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The Pinellas Trail LoopCompleting the Loop in Florida’s Most Densely Populated County

TIGER V

TABLE OF CONTENTS

Location Overview ...................................................................................................................................................1

Project Highlights ....................................................................................................................................................2

Project Description ...................................................................................................................................................3

State of Good Repair ................................................................................................................................................7

Economic Competitiveness ......................................................................................................................................7

Livability ..................................................................................................................................................................9

Environmental Sustainability .................................................................................................................................11

Safety .....................................................................................................................................................................12

Technical Feasibility ..............................................................................................................................................13

Financial Feasibility ...............................................................................................................................................13

Detailed Budget .....................................................................................................................................................14

Project Schedule .....................................................................................................................................................14

Assessment of Project Risks and Mitigation Strategies .........................................................................................15

Innovation ..............................................................................................................................................................15

Partnership .............................................................................................................................................................15

Jurisdictional and Stakeholder Collaboration ........................................................................................................16

Disciplinary Integration .........................................................................................................................................18

Project Costs and Benefits .....................................................................................................................................18

Other Environmental Reviews and Approvals ......................................................................................................20

Figures and Tables

Figure 1 – Pinellas Trail Loop – North and South Gaps..............................................................................1

Figure 2 – Pinellas County Location Map ...................................................................................................1

Figure 3 – Pinellas Trail Loop – North Gap ................................................................................................5

Figure 4 – Pinellas Trail Loop – South Gap ................................................................................................6

Figure 5 – Pinellas County Trailways Plan Map .......................................................................................16

Table 1 – Benefit-Cost Results ..................................................................................................................19

Table 2 – National Average Employment Impacts by Type ......................................................................19

Attachment A – Statement of Work Attachment B – Federal Wage Rate Certification Attachment C – Evidence of Agreement to Utilize Right-of-Way Attachment D – Letters of Support

THE PINELLAS TRAIL LOOP TIGER V

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Location Overview Completing the Loop involves completing the nearly 75-mile Pinellas Trail Loop that serves as both a linear park and multi-modal transportation facility in the midst of Florida’s most densely populated county (see Figure 1).

Pinellas County is an urban county located along the west coast of Florida on a peninsula separating Tampa Bay from the Gulf of Mexico (see Figure 2). The County is comprised of 24 municipalities and an unincorporated area, for a total of 25 governmental jurisdictions. In land area, the County is relatively small (only 280 square miles in size – 15 miles across at the widest point and 38 miles long when measured north to south) yet its 2010 population of 916,542 permanent residents makes it the fifth most populous county in Florida, and 41st in the nation, while also exceeding the total population of five states, and the District of Columbia.

As the most densely populated county in Florida, Pinellas County has an estimated 3,270 persons per square mile. The second most densely populated county (Broward) has only 1,445 persons per square mile, a testament to the level of urbanization in Pinellas. Within this dense, urban environment, an extensive trail system has been developed, centered on the Pinellas Trail Loop. The first segment of the Pinellas Trail Loop opened in 1990 and is one of Florida’s premier urban trails. The Pinellas Trail Loop includes a number of different

Figure 1

Figure 2


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trails, including the Fred Marquis Pinellas Trail, the Progress Energy Trail and the North Bay Trail. Stretching from Tarpon Springs in the north to St. Petersburg in the south, the Pinellas Trail Loop links some of Pinellas County’s most picturesque parks and scenic coastal areas, as well as commercial centers and residential neighborhoods, providing an excellent alternative to the automobile – even for visitors. As evidence of its popularity, an estimated 90,000 people on average use the Pinellas Trail Loop each month. With more than 10 existing over- and under-passes, Trail users are able to travel safely and quickly above or below some of the busiest intersections along the route. The Pinellas Trail Loop has won numerous awards, including induction into the National Rail to Trail Hall of Fame and twice receiving the Best Trail of Florida award from the State Office of Greenways and Trails. Hailed as a priceless haven in a busy, highly urbanized environment, the Trail provides both recreational and alternative commuter transportation options. Built primarily on an abandoned rail line, the 15-ft wide Pinellas Trail Loop provides a backbone for non-motorized, off-road travel throughout the extents of Pinellas County. Local jurisdictions have invested in expanding the trail network with more than 48 miles of non-motorized trail routes countywide, in addition to the Pinellas Trail Loop, creating nearly 90 miles of trail facilities within Florida’s most densely populated county. Additional links to the trail network include bicycle lanes and sidewalks that reach into neighborhoods and provide complete connections to popular destinations for residents and visitors alike.

Project Highlights

• This project will complete the remaining 18.5 miles of the nearly 75 mile Pinellas Trail Loop, providing for an uninterrupted multi-modal transportation facility that directly links eight different municipalities and a number of unincorporated communities, all within Florida’s most densely populated county.

• Completing the Loop will bring an estimated 380,000 residents and 260,000 jobs within one-half mile of a 75-mile, uninterrupted, non-motorized transportation facility. More than half of the county’s population will live within one-mile of the completed facility.


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• The projects associated with Completing the Loop will be constructed using a design-build contract. Both can commence as soon as grant money is awarded.

• Total grant request of $23,340,000, with a 31% local match of $10,315,880, for a total project cost of $33,655,880.

• Economic competitiveness is enhanced by the ability of the Pinellas Trail Loop to connect residents with employment, commercial and recreational destinations, to draw tourists to the area, and to attract new businesses along the corridor.

• An estimated 67% of Trail users utilize the Trail for non-recreational purposes. • The Pinellas Trail Loop connects to all major east-west roadways in the county, as well

as some major north-south roadways, such as US Highway 19. The Trail Loop also connects to a number of Pinellas Suncoast Transit Authority (PSTA) transit lines and major transfer facilities, increasing multi-modal connectivity and the safety of bicyclists and pedestrians traveling throughout the county.

• When the proposed 275-mile Florida Coast to Coast Connector is completed, the Pinellas Trail Loop will be part of a continuous trail facility extending from the west coast to the east coast of Florida.

• Both public and private entities provide continuing support to the Pinellas Trail Loop, including local governments, Pinellas Trails Inc., Keep Pinellas Beautiful, and the Pinellas Trail Auxiliary Rangers.

• Several neighborhoods identified as Environmental Justice areas will benefit from Completing the Loop, with direct access to this multi-modal transportation facility and enhanced connections to transit, commercial centers, employment and recreational facilities.

• The completed 75-mile Pinellas Trail Loop will provide a connected, continuous and safe transportation facility for residents and visitors to Pinellas County and the region.

Project Description By Completing the Loop, an uninterrupted ‘super-highway’ for non-motorized modes will be completed, providing a safe and convenient facility for commuters, students, retirees, shoppers, tourists, seasonal visitors, and those seeking recreational opportunities. Completing the Loop will reduce roadway congestion and greenhouse gas emissions and provide the opportunity for healthier lifestyles. Given the sub-tropical climate of Pinellas County, this multi-modal transportation facility will be used year-round, providing a maximum benefit to the community and providing significant quality of life benefits for people throughout the county and the region. There are two “gaps” remaining in the Pinellas Trail Loop which will be completed through this grant application (see Figure 1). The North Gap is 9.6 miles in length and will connect the northern terminus of the Pinellas Trail Loop to the existing segment of the Progress Energy Trail (see Figure 3). The South Gap is 8.9 miles in length and will connect the North Bay Trail with the existing segment of the Progress Energy Trail (see Figure 4). In addition to these two


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segments, overpasses are proposed to be constructed at two locations to provide Trail users safe passage across Interstate 275 and State Road 60 (Gulf-to-Bay Blvd.). These final two segments of the Pinellas Trail Loop will provide direct access to a number of major trip attractors, including the 255-acre John Chesnut Sr. County Park, the 3,000 acre Weedon Island Preserve, schools, a major league baseball spring training facility in Clearwater that is also home to a minor league baseball team, an approximately 75-acre major commercial center and site of a Pinellas Suncoast Transit Authority (PSTA) transfer facility serving seven (7) different transit routes, and numerous residential neighborhoods. The North Gap will serve as a safe alternative parallel facility to U.S. Highway 19 and County Road 611/McMullen Booth Road. Both of these roadways are six (6) lane facilities with high volumes of traffic. In addition, U.S. Highway 19 is a partially controlled access facility with a speed limit of 55 miles per hour, which poses a concern for bicyclists and pedestrians traveling along the corridor. The South Gap will traverse the Gateway area of Pinellas County, a major employment center, and provide a connection over Interstate 275 for bicyclists and pedestrians to safely access both employment and housing opportunities on either side of the interstate. Completing the Loop will also improve regional trail connections. The two segments included in this grant application will provide a connection to the Courtney Campbell Causeway Trail, a non-motorized bicycle and pedestrian facility that crosses Tampa Bay, connecting to the Tampa and Hillsborough County Trail networks. In addition, the Pinellas Trail Loop will connect to the proposed Florida Coast to Coast Connector Trail, an uninterrupted trail facility that will traverse the entire width of the State of Florida and link the Pinellas Trail in St. Petersburg to Titusville, in Brevard County on the east coast of Florida, and connecting to other trail networks along the way. Thus, Completing the Loop will put over 916,000 Pinellas County residents, in addition to seasonal visitors and tourists, within just a few miles of this future trail facility. Completing the Loop in Pinellas County, Florida will finish a 75-mile multi-modal transportation facility that will safely accommodate alternative modes and enhance access to employment, retail services, and residential areas. An estimated 380,000 people live within one-half mile (1/2 mile) of the Pinellas Trail Loop. In addition, more than 260,000 jobs are located within this same area. This project is not only prudent, it is the right way to expend federal dollars designated for transportation projects that have a significant impact on the Nation, a metropolitan area or a region.


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Figure 3


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Figure 4


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State of Good Repair Completing the Loop is a high priority of the Pinellas MPO and its jurisdictional partners. The first segment of the Pinellas Trail Loop opened in 1990, traversing six (6) miles of abandoned railroad and connecting Taylor Park in Largo with Seminole Park in Seminole. This proposed project is consistent with the Pinellas County Capital Improvements Element, the MPO Long Range Transportation Plan, and the West Central Florida MPO’s Chairs Coordinating Committee Regional Long Range Transportation Plan Multi-Use Trails Element. The two segments included in this grant application are also included on the Regional Priority List for Regional Multi-Use Trails. The primary goal of Completing the Loop is to leverage decades of investment in bicycle and pedestrian infrastructure while utilizing existing infrastructure, such as existing right-of-way on existing streets and the Progress Energy utility corridor. This project would serve to reduce the vehicle miles traveled in the county and help to maintain a state of good repair on surrounding transportation facilities. Completing the Loop will also serve to improve the resiliency of Pinellas County by enhancing the facilities available for alternative modes of transportation. Resilient communities are those that have multiple pathways for the movement of people and goods. Competing the Loop will place more than half of the residents of the county within one mile of an uninterrupted 75-mile non-motorized transportation facility, accessible when people do not have vehicles available to them, whether due to economic or emergency situations. This non-motorized super-highway provides a low-cost transportation facility that will improve the mobility of residents and enhance resiliency by being available for alternative modes of transportation. The Pinellas MPO and its partners are well capitalized and committed to providing regular maintenance and ensuring a long-term state of good repair for the Pinellas Trail Loop. This project will complete the final sections of the Pinellas Trail Loop and support additional economic development opportunities that will generate additional revenue to maintain the state of good repair for the facility into the future. Economic Competitiveness Completing the Loop will increase the economic competitiveness of Pinellas County, bolstering the county’s long-term economic success and providing a short-term economic boost. The Pinellas Trail Loop integrates existing transportation infrastructure and provides access to a variety of destinations, including commercial centers that provide jobs and goods for local residents, a major PSTA transit transfer facility, a large environmental preserve, a regional park facility, and regional trail facilities. This access increases the labor pool for employers located near the Pinellas Trail and provides alternative access for those patronizing nearby businesses. This interconnected Trail Loop provides a long-term, safe and sustainable transportation option that will generate economic development opportunities along its 75 mile route, including in the downtown areas of several municipalities and in some identified Environmental Justice areas.


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In the short-term, the design and construction of the projects associated with Completing the Loop will create a number of employment opportunities in a county that has experienced an unemployment rate higher than the national average. Completing the Loop will strengthen the economic competitiveness of Pinellas County in that it completes the integration of a multi-purpose transportation facility with the county’s comprehensive, multi-modal network. The North and South gaps are key links to multiple destinations and to the countywide trail network, allowing for safer and more efficient pedestrian and bicycle traffic and putting more than half of the county residents within one mile of this 75 mile multi-modal transportation facility. The average age of the population in Pinellas County is higher than the national average and has been increasing. Recent trends nationwide are showing that the younger generation, the “millennial generation,” is increasingly turning to alternative modes for transportation. The millennial generation is today’s 17 to 35 year olds, perhaps born as early as 1975, but came into adulthood in the new century. Millennials own fewer cars and drive less than their predecessors…they would rather bike, walk, car-share and use public transportation, and they want to live where that is all easy. To many millennials, access to public transit is more important than ownership of a car, as cars can be considered a hassle, especially because of the overall cost of ownership (specifically, the cost of insurance, gas and maintenance). Millennials want to spend as little time as possible commuting, unless they can simultaneously do things they value, like texting, exercising or socializing. In order to attract and retain younger residents and support the economy, the benefits of investments in alternative transportation modes need to be considered. By “Closing the Loop,” residents of Pinellas, including the millennial generation (approximately 20% of the County’s 2010 population,) will be able to walk or ride a bike to access jobs and retail services, as well as access public transportation for the same. The potential to enhance economic competitiveness can be seen in a number of ways, but one particularly noteworthy example is in the Clearwater area, Pinellas County’s second most populous city. The North Gap segment provides access to the approximately 75 acre Westfield Countryside Plaza, which includes a major PSTA transit transfer facility. This transit hub serves seven (7) transit routes, with 757 riders boarding buses and 824 riders disembarking on an average workday. Completion of the North Gap provides direct and safe access for people to reach this important commercial center and bus transfer facility. Transit routes serving this commercial center traverse a significant portion of the County, extending east to Oldsmar, north to the Pasco County line, west to downtown Dunedin and Clearwater, and south to the southern tip of St. Petersburg. With an estimated 67% of Trail users utilizing the Trail for non-recreational purposes, the North Gap has the potential to provide a significant benefit to the economy by increasing the access to jobs and major commercial centers, where retail and other consumer demands can be satisfied.


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The South Gap traverses the Gateway area of St. Petersburg, a major employment and activity center. Completing the Loop will provide an alternative multi-modal transportation facility to serve this area, increasing access to employers, removing vehicles from the congested roadway network, improving air quality, and promoting livability. The South Gap will provide access to the 94-acre Jabil Circuit Headquarters, a 122-acre mixed use development known as La Entrada, which is the location of Val Pak (a national direct marketing and printing company), and the Gateway Centre Office Park, in addition to other major employers and business parks. With approximately 44,000 jobs within ¼ mile of the South Gap (64,000 jobs within ½ mile), Completing the Loop will greatly improve employee access to jobs and help alleviate traffic congestion. The Pinellas Trail Loop has demonstrated that it facilitates the development of supportive facilities along its route. Businesses have opened along the Trail that market directly to Trail users and capitalize on passer-by traffic. There are a number of bicycle shops located along the Trail in several cities as well as restaurants and shops that market to Trail users by providing bike racks and advertising refreshments and restroom facilities. The City of Dunedin experienced a revitalization of its downtown after a segment of the Pinellas Trail Loop opened there in 1992. With the opening of the Trail, commuting and recreational bicyclists and pedestrians were brought to and through the City’s downtown and began patronizing shops and restaurants there. Similar results can be expected for other communities because Completing the Loop increases access for commuters, residents and visitors, thus expanding the pool of customers available to local businesses. Completing the Loop will also result in more people utilizing alternatives to the single-occupant-vehicle. With fewer cars on the road, and fewer vehicle miles traveled, the efficiency and effectiveness of the transportation system will increase. This project benefits more than just one mode of transportation. By removing vehicles from the road, the remaining vehicles will have less congestion to contend with, thus improving travel time and boosting the economy through reduced delivery delays. Through improved connections to transit services, more people will choose transit for their daily trips, further reducing congestion and vehicles miles traveled on the surrounding road network. The utilization of existing right-of-way will also demonstrate project efficiency by giving new purpose to existing infrastructure and maximizing the use of existing resources. Livability This project directly supports Goal 2 of the adopted Pinellas County MPO Long Range Transportation Plan: Promote livable community concepts that allow for people to travel freely and safely in the urban environment through non-motorized travel modes such as walking, bicycling and skating. Completing the Loop will improve livability in the neighborhoods and


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communities directly surrounding the Trail and throughout the county as a whole, providing for a safe and efficient means of transportation for those utilizing alternative modes. In order to provide a viable alternative to the single-occupant vehicle, the Pinellas MPO seeks to reduce the cost of mobility, improve transportation choices and expand the trails network. Completing the Loop will improve intermodal connections between residential areas, commercial development, and transit stops, thus providing an important link between transportation and land use. In addition, the buses used by the PSTA are equipped with bicycle racks on the front, further encouraging multiple modes for one trip and accommodating bicycle riders who either do not want to drive a personal vehicle or do not own one. In April 2013 alone, PSTA buses carried 33,447 bicycles and their riders, a 3.3% increase over April 2012. Completing the Loop will provide even more access to transit for bicyclists, further enhancing this popular intermodal connection.

The Pinellas Trail Loop provides also direct access to a number of identified Environmental Justice areas where there are high numbers of low income residents. Completing the Loop will provide an affordable and convenient transportation facility to connect residents in these areas to transit, employment and commercial centers, improving their mobility and their overall quality of life. The presence of a 75-mile, linear, non-motorized transportation facility serves as a significant asset for Florida’s most densely populated county, where an estimated 33% of Trail users utilize the facility primarily for recreational purposes. Completing the Loop will literally and figuratively complete this award-winning facility, providing even more residents with direct access to commercial and recreational destinations and transit facilities, enhancing the overall livability of the county and increasing environmental sustainability.

The health benefits provided by Completing the Loop cannot be understated. By completing the nearly 75 mile Pinellas Trail Loop, residents and visitors will benefit from a safe, uninterrupted transportation facility that encourages an alternative to the single-occupant vehicle. Completing the Loop will get more people out of their vehicles, reducing congestion, improving air quality through reduced vehicle emissions, and improving the health of Trail users. The Pinellas Trail Loop promotes active living which serves as a draw to young workers and the businesses that want to employ them. The presence of trails also benefits businesses by creating a healthier workforce and lowering health insurance premiums. The benefits of the Pinellas Trail Loop are not limited to just Pinellas County residents and visitors. The Pinellas Trail Loop is a regional trail facility, providing connections to adjacent counties and the proposed Florida Coast-to-Coast Connector Trail, extending across the state. The Pinellas Trail Loop is popular and successful, providing a unique quality of life experience for the residents of Florida’s most densely populated county. Completing the Loop will increase the number of residents that can directly access and utilize the Trail and serves as an amenity that new residents seek and businesses are attracted to. The Pinellas Trail Loop will help retain and


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draw residents of diverse backgrounds, particularly younger generations, that can serve the needs of current and future employers. By serving as an amenity and attraction for both current and future residents and businesses, the Pinellas Trail Loop increases community and neighborhood vibrancy, making surrounding areas more desirable places to live, work and play. Environmental Sustainability Sustainability is all about practices that make good business and environmental sense. Moreover, it is balancing the competing economic, social and environmental needs of a community. Completing the Loop will foster a more environmentally sustainable transportation option, because by offering residents and visitors multiple transportation options, the number of vehicle trips will be reduced. More energy efficient transportation modes, such as bicycling and walking, that connect to the PSTA transit system will reduce greenhouse gas emissions and the consumption of non-renewable energy sources. The transportation sector is one the primary contributors of greenhouse gas emissions into the environment. By providing trail facilities that encourage and support the use of alternative forms of transportation, the Pinellas MPO aims to remove vehicles from the roadway, thereby reducing

greenhouse gas emissions and improving air quality in the region. Pinellas County is part of a regional airshed for the purposes of determining compliance with the ozone standard. While the region is currently in attainment, any reduction in ozone emission standards, as is currently being discussed at the federal level, is likely to put the region into nonattainment status and require conformity. Completing the Loop will help to keep ozone emissions from rising and provide a significant benefit for the environmental sustainability of the entire region.

Based on the most recent Pinellas Trail Users Survey, 67% of users depend on the Pinellas Trail for non-recreational reasons, resulting in fewer vehicle miles traveled on the surrounding surface roads. Completing the Loop will provide a safe, 75-mile continuous multi-modal transportation facility that will serve non-motorized modes and provide connections to transit, providing opportunities for people to leave their personal vehicles at home and contribute to the environmental sustainability of the entire region. According to equations provided by the National Cooperative Highway Research Program, there will be 5,647 new daily adult cyclists because of the projects associated with Completing the Loop. Of these, 1,662 will be commuters. If results from existing segments of the Pinellas Trail Loop are replicated by Completing the Loop, these figures will be much higher. Keeping these daily cyclists out of cars and off of the roads will improve travel time of the surrounding road network, lowering greenhouse gas emissions and providing a significant benefit to the environment.


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Safety Transportation system safety is a vital component of livable communities. As Florida’s most densely populated county and with a roadway network that is substantially built-out, safely accommodating all modes of travel has become increasingly complex in Pinellas County. In 2011, over 6% of all crashes in Pinellas County involved a bicycle or a pedestrian, for a total of 915 crashes involving some of the most vulnerable users of the transportation system. Completing the Loop will provide non-motorized modes of transportation with a safe, dedicated and continuous facility, linking residential, employment, commercial, recreational and institutional uses. Providing vulnerable users such as bicyclists and pedestrians with an alternative to facilities shared with automobile and truck traffic will reduce crashes, particular the serious and fatal crashes that are often the result of conflicts between bicyclists or pedestrians and motor vehicles. U.S. Highway 19 and McMullen Booth/East Lake Road are the principal roadways that run parallel to the North Gap of the Pinellas Trail Loop (see Figure 3). These two corridors include some of the highest crash intersections in Pinellas County, while also being amongst the most congested with some of the highest traffic volumes. U.S. Highway 19, for example, is a six-lane facility with partially-controlled access, carrying over 80,000 average daily vehicle trips with a speed limit of 55 miles per hour; attributes that pose a challenge for ensuring the safe accommodation of bicycle and pedestrian travel. A November 2012 Crash Data Report prepared for the MPO’s Bicycle & Pedestrian Master Plan Update identified eight high crash corridors within Pinellas County, which included the Gulf to Bay (SR 60) corridor. Two of the highest crash intersections (at US Highway 19 and Old Coachman Road) are within a block of the North Gap. The South Gap of the Pinellas Trail Loop traverses the Gateway area, a main employment center in Pinellas County, with a roadway network that carries substantial volumes of both local and regional vehicle trips. This area also experiences significant volumes of heavy truck traffic, given the industrial nature of portions of the area. Two overpasses are proposed in Completing the Loop, to provide safe passage across some of the county’s most high-volume roadways without the risk of potentially fatal conflicts with high-speed vehicular traffic. Completing the Loop will improve safety for bicyclists and pedestrians by providing them with a facility to commute, recreate or to run their daily errands, without having to travel along roads with high volumes of vehicular traffic, thereby reducing the potential conflicts with motor vehicles. The MPO’s 2011 crash data for roadways within one-half mile of these Gaps shows a total of sixty-six (66) crashes involving bicycles and pedestrians, with one (1) fatality and forty (40) incapacitating injuries. Arguably, the Completing the Loop and availability of the Trail will reduce the number of bike and pedestrian crashes.


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There are a number of programs and partnerships that are directed toward safety on the Pinellas Trail Loop. The Pinellas Trail Security Task Force meets quarterly to coordinate law

enforcement efforts and share information on the Trail. An Emergency Marker Program has been developed so that users can easily identify their location on the Trail in the event of an emergency or to report a maintenance issue (marker shown at left). Overpasses and underpasses have been constructed to safely move users across busy intersections and there is a Volunteer/Auxiliary Ranger program to monitor the Trail. The Pinellas County Parks and Conservation Resources Rangers

patrol the Trail, along with both municipal and county law enforcement personnel. These programs, and others, will be extended to the gaps identified in the Completing the Loop grant application. Technical Feasibility Completing the Loop will involve the utilization of conventional construction techniques in existing right-of-way. The North Gap will use both existing Duke/Progress Energy utility corridor right-of-way and right-of-way along state, county and municipal roadways. An existing overpass on U.S. Highway 19 will be utilized and an additional overpass is proposed to be built at the State Road 60/Gulf-to-Bay Boulevard crossing of an existing Trail segment (see Figure 3). The South Gap will utilize existing Duke/Progress Energy utility right-of-way for the majority of its extent, in addition to utilizing state and county right-of-way, with an overpass is proposed to be built over Interstate 275 (see Figure 4). In addition, alternative alignments using public and private properties and right-of-way are available and feasible. Further design will be completed with part of this grant funding. Cost estimates were based on per-mile cost figures, inclusive of allowances for engineering, design, project administration and management, and potential cost overruns. Each segment of Completing the Loop has independent utility, but as the final pieces of the Pinellas Trail Loop, these segments function as part of a complete, multi-modal transportation facility. A Statement of Work is included as Attachment A. Financial Feasibility Local funding for Completing the Loop is being provided by the Penny for Pinellas infrastructure sales tax. The Pinellas County Capital Improvements Program includes the local funding match being used to leverage this project. Combined with TIGER grant funding, all segments needed for Completing the Loop will be fully funded and able to move forward. The dollars from the local match will be used to construct a portion of the Trail segment in the North Gap, extending from the Brighthouse Networks Field baseball facility in Clearwater, north to the existing Trail overpass at U.S. Highway 19. Local match dollars will also be spent on the South Gap, paying


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for the reconstruction of the San Martin Bridge. This bridge facility is in need of replacement and does not currently safely accommodate bicyclists and pedestrians. Local funds will be utilized to contribute to the redesign and reconstruction of this bridge to accommodate a designated Trail facility, providing a critical missing link in the Pinellas Trail Loop system. Operating revenue will be provided by the Pinellas County Department of Parks and Conservation Resources. As Completing the Loop will be constructed under a design-build contract, specific phasing and project details have not yet been determined. Therefore, a more detailed project budget cannot yet be determined, but will be developed early in the design of the project, soon after grant award. Detailed Budget As the remaining segments of the Pinellas Trail Loop will be constructed using a design-build contract, a detailed budget will not be developed until project design, and is therefore not yet available. The cost for design, construction and project administration and management is estimated at $800,000 per mile. The cost for the proposed overpass at State Road 60/Gulf-to-Bay Boulevard has been estimated at $3 million, and the proposed overpass at I-275 is estimated at $7.5 million, based on costs experienced with similar Pinellas Trail Loop overpasses. Alternative alignments and crossings are available, if necessary, to compensate for any unanticipated expenses. Project Schedule This project is going to move forward as a design-build project, shortening the time from project award to project completion. If there are any unforeseen delays in the development of bid specifications or with project award, there is substantial time remaining to remedy these delays so that the funding can be fully obligated in advance of June 30, 2014. Helping expedite the project schedule are existing agreements with the various jurisdictions and with Duke/Progress Energy. A copy of the Agreement to Lease and the Joint Participation Agreement with Duke/Progress Energy is included as Attachment C and Letter of Support from the company is also included. Pinellas County and Duke/Progress Energy are currently in the process of negotiating a new Agreement to Lease and Joint Participation Agreement so a copy of the latest draft has also been attached. In addition, alternative alignments and crossings are available and feasible, should they be necessary. Immediately upon project award, bid specifications will be developed, a Categorical Exclusion from NEPA will be obtained and preconstruction activities will begin. Design will begin

PROJECT SCHEDULE Receive Notice of Award of TIGER Funding September 2013 Develop Bid Specifications September - November 2013 Let Project November 2013 Award Project February 2014 Funding Fully Obligated March 2014 Begin Design/Build Project March 2014 Project Completion August 2018


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immediately upon bid award with construction following soon thereafter. Completion of this project is scheduled for August 2018. As this project will be done as design-build, specific details of construction phases are not yet available. While not currently in the Transportation Improvement Program (TIP), the MPO is committed to amending the TIP immediately upon receipt of grant award to ensure its inclusion. Any other necessary planning documents will be amended, as necessary, so that the project schedule for Completing the Loop is not delayed. Assessment of Project Risks and Mitigation Strategies During the design of the projects associated with Completing the Loop, it may be determined that an alternative alignment is more advantageous. If this should occur, alternative alignments using public and private property and right-of-way are available and feasible. Completing the Loop utilizes existing right-of-way so environmental delays are not anticipated. Innovation

Completing the Loop demonstrates innovation by utilizing existing infrastructure to increase the capacity of the transportation system while providing for a safe and secure multi-modal transportation facility. The roadway network in Pinellas County is well developed with few cost effective options for increasing its capacity. The Pinellas County MPO and its partners have developed this innovative Pinellas Trail Loop to encourage a shift to non-motorized modes of transportation, helping to alleviate congestion on the surrounding road network and improve the safety of those utilizing modes other than the automobile. By Completing the Loop and connecting major trip attractors, generators, and transit, the Pinellas Trail Loop will leverage existing infrastructure and investments to provide more transportation choices and benefit the entire transportation system in Pinellas County, Florida’s most densely populated county. Completing the Loop also demonstrates innovation

through the use of a public-private partnership. The MPO is partnering with Duke/Progress Energy to utilize existing utility right-of-way to construct the majority of these final Trail segments. By leveraging this existing asset in the community, additional infrastructure costs can be reduced, if not avoided. Partnership Completing the Loop is a project that exemplifies strong collaboration among a broad range of participants, including Pinellas County, the Pinellas County MPO, Duke/Progress Energy, the Florida Department of Transportation, the Pinellas Suncoast Transit Authority, and a number of


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municipal partners. Completing the Loop clearly integrates transportation with other public benefits, such as environmental protection and the provision of recreational facilities. Jurisdictional and Stakeholder Collaboration The Pinellas County MPO is the party seeking the grant for Completing the Loop and Pinellas County will be the implementing partner, managing the construction. The MPO seeks to improve transportation countywide for all principal modes of travel, including mass transit, walking and bicycling. In addition to the MPO, Pinellas County government and a number of municipalities in the County have all supported the completion of the Pinellas Trail Loop. Regionally, six additional MPOs have supported Completing the Loop through its incorporation into the Regional Long Range Transportation Plan. The Pinellas Trail Loop provides direct connections to trails within the county (see Figure 5) and extending into other counties in the region. The MPO has been collaborating with other agencies in the region to support the Pinellas Trail Loop as a regional facility and it continues to remain a high priority across the region. The MPO has support or this project from a number of parties. Letters of support are included in Attachment D and include the following:

United States Senator Bill Nelson United States House Representative Gus Bilirakis, Florida District 12 United States House Representative Kathy Castor, Florida District 14 Pinellas County Duke Energy Barrier Islands Governmental Council (represents all beach communities in Pinellas

County) City of Belleair Bluffs City of Clearwater

Figure 5


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City of Dunedin City of Gulfport City of Largo City of Oldsmar City of Pinellas Park City of Safety Harbor City of Seminole City of St. Petersburg City of Tarpon Springs Clearwater Regional Chamber of Commerce Florida Department of Health Pinellas County Department of Economic Development Pinellas County Schools Pinellas Park/Gateway Chamber of Commerce Pinellas Suncoast Transit Authority Pinellas Trails Inc. Rails-to-Trails Conservancy Tampa Bay Area Regional Transportation Authority Tampa Bay Regional Planning Council Town of Kenneth City Visit St. Petersburg/Clearwater

Completing the Loop will provide additional connections to bicycle and pedestrian trail facilities in the cities of Clearwater, Largo, Oldsmar, Pinellas Park and St. Petersburg. These connections will provide even more residents with access to the Pinellas Trail Loop and to the major trip attractors located along it. Completing the Loop is a landmark project highlighting the benefits of public and private partnerships. The MPO and Pinellas County are partnering with Duke/Progress Energy to use their utility easement for a significant portion of this project. This partnership allows for the utilization of the existing utility easement with a ninety-nine (99) year lease, providing a unique and functional trail corridor that not only provides a recreational opportunity, but serves as a safe alternative transportation facility for employment, school traffic and other non-recreational trips. The Florida Department of Transportation has constructed an overpass at U.S. Highway 19 and an underpass at SR 688/Ulmerton Road for the Pinellas Trail Loop. Completing the Loop will connect these two facilities. Pinellas Trails Inc., the Auxiliary Rangers and Keep Pinellas Beautiful are other private sector partners that will help to provide additional maintenance and security for the entire Pinellas Trail Loop. The MPO will partner with the City of Clearwater to utilize right-of-way for a portion of the Trail in the North Gap. Pinellas County Department of Environment and Infrastructure has set aside land on its solid waste facility property for


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construction of the Trail and the Pinellas County Department of Parks and Conservation Resources has committed to operating and maintaining the Trail. Utilizing these partnerships will serve to lower costs and promote efficiency by leveraging existing resources. The Pinellas Trail Loop is also a regional facility, connecting to trail facilities that are either programmed or under construction in Pasco and Hillsborough counties. The planned connection to the proposed Florida Coast to Coast Connector Trail will bring all residents in Pinellas County within just a few miles of an uninterrupted trail facility stretching the width of Florida from St. Petersburg to Titusville on the east coast. Disciplinary Integration The projects associated with Completing the Loop exemplify the integration of a variety of disciplines. While the Pinellas MPO is the main applicant, the Pinellas County Department of Environment and Infrastructure will be overseeing the design-build contract, while the Pinellas County Department of Parks and Conservation Resources will be responsible for the maintenance of the facility and for providing Park Rangers to monitor the Trail segments. Both Duke/Progress Energy and the City of Clearwater will be providing access to right-of-way for the construction of the Trail segments. Completing the Loop will improve the environment by removing vehicles from the roadway and improving air quality. The health of residents will also improve by providing them with a transportation facility that will get them out of their cars and get them moving year-round. Economic development opportunities will also be increased with the access improvements afforded by this facility. Project Cost and Benefits The Pinellas MPO is requesting $23,340,000 in TIGER grant funds for Completing the Loop. Together with this request, the total project cost is estimated at $33,655,880. Pinellas County has already programmed the local match funds of $10,315,880 in its Capital Improvement Program. Due to declining revenues for transportation improvements, without the receipt of this grant funding, the projects associated with Completing the Loop will not be completed in the near future. Table 1 shows the benefit-cost ratio of Completing the Loop. It is clear from this information that the benefits derived from this important trail facility far exceed the costs to construct and maintain it.


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Table 1

Benefit-Cost Results

Benefit-Cost Analysis Net Present

Value of Benefits

Costs Benefit-Cost Ratio

Benefits with 7% Discount Rate High Estimate $1,307,298,562 $36,292,839 36.02 Best Estimate $366,199,098 $36,292,839 10.09 Low Estimate $128,627,030 $36,292,839 3.54 Benefits with 3% Discount Rate High Estimate $1,834,625,460 $36,944,166 49.66 Best Estimate $513,913,354 $36,944,166 13.91 Low Estimate $180,511,500 $36,944,166 4.89

Table 2 addresses the anticipated employment impacts resulting from “Closing the Loop.” The referenced “Pedestrian and Bicycle Infrastructure: A National Study of Employment Impacts” report was prepared by the University of Massachusetts, Political Economy Research Institute (PERI), in June 2011. The study was undertaken to understand the employment impacts of bicycle and pedestrian infrastructure. Direct jobs include those jobs created in the engineering and construction firms involved in the project, while indirect jobs are those created in the “supply chain” of the engineering and construction industries, such as cement manufacturing and trucking. Lastly, as workers in the direct and indirect industries spend their earnings, they create demand in industries such as food services and retail establishments which are referred to as induced effects, i.e., induced jobs. The referenced St. John’s River-to-Sea Loop Trail Status Update report was prepared by England-Thims & Miller, Inc., at the request of the Florida Department of Transportation (Districts Two and Five) and the East Coast Greenway Alliance. At the time of the report, the proposed five-county, 296 mile loop was 45 percent completed.

Table 2 National Average Employment Impacts by Project Type1

Project Type Direct Jobs per

$1 Million Expended

Indirect Jobs per $1 Million Expended

Induced Jobs per $1 Million Expended

Total Jobs per $1 Million

Expended Off-Street Multi-

Use Trail

5.09

2.21

2.27

9.57 Pinellas County:

Closing the Loop2

171

74

76

322

1 “Pedestrian and Bicycle Infrastructure: A National Study of Employment Impacts,” a study by the University of Massachusetts, Political Economy Research Institute (PERI), June 2011, referenced in the “St. John’s River-to-Sea Loop Trail Status Update,” England-Thims & Miller, Inc., Jacksonville, FL, September 2011. 2 Estimated expenditures totaling $33.65 million.


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Other Environmental Reviews and Approvals The Pinellas MPO is anticipating the receipt of a Categorical Exclusion from the National Environmental Policy Act (NEPA) for this project, as Completing the Loop will be constructed in existing right-of-way and is not anticipated to have any significant environmental impact. Completing the Loop will not induce significant impacts to planned growth or land use for the area, will not require relocation of significant numbers of people; will not have a significant impact on any natural, cultural, recreational, historic or other resource; will not involve significant air, noise, or water quality impacts; will not have significant negative impacts on travel patterns; and will not otherwise, individually or cumulatively, have any significant environmental impact. No state or federal legislative approvals are necessary for the projects associated with Completing the Loop to move forward. This project is included in the Pinellas MPO’s Long Range Transportation Plan and the Pinellas MPO is committed to amending the TIP to include this project upon receipt of grant award.

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