Arbus
September/October 1998

Bridge of Lions Drama Builds in Historic St. Augustine
By Julie Thordason McGuire

A critically important drama continues to evolve in the nation’s oldest city - with a diverse and emotional cast of characters that could rival a Shakespearean play. The compelling central theme is the fate of St. Augustine’s Bridge of Lions. One might say, “to replace or not to replace, that is the question.”

The starring players include the Department of Transportation; the Federal Highway Administration; the U.S. Coast Guard; the town’s historic preservationists (who obviously want to save and restore the bridge); a group of citizens who want to tear the bridge down and build a new one; and the Bridge of Lions itself.

The plot has been thickening since 1981, when the Department of Transportation (DOT) discovered a number of structural problems with the bridge during a routine inspection. When the DOT recommended building a new bridge, there was a chorus of protest from many St. Augustine residents. Yielding to pressure from the public, the DOT performed what were described as “effective repairs.”

But as time passed, some feared that those repairs might no longer be adequate, and in 1989, the City Commission asked that a new and detailed study of the bridge’s condition be done by the DOT. That study’s conclusion presented two basic alternatives: rehabilitation of the existing bridge, or replacement of the existing bridge with a new-two lane bridge with a draw span.

DOT is Directing the Show
The decision on which alternative to pursue will be made by the DOT, which has recently completed the first step in the process, a Draft Environmental Impact Study (EIS) that took two years to prepare. “The Draft EIS is a compilation of environmental studies and analyses pertaining to alternatives for the bridge,” explains DOT Project Engineer Bill Henderson. “It does not contain a recommendation at this point.”" Each course of action has zealous supporters, and the topic continues to be hotly debated in public forums, at dinner parties, in barber shops - wherever people gather in the Oldest City. To say that passions run high on this issue is a serious understatement.

“Dixie’s Most Handsome Span”
Built in 1927, the bridge is a pre-eminent example of the Mediterranean Revival architecture that is associated with the famous Florida land boom of the 1920s. The town’s Spanish heritage is reflected in the bridge’s graceful arches and tile-roofed towers, harmonizing perfectly with the nearby towers of the Castillo de San Marcos, the Catholic Cathedral, the building that once was Henry Flagler’s Hotel Ponce de Leon, and the town's only “skyscraper,” the six-story structure that is now First Union Bank.

The original bridge joining the town of St. Augustine with Anastasia Island was flat, wooden and unattractive. When it needed replacing, visionary community leaders decided to build a “million dollar bridge” of concrete and steel that would complement the city's ambiance while opening Anastasia Island for development. The public overwhelmingly approved a bond issue to finance the project, which was described as “Dixie’s Most Handsome Span.”

When the new bridge was completed, Dr. Andrew Anderson, a wealthy resident and friend of Henry Flagler, donated two majestic lion statues to stand guard at the Western end. Modeled in Carrara marble by Italian sculptor F. Romanelli, the lions and the bridge that they protect have become internationally known symbols of St. Augustine.

An Aging Leading Lady With Problems
Today, some might compare the Bridge of Lions to an aging leading lady in dire need of a facelift. Others contend that the star should retire gracefully and be replaced by an ingenue with more sparkle. Indeed, the elements and increased auto traffic have taken their toll on the structure, and irritating traffic jams are becoming more common in St. Augustine. In addition, the bridge’s 76-foot span does not meet the Coast Guard’s minimum requirement of 125 feet (adopted in 1996) for newly constructed bridges, making barge clearance difficult in certain currents. The issue of safety is a frequent topic of discussion.

Those who favor building a new bridge argue that traffic problems would be alleviated, barge accidents reduced, and potential danger lessened.

Besides, they say, the Bridge of Lions isn’t that old, and a new one could be built to look just like it.

The Mayor Responds
St. Augustine Mayor Len Weeks begs to differ. “Based on discussions I’ve had with the DOT for the last seven or eight years,” says Weeks, “I’m 100% convinced that a restored bridge would meet today’s safety standards for pedestrian and vehicular traffic, and the DOT concurs.”

“And regarding the traffic issue: there is a common misconception that the new bridge would be four lanes,” he adds, “but the DOT has ruled that out. It would be a two-lane bridge with a draw span required to open on demand - for every boat too high to pass underneath - not on a schedule, like we have today. Think how that would impact traffic and the motorist’s ability to time a trip over the bridge.”

Weeks also points out that construction is currently underway on the Mickler-O’Connell Bridge (known locally as the 312 Bridge), another span joining Anastasia Island with the mainland. Located about four miles south of the Bridge of Lions, the 312 Bridge will be widened from a two-lane to a four-lane bridge in 1999. That bridge should appeal to motorists who want a quicker trip across the Intracostal and will also be a principal hurricane evacuation route.

To those who contend that the Bridge of Lions could be closely replicated in a new structure, the Mayor responds, “That just won’t happen. There are two separate sets of design and construction guidelines that will be in effect, depending upon whether the bridge is restored or replaced. If the bridge is considered a historic restoration project, federal guidelines mandate that it be returned as closely as possible to the way it originally looked in 1927, with wrought iron style railings, lamp posts, light fixtures, etc. - more authentic and more beautiful than it is today.”

“But if the DOT decides to build a new bridge, a whole new set of guidelines will be used, using modern technology and engineering and based on cost efficiency. The scale and dimensions - the entire look of the bridge - will change.”

A Relative Newcomer - But a Treasured Symbol
While some may call the Bridge of Lions a newcomer when compared to the city’s other historic sites that date back to the 16th Century, it is an integral part of the architecture and skyline of the Oldest City. And it is a significant part of Florida history. Because of its relevance to the land boom of the 1920s and its importance to the historic city plan of St. Augustine, the bridge was named to the National Register of Historic Places in 1982. More recently, the National Trust for Historic Preservation put the bridge on its 1997 List of 11 Most-Endangered Historic Places.

Enter the U.S. Coast Guard
Impacting heavily on the DOT’s bridge decision will be input from the U.S. Coast Guard, which has the responsibility to maintain the Intracostal Waterway. Coast Guard officials are worried that the Bridge of Lions has only 76 feet of horizontal clearance, significantly less than the 125 feet required in newly constructed bridges. They point out that more barges have hit the fenders of the Bridge of Lions than any other on the Intracostal. Since 1982, the fenders have been struck 30 times.

“But there are ways to avoid these accidents,” contends Janis Williams, Save Our Bridge Committee member. “In the past, most fender bumping has occurred because barge captains were attempting to pass under the bridge during periods of heavy currents, rather than waiting for the recommended ‘slack tide’ - the calm water when the tides are changing.”

Williams point out that since 1996, when the Coast Guard installed “lay-up dolphins,” large wooden pilings on either side of the bridge, there have been no accidents. These structures allow barges to tie up and wait for slack tide. The Coast Guard currently “recommends” but does not require that barges use lay-up dolphins in the interest of safety.

John Winslow, Chief of Bridge Section of the 7th Coast Guard District, explains why: “The Intracostal is a commercial waterway. If commercial traffic has to wait at the mooring dolphins, companies will be losing a lot of revenue,” he says.

A Tugboat Captain's Perspective
Tugboat captain Vince Roberts agrees with Janis Williams. Roberts, whose official title is “Professional U.S. Coast Guard Licensed Master and First Class Pilot of Vessels of Any Tonnage,” is a 30-year veteran on the waterways, and he would like to see the Bridge of Lions restored, not replaced.

“There are two main reasons for the barge accidents of the past,” says Roberts. “Inexperienced operators - and pressure from companies to meet delivery deadlines, which caused the operators to ignore currents. The DOT could establish regulations requiring that all barge tansits be made at slack tide and never when winds exceed 25 knots. Many Northeastern states already have this requirement in place,” he adds.

Although the DOT will make the final decision on the bridge’s fate, so strong is the Coast Guard’s concern about navigational safety that they have threatened to invoke the Truman-Hobbs Act of 1940. This previously obscure piece of federal legislation give the Coast Guard the power to “order the alteration” of a bridge that is deemed to obstruct navigation. Some question whether “alteration” could mean ordering the replacement of the Bridge of Lions.

What Lies Ahead? The Denouement of the Drama
When will this ongoing conflict be resolved? While divided in their hopes for the final outcome of the plot, the St. Augustine audience is more than ready for the denouement of this drama, which has been playing for much too extended a run. According to the DOT’s Bill Henderson, the decision should come early next year. The Draft Environmental Impact Study, after approval by the Federal Highway Administration, will be circulated to various agencies, elected officials, and appropriate interest groups. After a public hearing in St. Augustine, a Final EIS (with a recommendation) will be drafted and circulated again. The final step is the Record of Decision - the DOT's official pronouncement of the bridge's fate.

“If things go on schedule,” says Henderson, “the decision should be announced the first quarter of 1999. Either construction or rehabilitation is due to begin in 2001.”

The Bridge of Lions as Art
In the meantime, those determined to restore the Bridge of Lions are actively soliciting support through petitions, bumper stickers, publicity and, most recently, an art exhibition. In August, the Save Our Bridge Committee teamed up with the St. Augustine Art Association to sponsor a special exhibit entitled “The Bridge of Lions; Spanning the Generations.”

“The show featured art that showcased the Bridge of Lions,” says Theresa Segal, Co-Chair of the event. “It was a celebration of the beauty and historical enrichment that the bridge brings to our community.” Juried by world-renowned photographer Anna Tomczak, the show included artist’s creative portrayals of the bridge, children’s representations of the bridge, and works from private collectors. “The show was a great success,” says Segal. “I think it helped increase awareness of the treasure that is the Bridge of Lions and the grave danger that it faces.”