – Monitor the ongoing status of Maintenance Agreements between the FDOT and the local governments.

iii. Strategy – Provide a forum for coordination of government efforts related to the Causeway.

4. Goal: Education – Educate the Community and Visitors on the Natural and Historic Resources along the Corridor. [required goal]

a. Objective: Maintain and enhance the Scenic Highway’s web site. i. Strategy – Continue to update the web site. Promote CCSH partners and adjacent

businesses to provide links to the CCSH web site on their web sites. [Continuous priority]

ii. Strategy – Ensure search engine links for general access. [Short term priority] b. Objective: Develop a Scenic Highway education program

i. Strategy – Develop interpretive pamphlets covering the following areas: history, recreational opportunities, and natural assets. [Short Term]

ii. Strategy – Establish and maintain a speakers’ bureau. [Mid Term Priority] iii. Strategy – Develop a corridor video and a plan for viewing [Mid Term Priority]

COMPLETED the initial one is on the CCSH web site. iv. Strategy – Develop and locate informational signage along the corridor. [Mid Term

Priority] CCSH Scenic Highway signs have been installed. Continue to apply for Tampa Bay Estuary Grants for signage explaining the importance and benefits of the Estuary.

c. Objective: Promote the location and features of the Causeway with notations on local and regional maps.

i. Strategy – Research feasibility and access to mapping and publications and respond accordingly. [Mid term priority]

d. Objective: Develop and implement a “Keep It Clean” educational program for the Causeway. i. Strategy – Determine pollution sources and develop a program or brochure to

address the sources. Delete this objective as this is part of Goal 1, Objective D. e. Objective: Maintain an archive of Courtney Campbell Scenic Highway information.


i. Strategy – Establish an archive of historical records and photos related to the Courtney Campbell Causeway. The CCSH web site has added historic photos. The CME sponsored and promoted a 75th Anniversary Celebration which included print and broadcast media coverage. [Continuous priority]

5. Goal: Economic Development/Tourism. [required goal] a. Objective: Maintain/enhance the recreational opportunities along the Causeway.

i. Strategy – Continue the service road concept that provides access to multiple recreational opportunities. [Continuous priority] This is part of the FDOT resurfacing project under the direction on PB America.

ii. Strategy – Perform an opportunities and strengths analysis to identify additional recreational enhancements. Consider using university students as a resource for this analysis and the resulting plan. [Short to mid priority]

b. Objective: Establish the Courtney Campbell Scenic Highway as a tourist point of interest. [Short term priority Continuous]

i. Strategy – Promote the Courtney Campbell Scenic Highway through regional Convention Visitor Bureau and local Chambers (publications, presentations, and meetings).

ii. Strategy – Tie/link the Courtney Campbell Scenic Highway website to Chamber/City/State sites.

iii. Strategy – Distribute Courtney Campbell Scenic Highway brochure at tourist centers.

6. Goal: Improve Pedestrian, Bicycle, and Transportation Initiatives Along and Connecting to the Causeway Compatible with and Enhancing the Aesthetics of the Corridor’s Intrinsic Values.

a. Objective: Implement bicycle/pedestrian trails linking Hillsborough and Pinellas counties. i. Strategy – Develop a map identifying the pedestrian trail missing linkages along the

causeway. [Short Term Priority] Completed with the Feasibility Study. ii. Strategy – Work with the FDOT and Hillsborough County MPO to program funds to

construct a pedestrian/bicycle bridge across the tidal flow structure located at the north side of the Causeway east of Rocky Point. This strategy will be worked in partnership with the City of Tampa and the Westshore Alliance. [Short term priority] Interim solution will be done as a part of the resurfacing project. Ultimately this will be replaced with a permanent bridge if the Scenic Highway Grant is received.

iii. Strategy – Promote connectivity of the Courtney Campbell system to the Pinellas Trail Network (Cross Clearwater, Progress Energy, and Fred Marquis Trails.) [Mid term priority]

iv. Strategy – Promote connectivity of the Courtney Campbell system to the Hillsborough and City of Tampa Greenways and Trails system (going north and south). [Mid term priority]

v. Strategy – Support MPOs and local governments’ implementation of bicycle/pedestrian trails over the Courtney Campbell Causeway large and the smaller bridges to eliminate gaps in the existing trail segments and provide inter‐connectivity. [Long term priority]

b. Objective: Support regional long‐range transportation planning objectives that are compatible with the five principle Florida Scenic Highway goals.

i. Strategy – Monitor and actively participate in the development of regional transportation strategies with FDOT, MPOs and transit agencies. [Continuous priority]


ii. Strategy – Resolve current transit needs (i.e. bus stops) along the corridor. [Short term priority] Implementation of this strategy will be a part of the pending resurfacing improvement project.

7. Goal: Enhance the Visual Appearance of the Causeway. a. Objective: Bury overhead utility lines that currently exist on relatively small portions of the

Causeway. [Long term priority] i. Strategy – Identify location and ownership of existing overhead utilities. ii. Strategy – Initiate dialog with FCG (Florida Coordinating Group) to identify

alternatives, cost options, and potential funding opportunities b. Objective: Enhance the special “sense of place” at both the eastern and western approaches

of the Causeway to “showcase” the gateway to the communities at each end. [Short term priority]

i. Strategy – Participate in design public workshops and/or hearings for the LINKS project at the east end of the Causeway. COMPLETED delete this Strategy.

ii. Strategy – Maintain an active involvement in the urban design component for the LINKS reconstruction projects.

iii. Strategy – Participate in the Hillsborough County MPO Livable Roadways Committee to develop a gateway concept for the Courtney Campbell Causeway.

iv. Strategy – Ensure the appropriate locations of the existing historic Courtney Campbell Parkway monuments as part of the gateway features. OBJECTIVE COMPLETED delete this Strategy

c. Objective: Investigate alternative designs or adaptations for the guardrail and bridge abutments (consistent with FDOT design specifications) to be more consistent with the original historic character of the Causeway. [Mid term priority]

i. Strategy – Perform a search of historical literature to see what alternative guardrail designs are used on other similar period roadways.

ii. Strategy – Work with the appropriate MPOs to incorporate more aesthetic guardrail features in future maintenance activities.

Note: Short term is within first two years Mid term is within the first three to six years Long term is beyond six years


VIEW OF ROCKY POINT


CORRIDOR STORY

Typically Floridian, combining all the expected elements of Florida sun, wide water vistas, sunsets, and tropical

vegetation, that’s the Courtney Campbell Scenic Highway. But, our Causeway is really much more than that.

SUNRISE ON THE CAUSEWAY… THE BEGINNING

In 1528, the Spanish explorer Pánfilo de Narváez is believed to have landed somewhere on the Pinellas peninsula followed by Hernando DeSoto in 1529. Both men searched for the “Fountain of Youth,” but instead found the beauty of the wetlands and the shore of Old Tampa Bay – the west anchor of the Courtney Campbell Causeway.

The Springs of the Holy Spirit, named by DeSoto when he discovered the Espiritu Santo Springs,

still exist at the Safety Harbor Resort and Spa. It was another 300 years before Odet Philippe established the first permanent settlement, other than native Indians, on the Pinellas peninsula north of the current causeway. Phillippe is credited with introducing citrus to the area, which in later years, was destined to become the leading agricultural product of Pinellas County. Shortly after Phillippe’s settlement of Safety Harbor, the historical Bayview area, just south of the Causeway on the Pinellas side, was settled.

Today, the historic Bayview area is still home to original settlement homes and beautiful views of Old Tampa Bay. Cooper’s Point is a preservation area, maintaining much of the northwest portion of the causeway as it was in Phillippe’s day. Prior to the construction of the Causeway, Pinellas County was not much more than wetlands, swamps and eventually citrus groves – now, it is a bustling, urban county.

In the late 1920s, Ben T. Davis, a direct descendent of President Jefferson Davis of the Confederacy, wanted to shorten the journey between Clearwater and Tampa. Although the Gandy Bridge had been built between St. Petersburg and Tampa, there was no direct connection between central Pinellas County and Tampa.

From 1927 to 1934, Captain Davis (formerly a Steamboat Captain) worked on the Causeway when his company had no other dredging work to do. The Causeway cost $900,000 to build (including the two bridges since one was demolished by a hurricane). It opened on June 28, 1934 with a 25‐cent toll for a car and driver. The Davis Causeway was the longest over‐water fill across an open body of water in the country. In 1944, as part of the war effort, the federal government seized control, paid $1,085,861 for the road and transferred ownership to the State of Florida. In 1948, it was renamed the Courtney W. Campbell Causeway after the Florida Road Board member and US Congressman (and Clearwater Beach resident). This recognition came because of his work effecting major repairs and beautification, including his much‐copied wayside park system.

In addition to the renaming, the road was converted to a parkway with extensive landscaping including the native vegetation that grows today. Now, more than 50,000 commuters traverse the Causeway daily.


BRIGHT FLORIDA DAYS…

Although the dredging and filling of the Causeway substantially changed the tidal water movements within the bay, water recreation activities remain a large part of the Causeway today. The water quality in the Safety Harbor area deteriorated and the salinity of the area north of the Causeway decreased affecting marine life. Today’s environmental standards would not allow such a construction project – making the Causeway itself a piece of history.

Picnic shelters, tables and rest areas along the Causeway reflect the casual lifestyle of visitors to mid‐1900’s parkways. A public boat ramp on the north side of the Causeway affords opportunities for fishing, sightseeing or water skiing in Tampa Bay. The Ben T. Davis Municipal Beach rests on the eastern (Tampa) border of the Causeway and an unnamed beach owned by the FDOT borders the west end of the Causeway.

Access roads along the north and south side of the Causeway provide a linear pedestrian walkway and bike trail. Small bridges allow for fisherman to take advantage of the multitude of flounder, redfish, sheep head, snook, and spotted sea trout in the bay.

The Visitor Information Center on the north side of the Causeway at the Clearwater end of the Scenic Highway was closed as a result of budget challenges in today’s economy due in part to vacationers planning their visits more often over the Internet.

NATURAL BEAUTY AND GLOWING SUNSETS…

The unique construction project that created the Causeway also created an ecosystem, limiting access to natural predators and creating an environmental sanctuary for many bird species.

Tampa Bay is Florida’s largest open water estuary, stretching 398 square miles at high tide. Saltwater from the sea and fresh water from rivers and uplands mix, create nurseries for young fish, shrimp, and crabs.

The north shoreline is a paradise for birds and the Causeway acts as a form of barrier (acting as a coastal island) from predators. Birds nesting in the protected areas include certain herons and egrets, which have been designated Species of Special Concern (SSC) by the State. In addition, the endangered West Indian Manatee (federally listed) also roams the waters around the Causeway, the western half of which is part of the Pinellas County Aquatic Preserve as designated by the Florida Department of Environmental Protection. This Preserve and the

management practices of this state road’s lengthy beaches have promoted growth of flora such as Spartina “marsh grass,” mangrove trees, sea grasses, and various other aquatic plants necessary to attract smaller organisms that balance out the food chain.


Audubon Scientists have spotted dozens of bird nests within the Conservation Easement Site. In order of prevalence, the Tri‐colored heron, Snowy egret, and little blue heron, all of which are SSC‐listed by Florida, frequent the site. Other rookery inhabitant (for a total of 78 pairs) are the Great Blue heron, Great egret, American Oystercatcher and Yellow‐crowned night‐heron, the latter of which has been a designated colony occupying a breeding site as far back as 1986.

As the sun sets in the Bay area, commuters see the beauty of nature and fun joined together in this one unique corridor. The Courtney Campbell Scenic Highway combines a rich ecological and engineering history with a modern recreation and environmental wonder. The blend of Indian settlers, Spanish adventurers, turn‐of‐the‐century entrepreneurs, and modern‐day commuters and sportsmen write the story of the Courtney Campbell Scenic Highway.

COMMUNITY PARTICIPATION

The Tampa Bay Regional Planning Council (TBRPC) is the Corridor Management Entity for the Courtney Campbell Scenic Highway. The Council is composed of 24 members of governmental jurisdictions, 4 ex‐officio members of government entities (like the Water Management District) and 13 Gubernatorial Appointees. Together they represent the whole of the region and see the Courtney Campbell Scenic Highway as a component of what makes this region complete.

The TBRPC has delegated the programmatic initiatives for the causeway to a Corridor Advisory Committee (CAC) with representatives from all local government and planning agencies that touch the highway. While the TBRPC provides staff support to the CAC, this assistance is limited to administrative support. The work of the CAC is primarily done via its alliance of volunteers representing businesses, government groups, and citizens. Representation is split evenly between residents on both sides of Tampa Bay.

In reviewing current Community Participation, we have identified an opportunity to work more closely with the hospitality businesses in close proximity to the Scenic Highway. The greatest opportunity would be to incorporate Causeway information into their web sites and guest information packages.


LOCAL SUPPORT

The following is a complete list of supporting organizations. Several deserve special recognition and will be listed first:

Key local supporters:

Florida Department of Transportation District 7 is a key supporter through its maintenance projects and project management assistance which will be detailed more fully later in this report.

The Metropolitan Planning Organizations of both Pinellas and Hillsborough are significant partners in the regional future planning affecting the Courtney Campbell, working in alliance with the Chairs Coordinating Council of the West Central Florida Metropolitan Planning Organizations. The trail features of the Causeway have been identified on regional trail maps. Accordingly, they have recognized the importance of connecting the gaps in the causeway trail elements as a regional need and have sponsored grant applications for statewide money.

The Tampa Bay Regional Planning Council is the Corridor Management Entity for the Scenic Highway.

Other local supporters:

City of Clearwater (and their Parks Department) City of Tampa (and their Parks Department) Pinellas County Hillsborough County Pinellas County Metropolitan Planning Organization Clearwater Regional Chamber of Commerce Westshore Alliance (a Chamber‐like organization for West Tampa) Keep Hillsborough County Beautiful (sponsors of the annual Great American Cleanup and the Coastal Cleanup) Keep Pinellas Beautiful Tampa International Airport Tampa Bay Parrot heads Clearwater Christian College Grand Hyatt Tampa Bay Westin Tampa Bay URS Corporation Cardno TBE


Coastal Cleanups along the Courtney Campbell Causeway

2010 Great American Cleanup Vols hrs Total Miles Acres Total lbs Recycle

Courtney Campbell Causeway 306 1216 4 2725 1500 1225

2009 Great American Cleanup

Courtney Campbell Causeway 117 351 2.5 1 1600 1600



Tampa Bay Parrott Heads 92 3 276 6 2888 2888



Tampa Bay Parrott Heads 91 3 273 3 2002 2002


Courtney Campbell Causeway 154 3 462 3



2010 Community Cleanup

Courtney Campbell Causeway 2/6/2010 55 3 165 2.5 480 480

Courtney Campbell Causeway 6/11/2010 84 4 336 3 3725 3200 525

Total 3937 55 12436.5 77 1 71959 69659 2300

Decline in local support:

As mentioned before, the Visitor Information Center on the north side of the Causeway at the Clearwater end of the Scenic Highway was closed as a result of budget challenges in today’s economy due in part to vacationers planning their visits more often over the Internet.

EVALUATION OF PROTECTION TECHNIQUES

As indicated in the Introduction to this document the Causeway is blessed to have property owners who support the Corridor Management Plan. Thus the need of enforcement options decreases.

Development in the non‐FDOT owned adjoining properties is controlled by Development codes within Clearwater and Tampa which are supported by

business organizations on both sides of the Bay. These rules include some of the enhancement goals of the CMP (sidewalks and pedestrian safety).


The Health Departments of each county monitor the beaches. The Tampa Bay Estuary Program (TBEP) in partnership with the regional Water Management District conducts continuing monitoring of the water quality and the restoration of sea grasses of the Bay. Some years ago the Tampa Bay Regional Planning Council created an Agency on Bay Management and the Tampa Bay Nitrogen Consortium to develop voluntary reductions in nitrogen loading in Tampa Bay.

The TBEP and the communities of north Tampa Bay have embarked on several studies to improve the water quality north of the Courtney Campbell Causeway. One of these studies addresses the deposition of muck in Safety Harbor Bay, which is northwest of the Causeway.

A recent proposal by the Clearwater Christian College has received local planning approvals as well as Department of Community Affairs, and Florida Wildlife Commission approval to do stormwater renovation on the 131 acres that they own on the north side of the Causeway. This includes adding stormwater treatment to the 32 acres of property developed in the 60’s which currently drains directly into Tampa Bay and the restoration of mangrove wetland preservation of the 99 remaining acres of this property through a mitigation bank and a perpetual easement.

FUNDING

As a volunteer organization seeking improvement through partnerships with others, the Courtney Campbell Scenic Highway has limited funding needs. The CME receives contributions from sponsors which partially reimburse administrative costs.

The key success of the Causeway has been the success in obtaining grant funding for projects through FDOT. A $400,000 grant was received in 2008 to study the feasibility of a multi‐ use trail across the entire causeway. That study was completed in December 2008. The State FDOT has also embarked on a $12 million maintenance resurfacing project in Hillsborough County which, importantly, will include trail pedestrian improvements.

There are two additional grant applications pending. The first is a Scenic Highway Grant for a bridge over the tidal gate on the eastern end of the Causeway. This grant was ranked fifth within the State of Florida. The Chairs Coordinating Committee has submitted a grant request for State Enhancement funds also for the multi use trail on the western side of the boundary line of Pinellas County.

See Courtney Campbell Causeway, Multi Use Trail, Hillsborough and Pinellas counties on page 30.

Our approach is to work in multiple ways on segments of the multi use trail for incremental improvement. This will allow enhancement of this intrinsic resource in the short term, with full completion accomplished over the long term as funding becomes available.

A significant impetus for earlier completion of the multi‐use trail across the Courtney Campbell is the closing of the pedestrian bridge across the Gandy Bridge (the only full pedestrian crossing of Tampa Bay) due to age and maintenance risks.


Courtney Campbell Causeway Boat Launch


CORRIDOR PROMOTION AND MEASURING SUCCESS

Since the designation of the causeway, the initial video has been utilized with various groups. In addition, a Courtney Campbell Scenic Highway brochure was produced and made available at the Visitors Center (now closed) and to the Chambers on both sides of the Bay.

As an alliance of organizations, the principal opportunity to promote the Corridor is through our Chamber partners. The goal is to enhance the experience of those who utilize the Corridor.

A significant opportunity was created with the June 2009 celebration of the 75th anniversary of the opening of the Courtney Campbell Causeway. There was great media coverage including the contribution of several pioneer families who had witnessed the original building of the causeway, which added a human interest angle to the celebration. Participating in the Anniversary Celebration was (in no particular order):

Agnes Rice, Rocky Point resident at time of construction of the Causeway

Comm. Karen Seel, Pinellas County

Mayor Frank Hibbard, City of Clearwater

Ming Gao, FDOT Dist. 7

Louis Miller, Hillsborough Aviation Authority

Nadine Jones, Hillsborough Aviation Authority

Brian Smith, Pinellas County

City Manager Bill Horne, City of Clearwater

Councilwoman Linda Saul‐Sena, City of Tampa

Councilwoman Carlen Petersen, City of Clearwater

Councilman George Cretekos, City Clearwater

Councilwoman Kathleen Peters, City of South Pasadena

Councilman John Doran, City of Clearwater

Ron Gregory, URS Corporation

Councilman Jeff Danner, City of St. Petersburg

Mayor Dave Eggers, City of Dunedin

Bob Clifford, CEO, Clearwater Regional Chamber

Bob Kersteen, TBRPC member/Chair, ABM

Representative Ed Hooper

Toll booth on the Davis Causeway, 1943.

Was renamed the Courtney Campbell Causeway in

1948


LOCAL GOVERNMENT COMPREHENSIVE PLAN RELATIONSHIPS

City of Clearwater has adopted the Objectives and Policies of the Courtney Campbell Scenic Highway.

City of Tampa has adopted the Objectives and Policies of the Courtney Campbell Scenic Highway.

Though not specific to the Courtney Campbell Causeway, Pinellas County’s Objectives and Policies support the Courtney Campbell Scenic Highway Corridor Management Plan (CMP).

o Objective 1.4: Pinellas County will protect its open spaces and scenic vistas for their contributions to quality of life.

o Objective 1.7: Pinellas County will continue to implement and enhance a comprehensive countywide system of greenways, blueways and trails.

PARTNERSHIPS

The Corridor Advisory Committee (CAC) is a grassroots advocacy group that is very creative at getting things done through pragmatic and opportunistic partnerships. These partnerships are informal and successful because of our persistence and promotion of public benefits. See local support section for a listing of partner organizations.

PROBLEM AREAS

Water Quality issues

1. Accumulation of dark organic material in the Safety Harbor area north of the Causeway.

The cause of excess accumulation appears to be excess nutrient inflow from the Lake Tarpon Outfall Canal and surrounding development.

2. Since the original installation of the Clearwater Christian College campus in the 1960s, the tidal

flushing deteriorated in the area directly to the west of Clearwater Christian College. There is no southern connection to the bay. Future improvements are expected due to wetland restoration at the northwest end of the Causeway on property owned by the College. The project will improve tidal flushing and restore mosquito channels within mangrove wetlands. Another benefit will be the addition of stormwater treatment facilities to the campus. This project is just starting the permitting process.

Pinellas County has initiated a research project which may result in a proposal that would put conduits under the Causeway to improve tidal flushing.

3. Ben T. Davis beach is often closed as a result of bacterial contamination – investigation is

ongoing. 4. The Ben T. Davis Beach restroom project was bid and awarded. The City of Tampa has had to

make some revisions to the design of the restroom to meet the requirements of the FEMA VE


zone. The architect is in the process of making these modifications. At the same time, the City will address erosion problems that are occurring at the parking lot to the east of the restroom area. The project has been delayed approximately six months. The City is looking at late spring 2011 for installation.

5. The Old Tampa Bay segment has been identified as an area of primary concern through several Tampa Bay Estuary Program (TBEP) research initiatives and advisory committee recommendations. Unlike the other six major bay segments of Tampa Bay, periodic poor water quality conditions and limited seagrass expansion are still observed in Old Tampa Bay. Recent results from a cooperative project with the TBEP, two Pinellas County Environmental Fund supported studies in the Feather Sound region of Old Tampa Bay and the reoccurrence of a spring/summer algae bloom in the upper portions of Tampa Bay during 2008 and 2009 indicate that a more comprehensive assessment is needed for this subwatershed and bay segment.

In order to effectively characterize the primary factors stressing Old Tampa Bay, TBEP staff has worked with faculty at the University of South Florida and the TBEP Technical Advisory Committee (TAC) to develop a conceptual framework that will guide research and management decisions for this bay segment.

1) evaluating potential effects of non‐structural Best Management Practices targeted at reducing nutrients to improve the water quality and ecology of Old Tampa Bay;

2) refining hydrologic input estimates and determining the effects of managing freshwater inputs to Old Tampa Bay to improve in‐bay water quality and ecology;

3) determining whether existing causeway/bridge structures have an ecological effect with regards to circulation and flushing within Old Tampa Bay and whether their modification will have a net ecosystem benefit;

4) restoring flow regimes and habitats in coastal creeks and other restorable areas to better manage stormwater/nonpoint source inputs into the Old Tampa Bay system; and

5) developing enhanced monitoring protocols and programs to better understand and predict the ecological conditions in Old Tampa Bay for either development of the tool or to determine the net ecosystem benefits stemming from modifications of the factors described above.

Other Problem Areas 6. Clearwater Beach Erosion (west end of Causeway)

• Some of the sand has washed away • Renourishment not likely as this is part of a natural cycle • Documented for information only

7. Pedestrian safety in the Rocky Point area is being addressed by the FDOT repaving trail project 8. New nonconforming use at the corner of McMullen Booth and the Courtney Campbell

After property was vacant for a number of years a new business moved into a nonconforming property without permits. This resulted in the continuation of an un‐landscaped use and the presence of outdoor motorcycle sales. Building was painted bright yellow. City of Clearwater enforcement action is pending.


9. Cross Causeway Trail Disconnect The project, which will provide a continuous trail across the Causeway, has been identified in the Feasibility Study as a long‐term priority and will be implemented in five segments.

ACTION PLAN UPDATE SUMMARY

The Goals and Objectives beginning on page 17 have been updated to reflect our current action plan. We are continuing to move forward based on opportunities and as funding presents itself. We are seizing every opportunity we can get.

Multi‐Use Trail along the Courtney Campbell Causeway


APPENDIX

The Westshore Alliance initiated the Westshore Area Pedestrian System Plan Addendum in May of 2008.

The Addendum identifies non‐automotive transportation infrastructure projects (e.g., pedestrian/

bicycle/transit network enhancements) within the Greater Westshore Area that are critical in improving

the overall mobility and transportation environment of pedestrians, bicyclists, and transit users.


Letters of Support from our Partners


Courtney Campbell Causeway

75th Anniversary Rededication Marker

June 25, 2009


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courtney campbell scenic highway five year corridor

Documents