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U.S. Department of Homeland Security Region IV 3003 Chamblee-Tucker Road – Hollins Building Atlanta, Georgia 30341 www.fema.gov November 9, 2010 Ms. Laura A. Kammerer Deputy State Historic Preservation Officer for Review and Compliance Florida Division of Historical Resources Bureau of Historic Preservation R.A. Gray Building 500 South Bronough Street – Room 423 Tallahassee, FL 32399-0250 RE: Initiation of Section 106 Consultation for the Construction of a New Seawall along Avenida Menendez in St. Augustine, St. Johns County, Florida Dear Ms. Kammerer: The Federal Emergency Management Agency (FEMA) is formally initiating the consultation process under the United States Code of Federal Regulations (CFR) Title 36, Part 800, “Protection of Historic Properties,” the regulations that implement Section 106 of the National Historic Preservation Act of 1966, as amended, for the construction of a new seawall along Avenida Menendez in St. Augustine, St. Johns County, Florida. PROJECT DESCRIPTION (UNDERTAKING) The City of St. Augustine, the county seat of St. Johns County, is located in the northeast corner of Florida on the Atlantic Coast (Attachments 1, 2, 3). St. Augustine has been repeatedly damaged by flooding and storm surge. The wind and wave action has undermined the existing Avenida Menendez Seawall, causing it to crack, break apart, and topple over in several areas. The City of St. Augustine has applied for a Flood Mitigation Assistance (FMA) Program grant for a project to reduce storm surge damage to the historic downtown area by constructing a new seawall just seaward (east) of the existing Avenida Menendez Seawall. Construction of a new seawall to a height of 7.7 feet will preserve the existing seawall and eliminate the destructive flooding of most events up to a Category 1 storm surge (Attachment 4). The City of St. Augustine proposes to preserve the existing seawall and construct a new wall in front of the historic seawall to provide the businesses and residents in Historic Districts 1 and 2, as well as the Florida National Guard Headquarters, with Category 1 storm surge (7.4 feet above Mean Sea Level [MSL]) protection. The proposed project is the construction of a seawall 12 feet seaward of an existing eroding historic seawall. The proposed seawall would consist of two sections. The lower section would be concrete sheet pile, with a top elevation of 4.8 feet National Geodetic Vertical Datum (NGVD). The upper section would be cast-in-place concrete with a top elevation of 7.7 NGVD. The space between the old and new seawalls would be infilled with clean sand material and topped with a new 12-foot-wide promenade to encapsulate the historic wall for its preservation. A small segment of the historic seawall would be left exposed to

RE: Initiation of Section 106 Consultation for the ...€¦ · PROJECT DESCRIPTION (UNDERTAKING) ... including a Community Development Block Grant (CDBG) award from the U.S. Department

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U.S. Department of Homeland Security Region IV

3003 Chamblee-Tucker Road – Hollins Building Atlanta, Georgia 30341

www.fema.gov

November 9, 2010 Ms. Laura A. Kammerer Deputy State Historic Preservation Officer for Review and Compliance Florida Division of Historical Resources Bureau of Historic Preservation R.A. Gray Building 500 South Bronough Street – Room 423 Tallahassee, FL 32399-0250 RE: Initiation of Section 106 Consultation for the Construction of a New Seawall along

Avenida Menendez in St. Augustine, St. Johns County, Florida Dear Ms. Kammerer: The Federal Emergency Management Agency (FEMA) is formally initiating the consultation process under the United States Code of Federal Regulations (CFR) Title 36, Part 800, “Protection of Historic Properties,” the regulations that implement Section 106 of the National Historic Preservation Act of 1966, as amended, for the construction of a new seawall along Avenida Menendez in St. Augustine, St. Johns County, Florida. PROJECT DESCRIPTION (UNDERTAKING) The City of St. Augustine, the county seat of St. Johns County, is located in the northeast corner of Florida on the Atlantic Coast (Attachments 1, 2, 3). St. Augustine has been repeatedly damaged by flooding and storm surge. The wind and wave action has undermined the existing Avenida Menendez Seawall, causing it to crack, break apart, and topple over in several areas. The City of St. Augustine has applied for a Flood Mitigation Assistance (FMA) Program grant for a project to reduce storm surge damage to the historic downtown area by constructing a new seawall just seaward (east) of the existing Avenida Menendez Seawall. Construction of a new seawall to a height of 7.7 feet will preserve the existing seawall and eliminate the destructive flooding of most events up to a Category 1 storm surge (Attachment 4). The City of St. Augustine proposes to preserve the existing seawall and construct a new wall in front of the historic seawall to provide the businesses and residents in Historic Districts 1 and 2, as well as the Florida National Guard Headquarters, with Category 1 storm surge (7.4 feet above Mean Sea Level [MSL]) protection. The proposed project is the construction of a seawall 12 feet seaward of an existing eroding historic seawall. The proposed seawall would consist of two sections. The lower section would be concrete sheet pile, with a top elevation of 4.8 feet National Geodetic Vertical Datum (NGVD). The upper section would be cast-in-place concrete with a top elevation of 7.7 NGVD. The space between the old and new seawalls would be infilled with clean sand material and topped with a new 12-foot-wide promenade to encapsulate the historic wall for its preservation. A small segment of the historic seawall would be left exposed to

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facilitate viewing by the public. The construction of the new seawall consists of installing approximately 1,200 linear feet of new concrete precast driven panel seawall with concrete piles driven to 22.0 or 27.0 feet below MSL, placing soil anchors to support the new wall, and installing other architectural, landscape, electrical, and utility appurtenances seaward of the existing historic seawall. In addition, three stormwater treatment vaults would be constructed to treat stormwater at three outfalls along the proposed seawall. The proposed stormwater management system would consist of an exfiltration trench and three Vortechnics stormwater treatment vaults to improve the water quality at the discharge from existing hydrologic basins of the City of St. Augustine. The system would be installed along the new seawall promenade. The exfiltration trench would treat runoff from the proposed 1,200-foot long, 12-foot wide impervious promenade between the existing and proposed seawalls. The Vortechnics vaults would be connected to three existing outfalls (one vault per outfall) to provide stormwater treatment to approximately 18.3 acres in the City of St. Augustine. Each vault would be installed underneath the proposed promenade. The outfall pipes would be extended from each vault and through the new seawall to discharge to the Matanzas River. Under the proposed action, construction of the new seawall would affect waters of the United States and require excavation to mitigate damage to existing wetlands. There would be permanent impacts on 0.010 acre of smooth cordgrass (Spartina alterniflora), 0.051 acre of oyster beds, and 0.288 acre of tidal flats (mudflats) waterward of the historic Avenida Menendez Seawall. These impacts have been permitted by the U.S. Army Corps of Engineers (USACE) with permit number SAJ-2004-3490-MRE and would be mitigated by the creation of a minimum of 0.05 acre (2,178 square feet) of tidal marsh wetlands within the area noted on the project drawings (see Attachment 4). This area would be excavated as necessary to match the elevations of the adjacent marsh and planted with smooth cordgrass on, at minimum, 1.5-foot centers. PREVIOUS SECTION 106 CONSULTATION The City of St. Augustine has been coordinating with regulatory agencies and resource stakeholders, including the City’s Historic Architectural Review Board (HARB) and the Florida Division of Historic Resources (SHPO), since 2002. During this time, the City sought funding sources for the proposed undertaking, including a Community Development Block Grant (CDBG) award from the U.S. Department of Housing and Urban Development (HUD). Although CDBG funding is no longer being sought for the proposed undertaking, FEMA is building on, to the extent appropriate, the City’s efforts to coordinate with resource agencies in fulfilling its regulatory responsibilities (Attachment 5). In letters of May 17, 2004 (addressed to Mr. Russell Price of the Florida Department of Environmental Protection) and September 2, 2004 (addressed to Mr. Mark Evans of USACE Jacksonville), the SHPO presented its opinion that “the old seawall along Avenida Menendez appears to meet the criteria for listing in the National Register” and “[t]he nature and/or location of the new seawall construction is such that it will have an adverse effect on the historic characteristics of the old Avenida Menendez Seawall that may qualify it for listing in the National Register.”

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A Florida Historic Structure Form, prepared by Taylor Engineering and dated March 3, 2005, recommends that the seawall be considered a potential contributing resource to a National Register District (presumed to be the St. Augustine Town Plan Historic District). The form appears to have an approval from the SHPO staff dated December 19, 2003. Discussions continued between the City of St. Augustine, Dr. Steven Schropp of Taylor Engineering, and the SHPO regarding this project. In a letter dated March 9, 2005, to Mark Evans with USACE Jacksonville, the SHPO provided an opinion that the proposed project would have no adverse effect on the Avenida Menendez Seawall. The SHPO recommended that City Archaeologist, Carl Halbirt, be on site to monitor the construction activities. The SHPO letter did not comment on effects on the St. Augustine Town Plan Historic District or other above-ground historic properties within the Area of Potential Effects (APE). In an unsigned letter dated March 10, 2005, from the SHPO to City Historian, Cecile-Marie Sastre, the SHPO provided the same recommendation regarding archaeological monitoring as in the March 9, 2005 letter. However, the SHPO revised or clarified its opinion by stating that “the proposed project will have no adverse effect on the archaeological resources associated with the Avenida Menendez Seawall project.” In addition, the SHPO stated that design plans for the landscaping and streetscape were required for the SHPO to complete its review of the proposed project. According to the FMA subapplication materials, the last correspondence received from the SHPO was on October 25, 2006. Addressed to Mr. Timothy Ish with Taylor Engineering, the letter referred to the proposed seawall project and a related project funded through HUD. The HUD project is no longer being funded. The SHPO again requested design plans for the landscaping and streetscape in order to find “ways to minimize and/or mitigate the adverse effects of the overall project” and complete their review of the project. AREA OF POTENTIAL EFFECTS In accordance with 36 CFR §800.4(a), FEMA has defined an APE consistent with the scale and nature of the undertaking (Attachment 6). The APE includes the area of potential ground-disturbing activity associated with the undertaking and accounts for potential indirect, visual effects along the major vistas of the Avenida Menendez, St. Francis Street, and Bridge Street, and across the open land on the east side of Marine Street, across from the National Guard property (St. Francis Barracks [SJ10A]) at the south end of the project area. IDENTIFICATION OF HISTORIC PROPERTIES As stipulated in 36 CFR §800.4(b), FEMA has made a reasonable and good faith effort to carry out identification of historic properties within the APE. Because of the widely acknowledged historic significance of the City of St. Augustine and the density of historic properties therein, built resources within the City have been well documented and no on-site survey was necessary. SHPO staff aided in the identification effort by providing existing National Register Inventory Nomination Forms and Florida Historic Structure Forms to FEMA’s contractor, URS Group, Inc. (URS). URS conducted additional primary-source research at the National Archives and Records Administration (NARA) in College Park, Maryland, and online research was directed toward

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obtaining maps and photographic documentation of the APE. Review of this information by URS Architectural Historians meeting the Secretary of the Interior’s Professional Qualification Standards (36 CFR Part 61) resulted in the identification of twenty-seven historic properties within the APE (Attachments 7, 8). Of these, two properties, the St. Augustine Town Plan Historic District (SJ00010) and the Alvarez House (SJ00010G), are currently listed in the National Register of Historic Places (NRHP). One property, the Avenida Menendez Seawall (SJ04971), was formally determined eligible for listing in the NRHP in 2003-2005, as noted above. The remaining twenty-four properties are located in the St. Augustine Town Plan Historic District. These properties were evaluated and determined to be contributing resources to the Historic District, and therefore, were considered to be listed in the NRHP. Of these twenty-four properties, eight were also determined to be individually eligible for listing in the NRHP. Comprehensive identification and evaluation of archaeological resources within the APE has not been conducted, but archaeological resources associated with the NRHP-eligible Avenida Menendez Seawall are known to be present in the project area. As part of the City’s coordination with the SHPO on the project, a report was completed by City Historian Cecile-Marie Sastre, Ph.D., in January 2005. The report references an archaeological survey completed by City Archaeologist Carl Halbirt in January 2005 consisting of limited (two trench) archaeological testing on the seaward face of the current seawall. The testing identified “pavers,” or a toe to the seawall, and the report recommends that this feature be avoided during the construction of the new seawall by moving it 12 feet from the existing wall. There is a high probability for the presence of additional archaeological historic properties within the direct APE. ASSESSMENT OF EFFECTS FEMA has applied the Criteria of Adverse Effect in accordance with 36 CFR §800.5, and has determined that the undertaking will have an adverse effect on historic properties. The undertaking consists of the burial of the Avenida Menendez Seawall and the construction of a new public promenade along the Matanzas River along the eastern edge of the St. Augustine Town Plan Historic District. FEMA seeks SHPO written concurrence with its findings and determinations as presented above. Due to high public visibility, FEMA is requesting the favor of an expedited 15 day review. Please refer to the enclosed CD for the attachments. I look forward to working with you during the Section 106 process. Should you have any questions, please contact me at (770) 220-5387 or [email protected]. Sincerely, Stephanie L. Madson, Ph.D. Deputy Regional Environmental Officer FEMA Region IV

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Copies: Carl D. Halbirt, City Archaeologist, St. Augustine, FL Cecile-Marie Sastre, City Historian, St. Augustine, FL Christine Arato, Senior Historian/Acting National Historic Landmark Program Manager, Southeast Region, Atlanta, GA Attachments (refer to the enclosed CD): Attachment 1 – Project Location Topographic Map Attachment 2 – Project Location Aerial Photograph Attachment 3 – Project Location Photographs Attachment 4 – Construction Drawings (Dated March 20, 2009) Attachment 5 – Project Section 106 Coordination Chronology Attachment 6 – Area of Potential Effects Attachment 7 – Table of Historic Properties within the APE Attachment 8 – Photographs of Historic Properties within the APE

Attachment 1

Project Location Topographic Map

1 ½ 0 1 MILE

1000 0 1000 2000 3000 4000 5000 6000 7000 FEET

1 .5 0 1 KILOMETER

PROJECT

SCALE

SOURCE

PROJECT NO. 19556733

N

Project Location MapAvenida Menendez Seawall

ATTACHMENT 1USGS St. Augustine, FL (1992)7.5 minute topographic Quadrangle

1”=2000’

Project Location

Attachment 2

Project Location Aerial Photograph

1 ½ 0 1 MILE

1000 0 1000 2000 3000 4000 5000 6000 7000 FEET

1 .5 0 1 KILOMETER

PROJECT

SCALE

SOURCE

PROJECT NO. 19556733

N

Aerial Photo of Project LocationAvenida Menendez Seawall

ATTACHMENT 2Google Earth Professional 2010

1”=140’’

Project Location

Attachment 3

Project Location Photographs

PROJECT

SOURCE ATTACHMENT 3

Avenida Menendez Seawall Project Location Photographs

n/aSCALE

Figure 1. Ca. 1880s Photograph of Historic Seawall Looking N along Avenida Menendez

Figure 2. Looking N along Avenida Menendez Seawall after Tropical Storm Fay in 2008

FEMA, Google Earth Professional 2010

PROJECT

SOURCE ATTACHMENT 3

Avenida Menendez Seawall Project Location Photographs

n/aSCALE

Figure 4. Looking SE at South End of Avenida Menendez Seawall, 2009

Figure 3. Looking N along Avenida Menendez Seawall after Tropical Storm Fay in 2008

FEMA, Google Earth Professional 2010

PROJECT

SOURCE ATTACHMENT 3

Avenida Menendez Seawall Project Location Photographs

n/aSCALE

Figure 6. Looking SE along Avenida Menendez Seawall, 2009

Figure 5. Looking NE along Avenida Menendez Seawall, 2009

Google Earth Professional 2010

PROJECT

SOURCE ATTACHMENT 3

Avenida Menendez Seawall Project Location Photographs

n/aSCALE

Figure 7. Looking SE at North End of Avenida Menendez Seawall, 2009

Figure 8. Looking SW across Avenida Menendez from North End of Project Area, 2009

Google Earth Professional 2010

PROJECT

SOURCE ATTACHMENT 3

Avenida Menendez Seawall Project Location Photographs

n/aSCALE

Figure 9. Looking SW across Avenida Menendez near North End of Project Area, 2009

Figure 10. Looking SW across Avenida Menendez near South End of Project Area, 2009

Google Earth Professional 2010

Attachment 4

Construction Drawings (Dated January 14, 2009)

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ND

558

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135

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98S

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8 E

ND

202

0139

STA

RT

5580

45 E

ND

558

044

L20

12.1

5S

TAR

T 20

2013

9 E

ND

202

0150

STA

RT

5580

44 E

ND

558

038

L21

17.2

1S

TAR

T 20

2015

0 E

ND

202

0165

STA

RT

5580

38 E

ND

558

030

L22

33.4

9S

TAR

T 20

2016

5 E

ND

202

0194

STA

RT

5580

30 E

ND

558

013

L23

44.0

9S

TAR

T 20

2019

4 E

ND

202

0232

STA

RT

5580

13 E

ND

557

991

L24

55.7

2S

TAR

T 20

2023

2 E

ND

202

0280

STA

RT

5579

91 E

ND

557

962

L25

56.8

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2028

0 E

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202

0328

STA

RT

5579

62 E

ND

557

931

L26

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T 20

2032

8 E

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202

0365

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5579

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557

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L27

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2036

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202

0404

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5579

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557

879

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202

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5578

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557

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N D

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E 20

0JA

CK

SO

NV

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, FLO

RID

A 32

256

ZONEDATE REVISIONS / SUBMISSIONS NO

GR

APH

IC S

CA

LEFU

LLS

IZE:

1" =

10'

RE

DU

CE

D: 1

" = 2

0'

40'

20'

10'

0

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03-0

48

JAN

UA

RY

14,

200

9

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MPW

ALMPW

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AU

GU

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, FL

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A W

ALL

MIC

HA

EL P

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MAT

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REVISIONS SUBMITTED 11/16/07 - JCK

REVISIONS AS PART OF FINAL SUBMITTAL - JCK

11/16/07

TBD1

2

2

2

1

1

MATCHLINE STA. 19+36.00 12

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56

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A 32

256

ZONEDATE REVISIONS / SUBMISSIONS NO

MATCHLINE STA. 17+10.00

GR

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IC S

CA

LEFU

LLS

IZE:

1" =

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DU

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D: 1

" = 2

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ALMPW

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LL

MIC

HA

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CENTER LINE AVE. MENENDEZC L

PROP. SEAWALL

EX. SEAWALL

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OP.

GR

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STA

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-2-101234567

ELEVATION IN FEET (NGVD)

020

4060

2040

60

CENTER LINE AVE. MENENDEZC L

PROP. SEAWALL

EX. SEAWALL

PR

OP.

GR

AD

ES

LOP

E 1V

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STA

TIO

N 1

8+00

DIS

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IN F

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G G

RAD

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-2-101234567

ELEVATION IN FEET (NGVD)C

G-2

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REVISIONS SUBMITTED 11/16/07 - JCK

REVISIONS AS PART OF FINAL SUBMITTAL - JCK

11/16/07

TBD1

2

22

22

2

2

2

1

1

1

CG

-212

CG

-222

MATCHLINE STA. 17+10.00

MATCHLINE STA. 14+50.00

12

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56

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ABCDF EH GGH EF D C B

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N D

RIV

E, S

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E 20

0JA

CK

SO

NV

ILLE

, FLO

RID

A 32

256

ZONEDATE REVISIONS / SUBMISSIONS NO

GR

APH

IC S

CA

LEFU

LLS

IZE:

1" =

10'

RE

DU

CE

D: 1

" = 2

0'

40'

20'

10'

0

C20

03-0

48

JAN

UA

RY

14,

200

9

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MPW

ALMPW

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GU

STI

NE

, FL

SEA

WA

LL

MIC

HA

EL P

. WH

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5496

AV

EN

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MEN

END

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3'

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7+00

DIS

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CENTER LINE AVE. MENENDEZC L

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EX. SEAWALL

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AD

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LOP

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020

4060

2040

60

STA

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5+00

DIS

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CE

IN F

EET

CENTER LINE AVE. MENENDEZC L

PROP. SEAWALL

EX. SEAWALL

PR

OP.

GR

AD

ES

LOP

E 1V

:12H

020

4060

2040

60

STA

TIO

N 1

6+00

DIS

TAN

CE

IN F

EET

CENTER LINE AVE. MENENDEZC L

PROP. SEAWALL

EX. SEAWALL

PR

OP.

GR

AD

ES

LOP

E 1V

:12H

EXI

STIN

G G

RAD

EE

XIST

ING

GR

ADE

EXI

STIN

G G

RAD

E

-2-101234567

ELEVATION IN FEET (NGVD)

-2-101234567

ELEVATION IN FEET (NGVD)

-2-101234567

ELEVATION IN FEET (NGVD)

CG

-3

15+0

0

CG

-3

16+0

0

CG

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FOR

ALL

UTI

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STR

UC

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AR

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S PR

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TO

WO

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PR

OM

EN

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EP

RO

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NA

DE

PR

OM

EN

AD

E

REVISIONS SUBMITTED 11/16/07 - JCK

REVISIONS AS PART OF FINAL SUBMITTAL - JCK

11/16/07

TBD1

2

22

2

2

1

CG

-332

CG

-322

CG

-312

2

MATCHLINE STA. 14+50.00

MATCHLINE STA. 12+00.00

12

34

56

788

76

54

32

ABCDF EH GGH EF D C B

62O

F18

A

1

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DR

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PR

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NO

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DA

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ED

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EC

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DR

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N

DES

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PR

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SEA

L

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CA

TE O

F AU

THO

RIZ

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N #

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5

TAY

LOR

EN

GIN

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INC

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00 C

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RE

SS

GR

EE

N D

RIV

E, S

UIT

E 20

0JA

CK

SO

NV

ILLE

, FLO

RID

A 32

256

ZONEDATE REVISIONS / SUBMISSIONS NO

GR

APH

IC S

CA

LEFU

LLS

IZE:

1" =

10'

RE

DU

CE

D: 1

" = 2

0'

40'

20'

10'

0

C20

03-0

48

JAN

UA

RY

14,

200

9

MPW

MPW

ALMPW

ST.

AU

GU

STI

NE

, FL

SEA

WA

LL

MIC

HA

EL P

. WH

ELAN

P.E

.# 5

5496

AV

EN

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MEN

END

EZ

3'

PA

RT

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PLA

N (

KE

Y S

HE

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PAV

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G G

RAD

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STA

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38.4

0 R

INV

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39'

PIP

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8" R

CP

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21.1

5 R

INV

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39'

PIP

E: 1

8" R

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CH

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00 (B

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2)

MIL

L EX

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NG

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ND

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3'

CAS

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ON

GR

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x12"

CO

NTR

AC

TOR

TO

SU

BM

IT S

AM

PLE

020

4060

2040

60

STA

TIO

N 1

3+00

DIS

TAN

CE

IN F

EET

CENTER LINE AVE. MENENDEZC L

PROP. SEAWALL

EX. SEAWALL

PR

OP.

GR

AD

ES

LOP

E 1V

:12H

020

4060

2040

60

STA

TIO

N 1

2+00

DIS

TAN

CE

IN F

EET

CENTER LINE AVE. MENENDEZC L

PROP. SEAWALL

EX. SEAWALL

PR

OP.

GR

AD

ES

LOP

E 1V

:12H

EXI

STIN

G G

RAD

EE

XIST

ING

GR

ADE

-2-101234567

ELEVATION IN FEET (NGVD)

-2-101234567

ELEVATION IN FEET (NGVD)

020

4060

2040

60

STA

TIO

N 1

4+00

DIS

TAN

CE

IN F

EET

CENTER LINE AVE. MENENDEZC L

PROP. SEAWALL

EX. SEAWALL

PR

OP.

GR

AD

ES

LOP

E 1V

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