01-001157
Tremron Jacksonville, L.L.C. vs.
Department Of Transportation And Csx Transportation, Inc.
Status: Closed
Recommended Order on Monday, February 11, 2002.
Recommended Order on Monday, February 11, 2002.
1STATE OF FLORIDA
4DIVISION OF ADMINISTRATIVE HEARINGS
8TREMRON JACKSONVILLE, L.L.C.; )
12CITY OF JACKSONVILLE; and )
17CENTURION AUTO TRANSPORT, )
21)
22Petitioners, )
24)
25vs. ) Case Nos. 01 - 1157
32) 01 - 1158
36DEPARTMENT OF TRANSPORTATION ) 01 - 1159
43and CSX TRANSPORTATION, INC., )
48)
49Respondents. )
51)
52RECOMMENDED ORDER
54A formal hearing was conducted in this case on
63August 13 through 16, 2001, in Jacksonville, Florida, before the
73Division of A dministrative Hearings, by its Administrative Law
82Judge, Suzanne F. Hood.
86APPEARANCES
87For Petitioner William Graessle, Esquire
92Tremron Winegeart & Graessle, P.A.
97Jacksonville, L.L.C.: 219 North Newman Street
103Fourth Floor
105Jacksonville, Florida 32202 - 3222
110For Petitioner Ernst D. Mueller, Esquire
116City of Office of the General Counsel
123Jacksonville: 117 West Duval Street, Suite 480
130Jacksonville, Florida 32202
133For Petitioner Harold A. Shafer, pro se
140Centurion Auto Centurion Auto Transport
145Transport: 5912 New Kings Road
150Jacksonville, Fl orida 32209
154For Respondent Bruce Conroy, Esquire
159Department Scott A. Matthews, Esquire
164of Transportation: Office of the General Counsel
171605 Suwannee Street, Mail Station 58
177Tallahassee, Florida 32399 - 0450
182For Respondent Eric L. Leach, Esquire
188CSX Transportation Milton, Leach, D'Andrea &
194Inc.: Ritter, P.A.
197815 Main Street, Suite 200
202Jacksonville, Florida 32207
205STATEMENT OF THE ISSUE
209The issue is whether Respondent CSX Transportation, Inc.'s
217railroad crossing located on Old Kings Road in Jacksonville,
226Florida, meets the criteria for closure as set forth in
236Rule 14 - 46.003(2)(b), Florida Administrative Code.
243PRELIMINARY STATEMENT
245On April 9, 1997, Respondent CSX Transportation, Inc.
253("CSXT") filed an application with Respondent Florida Department
263of Transportation ("FDOT") to close an at - grade railroad
275crossing lo cated in Jacksonville, Florida. On January 31, 2001,
285FDOT issued a Notice of Intent to Issue a Permit to close the
298subject crossing. On March 9, 2001, Petitioner City of
307Jacksonville ("COJ") filed a petition challenging the proposed
317granting of the permi t. COJs petition was designated Case
327No. 01 - 1158. On March 12, 2001, Petitioner Tremron of
338Jacksonville, Inc. ("Tremron") filed a petition challenging the
348proposed granting of the permitemrons petition was
355designated Case No. 01 - 1157. On March 12, 2001, Petitioner
366Centurion Auto Transport, Inc. ("Centurion") filed a petition
376challenging the proposed granting of the permit. Centurions
384petition was designated Case No. 01 - 1159. The petitions were
395filed with the Division of Administrative Hearing s on or about
406March 23, 2001.
409The undersigned entered an Order consolidating the above
417referenced cases on April 5, 2001. A Notice of Hearing dated
428April 9, 2001, scheduled a formal hearing on May 31, 2001. A
440subsequent Order dated April 30, 2001, resch eduled the case for
451formal hearing on July 10 through 13, 2001.
459The parties jointly moved for a continuance of the formal
469hearing on June 21, 2001. An order dated June 25, 2001, granted
481a continuance and rescheduled the case for hearing on
490August 1 3 through 16, 2001. The parties filed a Pre - Hearing
503Stipulation on August 7, 2001.
508During the hearing, COJ presented the testimony of Harold
517Shafer; Thomas Miller; Faye Barham; Rebecca Jenkins; Lloyd
525Washington; Leonard Propper; Jimmy Holderfield; Rich ard Ball;
533Winfred Hazen, Jr.; Toufic Khayat; Reginald Fullwood; Talmadge
541Ford; and Kevin Carter. COJ presented Exhibits City 1 -
551City 12, City 13A - City 13D, City 15 - City 17, City 21 -
566City 25, which were admitted into evidence.
573Tremron presen ted the testimony of Hugh Caronemron
581offered three exhibits, which were accepted into evidence.
589Centurion did not present any witnesses. Centurion offered
597one exhibit, which was accepted into evidence.
604During the hearing, CSXT presented the test imony of David
614Teeter; Darryl Murray; Othie Fuller, Jr.; Terry Bright; Robert
623Grear; Lorin Mock; Dennis Lynch; and G. Rex Nichelson.
632Respondent CSXT presented the testimony of Geoff Pappas in a
642post - hearing deposition. CSXT offered 33 exhibits, which wer e
653accepted into evidence.
656FDOT presented the testimony of Scott Allbritton. FDOT
664offered seven exhibits for admission into evidence, all of which
674were admitted into evidence except for one composite exhibit,
683FDOT 3, and several isolated documents contai ned in two other
694composite exhibits, FDOT 1 and FDOT 2 described in the hearing
705Transcript, which the undersigned reserved ruling on and which
714are hereby excluded.
717The Transcript of the proceeding, including the post -
726hearing deposition of Geoff Pappas, was filed on September 11,
7362001. CSXT, FDOT, and Tremron filed their Proposed Recommended
745Orders on November 30, 2001. COJ filed its Proposed Recommended
755Order on December 3, 2001. All of these Proposed Recommended
765Orders have been considered in the pre paration of this
775Recommended Order. Centurian did not file proposed findings of
784fact and conclusions of law.
789FINDINGS OF FACT
792A. History and Current Status of Crossing
7991. Old Kings Road has been in existence at least since
8101837. The road was locate d in its approximate location in COJ's
822city limits prior to the arrival of the railroad. COJ owns and
834maintains Old Kings Road.
8382. The subject of this proceeding is a public at - grade
850railroad crossing ("the Crossing"), designated by FDOT as
860Crossing No . 621191C. The Crossing is located in the
870northwestern part of COJ in Duval County, Florida. The Crossing
880intersects with Old Kings Road, which has always been an
890important means of ingress and egress to downtown COJ for
900residents located west of the Cro ssing. A neighborhood
909association, the Grand Park Civic Club, requested that COJ build
919an overpass over the Crossing due to train blockages in the
9301930's.
9313. The Crossing originally consisted of five tracks.
939Later it was increased to seven tracks.
9464 . In 1995, CSXT requested COJ to consider closing the
957Crossing. COJ refused this request.
9625. In April 1997, CSXT filed an application with FDOT to
973close the Crossing. Neither CSXT nor FDOT gave COJ immediate
983notice that FDOT was considering the appli cation. However, as
993early as January 15, 1998, CSXT was aware that COJ opposed the
1005closing.
10066. In July 1998, CSXT closed the Crossing for repairs with
1017COJ's acquiescence. COJ understood originally that the repairs
1025would last from two to four weeks. S ome months later, COJ
1037learned that the Crossing might not reopen until December 1998.
10477. COJ learned about CSXT's application to close the
1056Crossing sometime during the fall of 1998. At that time, FDOT
1067verbally conveyed the information about the pending a pplication
1076for closure of the Crossing to COJ.
10838. In October 1998, COJ wrote a letter requesting FDOT's
1093assistance in opening the Crossing because FDOT had not issued a
1104permit to close it. Then in February 1999, CSXT advised FDOT by
1116letter that CSXT an d COJ were engaged in negotiations regarding
1127closure of the Crossing. In August 1999, FDOT suspended
1136consideration of the application pending the on - going
1145negotiations between COJ and CSXT.
11509. In a February 2000 letter, COJ again requested FDOT to
1161reop en the Crossing until such time as formal hearings were held
1173and/or the parties could enter into a stipulation. FDOT's
1182consideration of the application remained suspended at that
1190time.
119110. In October 2000, CSXT requested that FDOT reopen the
1201file on its application. By letter November 1, 2000, FDOT
1211advised CSXT that the file would be reopened.
121911. On January 31, 2001, FDOT issued a Notice of Intent to
1231Issue a Permit to close the Crossing. The Crossing remained
1241closed at the time of the formal hearing .
1250B. The Crossing
125312. CSXT conducts freight rail operations on railroad
1261tracks that run in a northwest - southeast direction across Old
1272Kings Road in Jacksonville, Florida. The Crossing is located
1281within the yard limits of CSXTs Moncrief Yard, a large
1291classification yard for CSXT trains.
129613. CSXT removed the two westernmost tracks and the
1305roadbed at the Crossing after closing it in July 1998.
1315Currently, the Crossing has a total of five parallel railroad
1325tracks that cross the road at a skewed angle of approximately 20
1337degrees.
133814. The distance across the existing tracks is 276 feet.
1348On both sides of the Crossing, Old Kings Road is a two - lane
1362highway with no sidewalks. The Crossing has more railroad
1371tracks than any other railroad crossing in Jackson ville,
1380Florida.
138115. The Crossing has automatic crossing gates and flashing
1390signal lights. CSXT disconnected these traffic control devices
1398when CSXT closed the Crossing in July 1998. FDOT has no plans
1410to upgrade the traffic control devices regardless of whether the
1420Crossing is reopened or remains closed.
142616. The Crossing is located in an urban area. The next
1437crossing point over the CSXT rail lines is located at the
1448Edgewood Avenue Bridge, 1.35 miles to the north as measured
1458along the rails. Going sou th, again measuring along the rails,
1469the next CSXT crossing is 1.7 miles away at McQuade Street. The
1481McQuade Street crossing is located at the southern end of
1491Moncrief Yard.
149317. The easternmost track at the Crossing is the CSXT
1503mainline track. The mainli ne track is the primary track for
1514Amtrak passenger trains and CSXT freight trains that do not
1524require switching or maintenance in the Moncrief Yard. The
1533speed limit for trains using the mainline track is 40 miles per
1545hour. The remaining four tracks at th e Crossing are yard
1556tracks, which CSXT uses for the assembly of trains on the north
1568end of the Moncrief Yard, as well as inbound and outbound
1579freight train arrivals and departures. The four yard tracks
1588have a speed limit of 10 miles per hour.
1597C. Train Movements at Old Kings Road Crossing
160518. There are approximately 100 train movements, including
1613switching movements across the Crossing on a daily basis.
1622Switching movements in the Moncrief Yard involve the assembly
1631and disassembly of trains through the movement of freight cars
1641into designated yard tracks. Switching movements take place in
1650the Moncrief Yard 24 hours per day, seven days per week, except
1662for Christmas, Thanksgiving and select holidays.
166819. Switching movements are carried out primarily at the
1677north end of Moncrief Yard near the Crossing because the track
1688layout at that end is best suited for such operations. Other
1699parts of the yard do not lend themselves to efficient switching
1710operations.
171120. In order to be switched, a cut of railroad c ars must
1724be moved back and forth repeatedly, with pauses between
1733movements. Once switching is complete, federal law requires the
1742train's brakes to be checked. The train then must wait for the
1754track to be clear of other train traffic before departing.
1764Of ten a cut of railroad cars will pull close enough to the
1777Crossing to activate the warning lights and gates without
1786actually blocking the roadway. When that happens, a motorist
1795will see an open roadway and a stopped train that is the
1807apparent cause of the activation of the warning devices. This
1817circumstance creates a uniquely hazardous situation for
1824motorists and pedestrians.
182721. CSXT operates between 11 and 22 intermodal trains
1836daily through Moncrief Yard, which is an unusually extensive
1845operation. App roximately 40 locomotives per day are serviced in
1855the yard. Amtrak operates daily approximately nine scheduled
1863movements over the mainline track throughout the day and night.
187322. Due to its proximity to the Moncrief Yard, Old Kings
1884Road is regularly blo cked by trains engaged in switching
1894movements that travel back and forth across the Crossing, in
1904addition to other train traffic. There is no practical method
1914of operating the Moncrief Yard without blocking Old Kings Road
1924for extended periods of time. Th is is the only CSXT railroad
1936crossing in the State of Florida that is regularly blocked by
1947switching movements for extended periods of time.
195423. On November 29 and 30, 2000, CSXT studied the amount
1965of time that the Crossing was blocked by train movements . The
1977study demonstrated that train traffic blocked the Crossing for a
1987total of 12 hours and six minutes during a 24 - hour period of
2001time. Such blockage has consistently existed at the Crossing
2010for 30 years or more.
201524. On July 31 through August 2, 2001 , COJ studied the
2026amount of time that the Crossing was blocked by train movements.
2037The results of the COJ study were consistent with the CSXT study
2049of train blockages at the Crossing.
205525. The surveys performed by CSXT and COJ to determine the
2066time that trains blocked the Crossing measured only the amount
2076of time that one or more trains actually blocked Old Kings Road.
2088If the Crossing were open to traffic, Old Kings Road would be
2100blocked for even longer periods of time because the flashing
2110lights and gat es would activate before the trains arrived at the
2122Crossing.
2123D. Motor Vehicle Traffic at the Crossing
213026. From 1991 to 1997, the average daily traffic volume in
2141the vicinity of the Old Kings Road crossing was less than 2,000
2154vehicles per day. The moto r vehicle traffic volume at Old Kings
2166Road is considered a low traffic count by FDOT standards. The
2177traffic volume at the Crossing is far too low to justify
2188expending the funds and other resources necessary to construct
2197an overpass.
2199E. Safety Effects upon Rail and Vehicle Traffic
220727. Some of the facts necessary to determine safety
2216effects upon rail and vehicle traffic are discussed in
2225paragraph 20.
222728. Due to the height and length of slow - moving or stopped
2240trains involved in switching operations on some or all of the
2251four railroad tracks to the west of the CSXT main line,
2262motorists approaching the crossing from the west cannot see
2271fast - moving trains, including Amtrak passenger trains,
2279approaching the Crossing on the CSXT mainline. Likewise, the
22882 0 - degree skew of the intersection makes it difficult for
2300westbound motorists on the east side of the Crossing to look to
2312their left to determine whether a northbound train is
2321approaching.
232229. Motorists frustrated by the long wait times at the
2332Crossing re gularly drive around the crossing gates. They take
2342this risk often under the mistaken belief that stopped or slow
2353moving trains have activated the signal lights and gates. At
2363times vehicles fall off the roadway as drivers attempt to go
2374around trains part ially blocking the roadway. Drivers also
2383become distracted by the beveled and rough roadway surface
2392between the numerous tracts. These circumstances, together with
2400the regular and extended blockages, give motorists a high
2409probability of interacting with train traffic while
2416simultaneously almost inviting them to run the gates.
242430. COJs neighborhood witnesses testified that they
2431either personally drove around the lowered crossing gates at the
2441Crossing or observed other motorists driving around the gates in
2451order to avoid extended train delays. COJ witnesses, Rebecca
2460Jenkins and Talmadge Ford, have observed two to four vehicles
2470driving around the crossing gates at the same time.
247931. Motor vehicles have also been stranded on the railroad
2489tracks on severa l occasions when motorists drove around the
2499lowered gates and left the paved road area at the Crossing.
251032. The safety hazards present are unique to the Crossing
2520based upon the presence of a substantial number of train -
2531switching movements over the cros sing, multiple tracks with
2540trains of varying speeds, motorist frustration over train
2548delays, obstructions to visibility and a general misapprehension
2556by the motoring public of the nature of yard switching
2566movements. Unlike the Crossing, the majority of ra ilroad
2575crossings do not contain multiple railroad tracks within yard
2584limits with trains performing different operations at different
2592rates of speed.
259533. Due to the skewed angle of the Crossing, the presence
2606of five railroad tracks, and the location of the crossing gates,
2617the distance that a motor vehicle or pedestrian must travel to
2628traverse the Crossing is 397 feet. Even if the signal lights
2639were relocated closer to the railroad tracks, the distance
2648across Old Kings Road would be approximately 276 feet, t he
2659actual distance across the tracks. The substantial length and
2668the skewed angle of the Crossing reduce visibility for motorists
2678and increase the probability of a crossing accident.
268634. The use of commercial trucks over the Crossing on a
2697regular basis would substantially increase the danger of an
2706accident due to the distance that a truck must travel over the
2718Crossing under normal operating conditions. Because of their
2726length, large commercial trucks take longer to clear a crossing
2736than a car traveling at the same speed.
274435. There were at least 12 railroad - crossing accidents at
2755the Crossing from 1975 until 1998. Most of these accidents
2765occurred on account of violation of law by drivers or
2775pedestrians. One of these, a motor vehicle accident, resulted
2784in a fatality. Six of the eight accidents involving a motorist
2795resulted in no personal injury. Even so, the Crossing had the
2806highest number of grade - crossing accidents in Jacksonville,
2815Florida, from 1975 until 1998.
282036. In January 2001, COJ commissioned a Jacksonville
2828engineering firm, Waitz and Moye, to perform a study of 10
2839railroad crossings in the northwest quadrant of Jacksonville,
2847Florida. This study included the Crossing, which had the
2856highest number of accidents of the 10 railroad crossings. There
2866were twice as many accidents at the Crossing than the crossing
2877with the second highest number of accidents, despite the fact
2887that the Crossing had one of the lowest traffic volumes.
289737. In addition to accidents, there have been numerous
2906near - miss incide nts at the Crossing, where motorists driving
2917around the crossing gates narrowly avoided injuries. Due to
2926obstructions to visibility, an Amtrak train traveling 40 miles
2935per hour on the CSXT main line does not have sufficient time to
2948avoid a collision at th e Crossing.
295538. Mr. Darryl Murray, the Service Manager for Amtrak,
2964testified that he regularly operated trains over the Crossing
2973from 1974 until 1986 with the Seaboard Coastline Railroad, and
2983from 1986 until 1991 with Amtrak. Since 1991, Mr. Murray has
2994directly supervised Amtrak train crews that operate over the
3003Crossing.
300439. Mr. Murray testified there are other crossings that
3013are just as busy as the Crossing. He admitted that the Crossing
3025would be safer in the future because the two western - most trac ks
3039have been removed. However, according to Mr. Murray, the
3048Crossing is one of the most dangerous railroad crossings that he
3059has encountered during his railroad career. According to
3067Mr. Murray, a crossing accident involving an Amtrak passenger
3076train traveling 40 miles per hour at Old Kings Road could result
3088in serious personal injury or death to the motor vehicle
3098occupants and train crew; derailment of the train; and injuries
3108to Amtrak passengers due to the emergency braking application of
3118the train. In the early to mid 1990's, Mr. Murray personally
3129investigated an accident involving an Amtrak train and a
3138passenger vehicle at the Crossing, which resulted in serious
3147personal injuries to the motorist.
315240. Mr. Kevin Carter, a manager for Resource Logis tics
3162International ("RLI"), testified that if the Crossing were
3172re - opened, RLI trucks carrying 80,000 pounds of aluminum would
3184use it during transport. Mr. Carter has seen one or two of his
3197truck drivers go around the gates at the Crossing and was awar e
3210of other trucks going around the lowered gates. Mr. Carter has
3221disciplined at least one of his drivers for driving around
3231railroad crossing gates in the down position.
323841. CSXT also presented the testimony of experienced
3246railroad employees who have wo rked in the Moncrief Yard at the
3258Crossing on a daily basis for many years. CSXT employees
3268testified that, due to its location in the middle of an active
3280switching yard, the Crossing is the most dangerous railroad
3289crossing in Jacksonville, Florida.
329342. I n addition to motor vehicle accidents at the
3303Crossing, the evidence established a serious safety hazard
3311involving pedestrians. Prior to its closing in 1998,
3319pedestrians regularly climbed between freight cars stopped at
3327the Crossing in order to avoid exten ded train blockages.
3337Additionally, pedestrians regularly placed their bicycles over
3344or under the coupling mechanism that connects railroad cars
3353while attempting to climb between railroad cars.
336043. Several of the accidents at the Crossing involved
3369seriou s injuries to pedestrians who were trapped between freight
3379cars when the train suddenly moved. The number of pedestrians
3389at the Crossing has decreased since its closure. There have
3399been no accidents at the Old Kings Road crossing since its
3410closure in 199 8.
341444. If the Crossing were closed, protective measures could
3423be taken to more effectively discourage trespasser access,
3431including cul - de - sacs, road barriers, fencing and signage. COJ
3443has determined there is sufficient land to build cul - de - sacs at
3457the C rossing. On the other hand, it is impossible to completely
3469block pedestrians from using the Crossing if they are intent on
3480doing so.
348245. In an effort to assess safety hazards at the Crossing,
3493COJ presented evidence about the FDOT Safety Index. FDOT use s
3504the safety index to determine the prioritization of upgrades for
3514crossings that do not have automatic gates and signal lights.
3524FDOT does not utilize the safety index for its closure analysis.
3535The FDOT safety index for prioritizing crossing - warning devi ce
3546upgrades does not determine the dangerousness of a railroad
3555crossing.
355646. The federal government requires FDOT to create the
3565safety index annually. From among the top 800 crossings, FDOT
3575determines which crossings receive funding for improvement of
3583w arning devices. The maximum protection that FDOT currently
3592permits is flashing lights and automatic gates. Crossings that
3601rank in the top 800 on the safety index and that already have
3614lights and gates do not receive funding because no further
3624improvement is available. In effect, the safety index report
3633serves only to identify problematic crossings. With annual
3641funding of only approximately $5 million, FDOT improves about 30
3651crossings per year.
365447. Although the Crossing had automatic gates and flashing
3663s ignal lights before they were disconnected in July 1998, the
3674current FDOT Safety Index indicates that the Crossing has a
3684safety index rank of 561 out of 4500 railroad crossings in the
3696state. This does not mean that FDOT considers 560 other
3706crossings to ha ve greater priority for upgrades than the
3716Crossing. Because the safety index report continues to assign a
3726high rank to the Crossing, which already has lights and gates,
3737the only way FDOT can make the Crossing safer is to close it.
375048. Even so, using the FDOT safety index ranking and
3760correct factual assumptions, the safety index number for the
3769Crossing is approximately 50, which is less than the marginal
3779safety level index number of 60 set by FDOT. FDOT guidelines
3790indicate that a crossing should be consi dered for improvements
3800at a safety level index of 60.
380749. FDOT uses a separate program to consider overpass
3816construction for crossings. As stated above, the low traffic
3825count and the availability of the Edgewood Avenue overpass less
3835than two miles away means that the Crossing does not warrant the
3847expenditures required for construction of an overpass.
385450. The automatic gates at the Crossing are part of a
3865two - quadrant gate system. Petitioners have proposed that
3874four - quadrant gates and a median be cons tructed in order to
3887deter motorists from going around the gates. The appeal of a
3898four - quadrant gate system is that it blocks both lanes of travel
3911on both sides of a crossing. A four - quadrant system discourages
3923more people from running the gates than does a two - quadrant gate
3936system. However, people at times run four - quadrant gates and
3947would be likely to do so at the Crossing.
395651. An activated four - quadrant gate system could block a
3967vehicle attempting to get out of the Crossing. FDOT uses
3977two - quadran t gate systems because they leave the exit from a
3990crossing unobstructed. An exit for vehicles at the Crossing is
4000especially important because of the unusual width and the
4009constant activation of the gates by switching trains. A
4018four - quadrant gate syste m would neither redress the extremely
4029dangerous conditions at the crossing nor change the incentives
4038for people to run the gates.
404452. FDOT does not currently permit four - quadrant gates at
4055crossings like the one at issue here. Additionally, the Federal
4065H ighway Administration has not authorized installation of four -
4075quadrant gates as a standard recommended practice. Other states
4084do use four - quadrant gates on an experimental basis. Finally,
4095installing a four - quadrant gate system at the crossing would
4106cost between $500,000 and $1,500,000.
4114F. Necessity, Convenience and Utilization of Remaining
4121Routes Where Practical
412453. In the area of the Crossing, Old Kings Road connects
4135New Kings Road and Edgewood Avenue. The intersection of Old
4145Kings Road and New King s Road is located at a distance of
4158approximately 100 yards to the east of the Crossing.
416754. New Kings Road is a four - lane highway that curves at
4180its intersection with Old Kings Road, going east through the
4190neighborhood of Grand Park and becoming Kings Ro ad and US 23.
4202Kings Road is a thoroughfare to downtown COJ in this direction.
421355. In the other direction, New Kings Road runs north,
4223paralleling the CSXT mainline track, which is to the west for
4234some distance. In this area, New Kings Road forms the we stern
4246end of the Grand Park neighborhood. As New Kings Road runs
4257north, it becomes U.S. 1/23 about one - half mile from the Old
4270Kings Road intersection. New Kings Road is also a heavily
4280traveled four - lane highway.
428556. On the west side of the Crossing, 20 th Street West and
4298St. Clair Street, both of which are two - lane streets, dead end
4311into Old Kings Road, with 20th Street West running west and
4322St. Clair Street running south. Further to the west, Old Kings
4333Road intersects with Edgewood Avenue, a four - lan e state highway
4345running north and south. The neighborhood directly to the west
4355and south of Old Kings Road is known as the Paxon community.
436757. Running north from the intersection with Old Kings
4376Road, Edgewood Avenue intersects New Kings Road (US 1/23). Just
4386before this intersection, Edgewood Avenue separates from grade
4394and becomes a viaduct (overpass) that crosses the CSXT mainline
4404tracksaveling this route and then turning south on New
4413Kings Road, a vehicle would reach the intersection of New King s
4425Road and Old Kings Road. If one is located on the west side of
4439the Crossing, and the Crossing is closed, this route is the
4450shortest distance to the east side of the Crossing.
445958. The distance going around the Crossing from west to
4469east (clockwise), star ting at the intersection of Old Kings Road
4480and St. Clair Street and finishing at the intersection of Old
4491Kings Road and New Kings Road is approximately 3.26 miles.
4501Going in the opposite direction (counterclockwise) the distance
4509is approximately 3.28 miles . These distances were calculated as
4519averages after making six vehicle travel runs in a clockwise
4529direction (west to east) and five vehicle travel runs in a
4540counterclockwise direction (east to west) respectively.
454659. Traveling around the Crossing in a s outhern direction,
4556either from west to east or east to west would require going all
4569the way to the McQuade Street crossing, or to the Beaver Street
4581viaduct, just south of McQuade Street. The southern route
4590involves distances substantially in excess of tho se along the
4600Edgewood Avenue - New Kings Road route to the north.
461060. All of the major interstates in Jacksonville can be
4620conveniently reached via New Kings Road or Edgewood Avenue.
462961. Motorists traveling west on Old Kings Road over the
4639Crossing would hav e to cross several other railroad crossings in
4650order to reach Edgewood Avenue. In addition to the significant
4660train blockages at the Crossing, significant train blockages
4668exist at Norfolk Southerns Old Kings Road crossing due to the
4679proximity of the cros sing to Norfolk Southerns Simpson Yard.
468962. A little over one - half mile to the west of the
4702Crossing, and to the north and south thereof, the Norfolk
4712Southern mainline tracks run parallel to the CSXT tracks and
4722also cross Old Kings Road. The Norfolk South ern tracks cross
4733St. Clair Street, 20th Street West and Old Kings Road, going
4744south to north. Immediately north of Old Kings Road those
4754tracks comprise the southern end of Norfolk Southern's Simpson
4763Yard, a switching yard like Moncrief Yard.
477063. Norfolk S outhern trains at times block St. Clair
4780Street, 20th Street West, and Old Kings Road all at the same
4792time. When this occurs, with the Crossing closed, the area
4802inside the triangle formed by Old Kings Road, the Norfolk
4812Southern tracks, and St. Clair Street becomes landlocked, making
4821ingress and egress to the area impossible.
482864. Norfolk Southern trains block the Norfolk Southern
4836crossing across Old Kings Road approximately six out of 24 hours
4847a day. CSXT trains block the Crossing on an average of at leas t
4861nine or more hours a day and as much as 12 hours a dayains
4875block Old Kings Road, 20th Street West, and St. Clair Street all
4887three simultaneously approximately nine times a day, for periods
4896ranging between 1.29 minutes and 15 minutes, with an average
4906blockage time of 6.5 minutes. On the high side, the triangle
4917area might be completely blocked for as much as 2.25 hours per
4929day total.
493165. On some occasions since the Crossing was closed,
4940people within the triangle may have been unable to enter or
4951leav e the triangle for as much as 30 minutes or more at a time.
4966This might have been the case one or more times a day. It is
4980also true that the total blockage would be somewhat decreased
4990with the Crossing open because it would provide an additional
5000entrance or exit. However, even with the Crossing open, trains
5010will still block the triangle area for approximately 40 percent
5020of the time out of a 24 - hour day.
503066. Motorists using the alternate route over New Kings
5039Road and Edgewood Avenue would encounter one r ailroad crossing
5049on New Kings Roadains block the New Kings Road crossing for
5060up to 30 minutes at a time, less than one hour of total blockage
5074during an average 12 - hour period from 7:00 a.m. to 7:00 p.m.
508767. Approximately 2000 to 3000 people live in the Grand
5097Park community on the east side of the Crossing. The same
5108number of people live in the Paxon community on the west side of
5121the Crossing. These residents oppose the closing of the
5130Crossing for many reasons, including the following: (a) People
5139from Grand Park on the east side of the Crossing participate in
5151community activities such as Little League Baseball at the Joe
5161Hammond Center near the west side of the Crossing; (b) Children
5172in Grand Park go to school at Paxon Middle School and Paxon High
5185School; and (c) Grocery stores, stores such as Home Depot, and
5196other shopping facilities are located on the west side of the
5207Crossing.
520868. If the Crossing remains closed, these people will
5217suffer some inconvenience in having to travel the alternate
5226route over New Kings Road and Edgewood Avenue. However, the
5236Edgewood Avenue overpass on the alternate route provides the
5245Paxon and Grand Park residents access to either side of the
5256Crossing without crossing any of railroad tracks along Old Kings
5266Road.
526769. If a motorist traveled a loop from the east side to
5279the west side of the Crossing using the alternate route over New
5291Kings Road and Edgewood Avenue, the total amount of travel time
5302would be between five and 10 minutes depending on the time of
5314day and the amo unt of traffic. In order to calculate the
5326additional burden on motorists using the alternate route, a
5335reduction would have to be taken for the amount of time that a
5348motorist would have to travel 6,746 feet from the Crossing to
5360Edgewood Avenue.
536270. FDOT grades levels of road service from "A" to "F",
5373with "A" being the highest level of service. Roads with an "A"
5385level of service have the ability to handle considerably more
5395vehicle traffic without causing delays in traffic movement. The
5404level of service f or New Kings Road and Edgewood Avenue is an
"5417A" level of service. Therefore, the alternate route is in good
5428condition and able to accommodate the additional traffic volume
5437that results from the closure of the Crossing.
544571. Due to the significant train b lockages at the CSXT and
5457Norfolk Southern Old Kings Road crossings, the alternate route
5466over New Kings Road and Edgewood Avenue is a more reliable route
5478for motorists. The alternate route over New Kings Road and
5488Edgewood Avenue takes significantly less tr avel time for
5497motorists than Old Kings Road if the CSXT or Norfolk Southern
5508crossings on Old Kings Road are blocked by train traffic.
551872. It is undisputed that a substantial volume of rail
5528traffic utilizes the CSXT tracts at Old Kings Road. However,
5538the trains in the Moncrief Yard are no longer than they were in
5551the 1960s. In fact, there are probably 500 less train cars in
5563the yard and traveling across the Crossing than there were back
5574then.
557573. CSXT's business operation will not changed or be
5584affecte d regardless of whether the Crossing is open or closed.
5595CSXT has no business necessity to have the Crossing closed,
5605apart from its dangerousness.
560974. It is true that the closing of the Crossing will
5620result in some inconvenience to three residential home s and two
5631businesses, Tremron and RLI, located within the triangle formed
5640by the Norfolk Southern mainline, Old Kings Road and St. Claire
5651Street. However, the triangle existed before these homes were
5660constructed and before the businesses were established. Anyone
5668locating a home or business in the triangle area between two
5679railroad yards and two railroad tracks knew or should have known
5690that train blockages were going to be a problem.
569975. Prior to the closing of the Crossing, the homeowners
5709in the triang le used St. Clair Street as their primary access
5721route. They used the Crossing mainly when the St. Clair Street
5732crossing was blocked.
573576. Tremron purchased its St. Clair Street business
5743premises in June 2000, after the Crossing had been closed for
5754almos t two years. Prior to the purchase of the business
5765premises, Tremron represented to the Jacksonville Economic
5772Development Commission that it had performed an initial
5780feasibility study and concluded that the current roadways and
5789public utilities were adequ ate to meet the demands for the new
5801facility.
580277. Tremron, which manufactures cement pavers, has 10 to
581140 trucks entering and leaving the company's premises in a day.
5822If the Crossing were open and not blocked by trains, the best
5834access to I - 95 for Tremr on's trucks would be through the
5847Crossing. Additionally, because the Crossing is closed,
5854Tremron's employees have problems with access to and from work
5864when the triangle is sealed.
586978. Tremron performed surveys of train traffic at the
5878Norfolk Southern S t. Clair Street and 20th Street West crossings
5889in October and November 2000, and the Crossing in July 2001.
5900The surveys measured the maximum amount of time the St. Clair
5911Street crossing was blocked by train traffic and not actual
5921vehicle delays at the cro ssing.
592779. A COJ study recorded actual vehicle delays using a
5937proper methodology at ten crossings in the area of Old Kings
5948Road. However, this study did not include a survey of vehicle
5959delays at the Norfolk Southern St. Clair Street crossing.
596880. CSXT studied train blockages at the Norfolk Southern
5977St. Clair Street crossing on June 13 and 14, 2001. The results
5989of the CSXT surveys provide persuasive evidence that no
5998significant train delays exist at St. Claire Street.
600681. After the date of the Tremro n train delay studies at
6018the St. Clair Street crossing, Tremrons President, Hugh Caron,
6027reached a cooperative arrangement with Norfolk Southern whereby
6035the railroad agreed to reduce train blockages at St. Clair
6045Street. Mr. Caron and local triangle reside nts, Thomas Miller,
6055Milton Holland and Rebecca Jenkins, testified that the
6063cooperative arrangement was working in a satisfactory manner at
6072the time of the final hearing.
607882. If the Crossing was open, Tremron and RLI trucks might
6089be able to look down Old Kings Road to see if a train was
6103blocking the Crossing before heading in that direction. But if
6113a train blocks the tracks as the trucks approach the Crossing,
6124they cannot turn around.
612883. In the event of a train blockage, RLI's trucks can use
6140an alterna te route through the Norfolk Southern Simpson Yard to
6151circumvent the blocked crossing on an emergency basis.
6159Additionally, Milton Holland, one of the three homeowners who
6168reside in the triangle area, also uses the alternate route
6178through the Norfolk South ern Simpson Yard to circumvent the
6188Crossing when it is blocked.
619384. RLI is a trucking business that transports building
6202material. It ships and receives material such as steel coils
6212and plywood to and from the Norfolk Southern boxcars. It also
6223transport s metal containers to and from the two major
6233Jacksonville seaports. RLI's facility on Old Kings Road serves
6242as a warehouse for these shipments.
624885. RLI's tractor - trailers make 16 to 20 round trips a day
6261from the warehouse to the seaports. Prior to July 1998, the
6272tractor - trailers regularly used the Crossing when it was not
6283blocked by train traffic. Even so, the RLI trucks and personnel
6294were trapped within the triangle every now and then. With the
6305closing of the Crossing, RLI's employees and trucks are trapped
6315within the triangle on a more regular basis.
632386. RLI has not missed any shipments since the closure of
6334the Crossing. Mr. Carter testified that, at this point in time,
6345it did not make a difference to him whether the Old Kings Road
6358Crossing remained closed.
636187. Centurions President, Harold Shafer, testified that
6368none of his four automobile transport businesses, including
6376Centurion, were impacted by the closure of the Crossing.
6385According to Mr. Shafer, he owns a business in the triangle area
6397known as Vehicle Transport, Inc., which builds racking systems
6406for transporting automobiles in containers.
641188. Vehicle Transport, Inc., was not operating and had no
6421employees at the time of the final hearing. Mr. Shafer is
6432planning to reopen Vehicle Transpor t, Inc., contingent upon the
6442business being a successful bidder on several contracts. In
6451that event, Vehicle Transport, Inc., would employ 25 to 30
6461employees at the St. Clair facility.
646789. If Vehicle Transport, Inc., were to reopen for
6476business on St. C laire Street with the Crossing closed, the
6487company would suffer a loss in labor efficiency. However, Mr.
6497Shafer's primary concern would be the occasional unavailability
6505of emergency fire and rescue service, not access for his
6515business resulting from the c losing of the Crossing.
652490. Petitioners' expert witness, Geoff Pappas, presented
6531evidence of an economic impacts study, concluding that the
6540businesses located within the triangle had suffered economic
6548losses due to the Crossing's closure. Rather than e xamining the
6559business records of these companies, Mr. Pappas based his
6568analysis on estimated projected losses due to the cost of
6578additional motor fuel consumed by commercial trucks accessing
6586the businesses via the alternate route and due to the cost of
6598pay ing employees for lost time spent waiting at one of the
6610Norfolk Southern crossings.
661391. Mr. Pappas opined that RLI's fuel expense has
6622increased by $3,000 per year since the closing of the Crossing.
6634He concluded that the company has experienced over $55, 200 per
6645year in lost labor because of the time the employees spend
6656waiting on trains to clear the tracks. According to Mr. Papas,
6667other trucking companies making deliveries to RLI's facility
6675have also incurred significant financial losses.
668192. As to Tre mron, Mr. Pappas testified that the company
6692loses approximately $42,000 per year in labor efficiency because
6702the employees spend so much time waiting for the tracks to clear
6714within the triangleemron pays outside truck drivers to
6722deliver its products b y the truckload; therefore, Mr. Pappas
6732asserted that firms delivering to Tremron have incurred
6740approximately $13,450 in additional fuel expenditures per year
6749because the Crossing is closed. Mr. Pappas calculated these
6758economic losses for Tremron beginning in 1998 even though
6767Tremron did not open its business facility until 2000.
677693. In support for his projected fuel consumption cost
6785analysis, Mr. Pappas assumed that each and every truck would
6795have accessed the triangle area via the Crossing if it had bee n
6808open. Mr. Pappas also assumed that each and every truck used
6819the alternate route because of the Crossing's closure.
682794. On cross - examination, Mr. Pappas had to concede the
6838following: (a) Any truck going to or coming from Interstate 10,
6849Interstate 295 , or going to northbound Interstate 95 would
6858access the triangle area using a crossing other than the one at
6870issue here; (b) An origin and destination study needs to be
6881conducted to accurately determine the percentage of commercial
6889traffic actually utilizi ng the alternate route; (c) If an origin
6900and destination study had been conducted, it would have shown
6910that the trucks would have used the Norfolk Southern crossing at
6921least some of the time; and (d) The analysis did not consider
6933the impact of regular bloc kages at the Crossing. Mr. Pappas
6944admitted that his analysis was "a last minute review" that could
6955have been "much more accurate."
696095. In support of his lost wages cost analysis, Mr. Papas
6971estimated that every employee of each business would make four
6981tri ps into or out of the triangle area every working day of the
6995year. He estimated that each and every trip would incur a
700615 - minute delay due to train blockages on the Norfolk Southern
7018line. Thus, Mr. Pappas concluded that each and every employee
7028was es timated to lose one hour every working day. By
7039multiplying the estimated number of employees of each business
7048by the estimated average hourly wage paid by that business, then
7059doubling that amount to account for "indirect wage losses,"
7068Mr. Pappas estimat ed the dollar amount of wages lost daily by
7080each business. By multiplying that product by the number of
7090working days in a year, Mr. Pappas estimated the annual loss to
7102each business.
710496. Mr. Pappas's lost wages cost analysis assumed that
7113each and every trip into or out of the triangle area would have
7126been made via the Crossing had it been open. He further assumed
7138that each business paid their employees for the time they spent
7149waiting at a rail crossing coming to or leaving work.
715997. On cross - examinati on, Mr. Pappas conceded the
7169following: (a) Employees would not be paid for time spent
7179waiting at a crossing after leaving work; (b) Employees might
7189not leave work for lunch; and (c) Such trips would have to be
7202deducted from the analysis.
720698. There is no doubt that RLI and Tremron have incurred
7217an adverse financial impact due to the closure of the Crossing.
7228However, for the reasons set forth above, Mr. Pappas's cost
7238analysis studies and his testimony in support thereof, cannot be
7248relied upon to accuratel y reflect that impact.
7256G. Pedestrian Convenience
725999. It is undisputed that the Crossing was not designed
7269for pedestrian or bicycle use. Nevertheless, persuasive
7276evidence indicates that pedestrians and bicyclists used the
7284Crossing before it was closed. They have continued to cross the
7295tracks since CSXT removed the crossing roadway in July 1998.
7305100. One survey indicates that as many as six pedestrians
7315used the Crossing during a 24 - hour period in 2001. Other
7327evidence indicates that at least 15 pedest rians used the
7337Crossing during an eight - hour period in 2001. These pedestrians
7348include a lot of Grand Park community residents who do not own
7360motor vehicles and therefore need to walk or rely on other means
7372of transportation.
7374101. It would take over an hour for a brisk walker to walk
7387the proposed alternate route around the Crossing, a distance of
73973.26 miles. The alternate route is also dangerous for
7406pedestrians because both Edgewood Avenue and New Kings Road
7415(U.S. 1/23) are four - lane highways with no s idewalks.
7426Additionally, the overpass on Edgewood Avenue has cement
7434barriers that block off and reduce the size of the sidewalks so
7446that they are impassible. Thus a pedestrian must walk right
7456next to the auto lanes on the viaduct.
7464102. Public bus servi ce provided by the Jacksonville
7473Transportation Authority (JTA) connects the neighborhoods on
7480both sides of the Crossing. Some time shortly before the final
7491hearing, a CSXT witness followed two buses that connect the
7501Paxon community and the Grand Park comm unity on the eastern side
7513of the Edgewood Avenue overpass. Additionally, CSXT and COJ
7522provided exhibits which clearly show that pedestrians on both
7531sides of the Crossing have reasonable access to bus
7540transportation over the alternate route, on weekdays an d
7549weekends, without having to walk an unreasonable distance.
7557103. The pedestrian safety hazards at the Crossing
7565substantially outweigh any limited pedestrian inconvenience that
7572would result from the closing of the Crossing.
7580H. Excessive Restriction to Emergency Type Vehicles
7587Resulting from Closing
7590104. The Jacksonville Fire and Rescue Department naturally
7598has some concerns that it will be unable to provide timely
7609emergency services in the triangle area when it is sealed. This
7620is more likely to hap pen with the Crossing closed.
7630105. Old Kings Road has always been an area of limited
7641access for fire and rescue crews due to the amount of train
7653blockages at the Crossing. The response time of fire and rescue
7664services could be reduced by one minute if the Crossing were
7675open and not blocked by a train. One minute can mean the
7687difference between life and death in an emergency situation.
7696106. Prior to its closing, emergency vehicles were
7704dispatched from the east side of the Crossing (from fire and
7715resc ue Station 7) to cover emergency calls on the west side of
7728the Crossing. Since the closure of the Crossing, the
7737Jacksonville Fire and Rescue Department has modified its
7745response procedures to handle fire and rescue calls for the west
7756side of the Crossing by placing a new fire and rescue station
7768(Station 17) located on Huron Street, west of and less than two
7780miles from the Crossing. Huron Street connects with St. Claire
7790Street south of the Norfolk Southern crossing.
7797107. Stations 7 and 17 cannot maximiz e their potential by
7808providing overlapping fire and rescue services because of the
7817closure of the Crossing. Instead, the two stations serve as
7827backup units for each other.
7832108. The change in fire and rescue response procedures was
7842required in part due to the closure of the Crossing. It also
7854was necessary to meet increasing demand for service on the west
7865side of the Crossing and to ensure emergency service when there
7876were simultaneous multiple calls.
7880109. RLI and Tremron also are concerned that emerg ency
7890services will not arrive timely if the Crossing is closed and
7901the triangle area is sealed. RLI has 16 to 18 employees. In
7913August 2001, a Norfolk Southern train was blocking 20th Street
7923West and St. Clair Street when one of RLI's employees required
7934e mergency medical services. Norfolk Southern had to break the
7944train so that rescue services could answer the emergency call.
7954The rescue response time on that occasion was 12 minutes.
7964emron has 12 employees. Sometime in 2001, Tremron
7972had to call for emergency medical help for an employee who was
7984experiencing an asthma panic attack. The emergency response
7992vehicle took 30 minutes to respond to Tremron's facility. The
8002record does not indicate whether a train sealed the triangle
8012area at that time.
8016111. Despite the above - referenced incidents, the average
8025response times for the three fire and rescue zones in the area
8037of the Crossing have significantly improved since its closure in
80471998. For example, fire and rescue Zone 5370 includes the
8057triangle area. The average response time for fire response in
8067Zone 5370 was 6.1 minutes in 1997 and 4.7 minutes in 1999 and
80802000. The average response time for emergency medical response
8089in Zone 5370 was 8.6 minutes in 1997, 5.7 minutes in 1999, and
81026.2 minutes i n 2000. The Jacksonville Fire and Rescue
8112Department considers six minutes to be the optimum response time
8122for emergency medical response.
8126112. Regardless of the closing of the Crossing, there may
8136be times when fire and rescue vehicles need to request t hat a
8149train be broken in order to access the triangle area. While
8160fire and rescue personnel prefer that the Crossing be open, any
8171restriction to fire and rescue vehicles as a result of the
8182closure of the Crossing has not been and will not be excessive.
8194113. The Jacksonville Sheriffs Office has good
8201overlapping vehicle coverage on both sides of the Crossing.
8210There was no evidence presented that police calls have been or
8221would be delayed as the result of the closing of the Crossing.
8233There is evidence t hat the police do not patrol along Old Kings
8246Road as often as they did before the Crossing was closed.
8257Nevertheless, any restrictions to police patrol vehicles as a
8266result of the closure of the Crossing have not been excessive.
8277I. Effect of Closing on Rail Operations And Expenses
8286114. Although CSXT has no business necessity to keep the
8296Crossing closed, crossing accidents impact the railroad's
8303operations. This occurs when train crews are relieved from duty
8313and lose time from work dealing with the em otional effects or
8325psychological trauma caused by witnessing serious accidents.
8332Additionally, CSXT has significant liability exposure for
8339crossing accidents at the Crossing, including physical and
8347emotional injury claims brought by motorists, passengers, train
8355crews and pedestrians based upon the proximity of the Crossing
8365to the Moncrief Yard. So far, CSXT has paid approximately
8375$500,000 for claims arising out of accidents at the Old Kings
8387Road crossing, exclusive of attorneys fees and costs. Amtrak
8396has paid approximately $100,000.
8401CONCLUSIONS OF LAW
8404115. The Division of Administrative Hearings has
8411jurisdiction over the parties and subject matter of this cause,
8421pursuant to Sections 120.569 and 120.57(1), Florida Statutes.
8429116. CSXT has the burden o f proving by a preponderance of
8441the evidence that the Crossing should be closed. Department of
8451Transportation v. J.W.C. Co. Inc. , 396 So. 2d 778 (Fla. 1st DCA
84631981).
8464117. FDOT substantially complied with its procedure in
8472issuing its Notice of Intent to I ssue Permit. CSXT filed the
8484application for closure in the Spring of 1997. COJ informally
8494learned about the pending application in the Fall of 1998. FDOT
8505issued the formal Notice of Intent to Issue Permit on
8515January 31, 2001. Any deficiency on the part of FDOT in
8526providing notice to COJ was harmless.
8532118. FDOT exercises regulatory authority over all public
8540railroad - highway crossings in the State of Florida pursuant to
8551Section 335.141, Florida Statutes. City of Plant City v.
8560Department of Transpo rtation , 399 So. 2d 1075 (Fla. 2d DCA
85711981).
8572119. To carry out its responsibility, FDOT has promulgated
8581Rules 14 - 46.003(1) and 14 - 46.003(2), Florida Administrative
8591Code, which provide as follows, in pertinent part:
8599(1) Purpose . To provide rules for th e
8608Florida Department of Transportation,
8612pursuant to Section 335.141, Florida
8617Statutes, for the establishment of uniform
8623standards in the issuance of final orders of
8631the department regarding permits for the
8637opening and closing of public railroad -
8644highway g rade crossings. The two basic
8651objectives of these uniform standards will
8657be to:
8659(a) Reduce the accident frequency and
8665severity of grade crossings, and
8670(b) Improve rail and motor vehicle
8676operating efficiency.
8678(2) Opening and Closing Public Grad e
8685Crossings . The Department of Transportation
8691may accept applications for the opening and
8698closing of public railroad crossings from
8704the governmental body that has jurisdiction
8710over the public street or highway; any
8717railroad operating trains through the
8722cr ossing; any other applicant for a public
8730grade crossing provided there is in
8736existence an agreement between the applicant
8742and governmental body to assume jurisdiction
8748as a public crossing; or the Department,
8755itself, on behalf of the State of Florida.
8763Open ing or closing of public grade crossings
8771shall take the form of a Final Order by the
8781Secretary of Transportation, either
8785subsequent to administrative hearings
8789conducted pursuant to Chapter 120, Florida
8795Statutes, or based upon a voluntary
8801Stipulation of Par ties executed by all
8808parties, including the Department.
8812Acceptance of any application for processing
8818by the Department shall not be construed as
8826indicating the Department's position
8830regarding the application.
8833120. FDOT has established criteria for determining whether
8841to issue a permit to close a crossing. Rule 14 - 46.003(3)(b),
8853Florida Administrative Code, states as follows:
8859(b) Closing Public Grade Crossings. In
8865considering the closing of a public grade
8872crossing, the following criteria will a pply:
88791. Necessity, convenience and safety
8884effects upon rail and vehicle traffic.
88902. Utilization of remaining routes where
8896practical.
88973. Effect of closing on rail operations
8904and expenses.
89064. Excessive restriction to emergency
8911type vehicles resu lting from closing.
8917121. In determining whether to approve CSXT's application,
8925FDOT considered the following: (a) the necessity, convenience
8933and safety of the Crossing to rail and vehicle traffic; (b)
8944whether other alternate routes may be utilized; (c) the effect
8954of closing the Crossing on rail operations and expenses; and (d)
8965whether excessive restrictions to emergency type vehicles will
8973result from the closure of the Crossing.
8980122. Although reasonable people may disagree over the
8988precise details of F DOTs diagnostic review, it is beyond
8998dispute that FDOT substantially complied with its own
9006procedures, and any omissions, have been cured by consideration
9015of those elements in the course of the formal hearing.
9025123. The evidence in this case proved that t he Crossing
9036has significant safety hazards, including but not limited to:
9045a. The highest number of railroad crossing accidents
9053in Jacksonville, Florida, including several
9058involving serious personal injury;
9062b. Motorists running the gates because of extend ed
9071train blockages and a general lack of appreciation
9079of the nature of switching movements;
9085c. Potential danger of obstructed trains traveling at
9093high speeds on the CSXT mainline;
9099d. Visibility obstructions for motorists who cannot
9106observe fast - moving fr eight or Amtrak passenger
9115trains on the mainline;
9119e. Approximately one hundred train movements daily;
9126f. Five railroad tracks that cross the road at a
9136skewed angle;
9138g. Motorist frustration over extended train delays;
9145h. The proximity of the Crossing t o the Moncrief Yard
9156switching activities;
9158i. Trains performing different activities on different
9165railroad tracks at varying speeds;
9170j. Pedestrians climbing between freight cars on a
9178regular basis due to extended train delays; and
9186k. A substantial likel ihood of future railroad
9194crossing accidents.
9196124. Closing the Crossing would enhance its safety. The
9205benefit of the enhanced safety outweighs any possible
9213inconvenience to motorist and pedestrians that may result from
9222closure.
9223125. The evidence demon strated there is an existing
9232reliable, alternate route for vehicle traffic over New Kings
9241Road and Edgewood Avenue. The alternate route eliminates the
9250substantial train delays and safety hazards that exist at the
9260Crossing and the Norfolk Southern crossing s. The alternate
9269route is practical given its minimal additional distance and
9278time requirements. Public buses provide pedestrians with
9285reasonable transportation to both sides of the Crossing over the
9295alternate route.
9297126. The evidence demonstrate d that closure of the
9306Crossing might cause some occasional inconvenience to
9313individuals located in the triangle areaains will block
9321this area more often if the Crossing is closed. However, the
9332additional inconvenience is not significant when balanced
9339against the problems of substantial train delays at the Crossing
9349and the overwhelming public safety benefits associated with
9357eliminating the crossing.
9360127. Closure of the crossing may increase the cost of
9370doing business for companies located in the tri angle. The
9380record does not accurately reflect the financial impact on these
9390companies.
9391128. CSXT does not have a business necessity to close the
9402Crossing. On the other hand, closure of the Crossing would have
9413a beneficial effect on rail operations and expenses based upon
9423the railroads potential liability exposure for accidents. This
9431exposure is especially significant based on the regular presence
9440of motorists and pedestrians crossing around lowered gates in
9449front of trains or between freight cars.
945612 9. Finally, the evidence proved that the closure of the
9467Old Kings Road crossing would not cause an "excessive"
9476restriction to emergency type vehicles. To the contrary,
9484response times for emergency vehicles have improved since the
9493closure in 1998.
9496130. In tacit recognition of the safety hazards that exist
9506at the Crossing, Petitioners argued that FDOT should consider
9515upgrades to the traffic control devices as an alternative to
9525closure. Under Rule 14 - 46.003, Florida Administrative Code,
9534FDOT is not requi red to consider the relative merits of
9545allocating funds to upgrade the traffic control devices at a
9555railroad crossing as part of its crossing closure determination.
9564131. FDOT would not consider upgrades to the traffic
9573control devices based upon the exis tence of signal lights and
9584gates at the Crossing. Moreover, installation of a
9592four - quadrant gate system would enhance the danger at the
9603Crossing because vehicles could be trapped in the path of a
9614train.
9615132. In this case, Respondents have shown that the closing
9625of the Crossing effectuates FDOTs policy of improved safety at
9635railroad crossings by eliminating, where reasonably convenient,
9642the interaction of motor vehicle traffic with rail traffic.
9651RECOMMENDATION
9652Based upon the foregoing Finding s of Fact and Conclusions
9662of Law, it is
9666RECOMMENDED:
9667That FDOT enter a final order granting CSXT a permit to
9678close the Crossing.
9681DONE AND ENTERED this 11th day of February, 2002, in
9691Tallahassee, Leon County, Florida.
9695__________________________________ _
9697SUZANNE F. HOOD
9700Administrative Law Judge
9703Division of Administrative Hearings
9707The DeSoto Building
97101230 Apalachee Parkway
9713Tallahassee, Florida 32399 - 3060
9718(850) 488 - 9675 SUNCOM 278 - 9675
9726Fax Filing (850) 921 - 6847
9732www.doah.state.fl.us
9733Filed with the Clerk of the
9739Division of Administrative Hearings
9743this 11th day of February, 2002.
9749COPIES FURNISHED :
9752William Graessle, Esquire
9755Winegeart & Graessle, P.A.
9759219 North Newman Street
9763Fourth Floor
9765Jacksonville, Florida 32202 - 3222
9770Eric L. Leach, Esquire
9774Milton, Le ach, D'Andrea & Ritter, P.A.
9781815 Main Street, Suite 200
9786Jacksonville, Florida 32207
9789Scott A. Matthews, Esquire
9793Department of Transportation
9796605 Suwannee Street
9799Mail Station 58
9802Tallahassee, Florida 32399 - 0450
9807Ernst D. Mueller, Esquire
9811City of Jacksonvil le
9815Office of the General Counsel
9820117 West Duval Street, Suite 480
9826Jacksonville, Florida 32202
9829Harold A. Shafer
9832Centurion Auto Transport
98355912 New Kings Road
9839Jacksonville, Florida 32209
9842James C. Myers, Clerk of Agency Proceedings
9849Department of Transporta tion
9853605 Suwannee Street
9856Haydon Burns Building, Mail Station 58
9862Tallahassee, Florida 32399 - 0450
9867Pamela Leslie, General Counsel
9871Department of Transportation
9874605 Suwannee Street
9877Haydon Burns Building, Mail Station 58
9883Tallahassee, Florida 32399 - 0450
9888NOTIC E OF RIGHT TO SUBMIT EXCEPTIONS
9895All parties have the right to submit written exceptions within
990515 days from the date of this Recommended Order. Any exceptions
9916to this Recommended Order should be filed with the agency that
9927will issue the final order in th is case.
- Date
- Proceedings
- PDF:
- Date: 02/11/2002
- Proceedings: Recommended Order issued (hearing held August 13 through 16, 2001) CASE CLOSED.
- PDF:
- Date: 02/11/2002
- Proceedings: Recommended Order cover letter identifying hearing record referred to the Agency sent out.
- PDF:
- Date: 11/30/2001
- Proceedings: Respondent, CSX Transportation, Inc.`s Proposed Recommended Order filed.
- PDF:
- Date: 11/30/2001
- Proceedings: Department of Transportation`s Proposed Recommended Order (filed via fascimile).
- PDF:
- Date: 11/21/2001
- Proceedings: Unopposed Motion for Enlargement of Time to Serve Proposed Final Orders (filed by Tremron Jacksonville via facsimile).
- PDF:
- Date: 09/21/2001
- Proceedings: Joint Consent Motion for Enlargement of Time Within Which to File Proposed Recommended Orders (filed via facsimile).
- Date: 09/11/2001
- Proceedings: Transcript filed, Cumulative Word Index of Volumes I through IV.
- Date: 09/11/2001
- Proceedings: Transcript filed, Condensed Transcripts of Volumes I through IV.
- Date: 09/11/2001
- Proceedings: Transcript filed, Volumes I through IV.
- PDF:
- Date: 08/27/2001
- Proceedings: Respondent, CSX Transportation, Inc.`s Notice of Taking Deposition of Geoff Pappas filed.
- PDF:
- Date: 08/22/2001
- Proceedings: Petitioner, City of Jacksonville`s Notice of Taking Deposition of Geoff Pappas (filed via facsimile).
- PDF:
- Date: 08/20/2001
- Proceedings: Order issued (petitioner Tremron`s Exhibit No. 3 (deposition of D. Albritton) is hereby admitted over objection).
- Date: 08/13/2001
- Proceedings: CASE STATUS: Hearing Held; see case file for applicable time frames.
- PDF:
- Date: 08/10/2001
- Proceedings: Respondent, CSX Transportation, Inc.`s Supplemental Motion in Limine (filed via facsimile).
- PDF:
- Date: 08/10/2001
- Proceedings: Report of Geoff Pappas on Economic Impact of the closing of the Crossing (filed by City of Jacksonville via facsimile).
- PDF:
- Date: 08/10/2001
- Proceedings: Respondent, CSX Transportation, Inc.`s Response to Plaintiff`s Motion to Exclude Witnesses (filed via facsimile).
- PDF:
- Date: 08/10/2001
- Proceedings: Petitioner, City of Jacksonville submission of Exhibit "A" to Pre-Hearing Stipulation, Petitioner, City of Jacksonville Exhibit List Exhibit "A" (filed via facsimile).
- PDF:
- Date: 08/10/2001
- Proceedings: Petitioner, City of Jacksonville`s Response to CSX Transportation, Inc`s Motion to Compel; Motion for in Camera Inspection and/or Motion to Strike Witness, Toufic Khayat (filed via facsimile).
- PDF:
- Date: 08/10/2001
- Proceedings: Motion to Exclude Witnesses Not Identified in Discovery Proceedings (filed by E. Mueller via facsimile).
- Date: 08/10/2001
- Proceedings: Letter to Judge Hood from E. Mueller regarding hearing rooms (filed via facsimile).
- PDF:
- Date: 08/09/2001
- Proceedings: Petitioner, City of Jacksonville Submission of Exhibit "A" to Pre-Hearing Stipulation, Petitioner, City of Jacksonville Exhibit List Exhibit "A" (filed via facsimile).
- PDF:
- Date: 08/09/2001
- Proceedings: Petitioner, City of Jacksonville Submission of Supplemental Exhibit "F" to Pre-Hearing Stipulation. Petitioner, City of Jacksonville Supplemental Witness List Exhibit F (filed via facsimile).
- PDF:
- Date: 08/09/2001
- Proceedings: Letter to Judge Hood from W. Graessle regarding concerns regarding hearing held on August 8, 2001 (filed via facsimile).
- PDF:
- Date: 08/07/2001
- Proceedings: Letter to Judge Hood from T. E. Leach enclosing depositions of Mr. Khayat and Mr. Ball (filed via facsimile).
- PDF:
- Date: 08/07/2001
- Proceedings: Pre-Hearing Stipulation filed by E. Mueller, B. Conroy, H. Schafer, W. Graessle, E. Leach
- PDF:
- Date: 08/07/2001
- Proceedings: Petitioner, City of Jacksonville`s Response to Respondent, CSX Transportation, Inc`s Motion in Limine (filed via facsimile).
- PDF:
- Date: 08/06/2001
- Proceedings: Petitioner, City of Jacksonville`s Response to CSX Transportation, Inc`s Motion to Take Witness Out-of-Turn (filed via facsimile).
- PDF:
- Date: 08/01/2001
- Proceedings: Respondent, CSX Transportation, Inc`s Motion to Compel; Motion for in Camera Inspection and/or Motion to Strike Witness, Toufic Khayat (filed via facsimile).
- PDF:
- Date: 08/01/2001
- Proceedings: Respondent, CSX Transportation, Inc`s Motion to Take Witness Out-of-Turn (filed via facsimile).
- PDF:
- Date: 08/01/2001
- Proceedings: Respondent, CSX Transporation, Inc`s Motion in Limine (filed via facsimile).
- PDF:
- Date: 08/01/2001
- Proceedings: Respondent, CSX Transportation, Inc`s Motion for Judge View (filed via facsimile).
- PDF:
- Date: 07/24/2001
- Proceedings: Petitioner, City of Jacksonville`s Fifth Supplemental Answer to Department`s First Set of Interrogatories (filed via facsimile).
- PDF:
- Date: 07/12/2001
- Proceedings: Petitioner, City of Jacksonville`s Fourth Supplemental Answer to Department`s First Set of Interrogatories (filed via facsimile).
- PDF:
- Date: 07/09/2001
- Proceedings: Petitioner, City of Jacksonville`s Response to Department of Transportation`s and CSX Transportation, Inc.`s Motions for View (filed via facsimile).
- PDF:
- Date: 07/06/2001
- Proceedings: Notice of Taking Depositions Ad Testificandum (19 deponents) filed via facsimile.
- PDF:
- Date: 07/03/2001
- Proceedings: Petitioner`s Fifth Request for Production of Documents to CSX Transportation, Inc. (filed via facsimile).
- PDF:
- Date: 06/29/2001
- Proceedings: Petitioner, City of Jacksonville Production of Documents (filed via facsimile).
- PDF:
- Date: 06/29/2001
- Proceedings: Petitioner, City of Jacksonville`s Third Supplemental Answer to Department`s First Set of Interrogatories (filed via facsimile).
- PDF:
- Date: 06/27/2001
- Proceedings: Petitioner`s Second Request for Production of Documents to Department of Transportation filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Respondent, Department of Transportation`s, Notice of Answering Tremron Jacksonville, L.C.C.`s First Set of Interrogatories filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Defendant`s Amended Notice of Taking Deposition (L. Porter) filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Defendant`s Amended Notice of Taking Deposition (S. Allbritton) filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Defendant`s Amended Notice of Taking Deposition (D. Halpin) filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Defendant`s Amended Notice of Taking Deposition (B. Pemberton) filed.
- Date: 06/27/2001
- Proceedings: Petitioner`s First Request for Production of Documents to Department of Transportation filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Petitioner`s Fourth Request for Production of Documents to CSX Transportation, Inc. filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Petitioner, City of Jacksonville`s, Notice of Answering Department`s First Set of Interrogatories filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Petitioner, City of Jacksonville`s Response to Department`s First Request for Production filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Petitioner`s Third Request for Production of Documents to CSX Transportation, Inc. filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Petitioner`s Second Request for Production of Documents to CSX Transportation, Inc. filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Petitioner`s First Request for Admissions to Respondent, Department of Transportation filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Petitioner`s First Request for Admissions to Respondent, CSX Transportation, Inc. filed.
- PDF:
- Date: 06/27/2001
- Proceedings: Notice of Serving City of Jacksonville`s Supplemental Interrogatory to Department of Transportation filed.
- PDF:
- Date: 06/25/2001
- Proceedings: Order Granting Continuance and Re-scheduling Hearing issued (hearing set for August 13 through 16, 2001; 10:00 a.m.; Jacksonville, FL).
- PDF:
- Date: 06/21/2001
- Proceedings: Respondent, Department of Transportation`s, Notice of Answering City of Jacksonville`s First Set of Interrogatories (filed via facsimile).
- PDF:
- Date: 06/20/2001
- Proceedings: Respondent, Department of Transportation`s, Motion for View filed.
- PDF:
- Date: 06/13/2001
- Proceedings: Department`s Response to City of Jacksonville`s First Request for Admissions filed.
- PDF:
- Date: 06/05/2001
- Proceedings: Petitioner, Department of Transportation`s Notice of Answering City of Jacksonville`s First Set of Interrogatories filed.
- PDF:
- Date: 05/17/2001
- Proceedings: Petitioner`s Request for Production to Department of Transportation filed.
- PDF:
- Date: 05/17/2001
- Proceedings: Petitioner`s Request for Production to CSX Transportation, Inc. filed.
- PDF:
- Date: 05/17/2001
- Proceedings: Notice of Serving First of Interrogatories to Respondent, CSX Transportation, Inc. filed.
- PDF:
- Date: 05/17/2001
- Proceedings: Notice of Serving First of Interrogatories to Respondent, Department of Transportation filed.
- PDF:
- Date: 05/07/2001
- Proceedings: Letter to Judge Hood from E. Mueller (request for subpoenas) filed.
- PDF:
- Date: 04/30/2001
- Proceedings: Petitioner`s First Request for Production of Documents to Department of Transportation filed.
- PDF:
- Date: 04/30/2001
- Proceedings: Petitioner`s First Request for Production of Documents to CSX Transportation, Inc. filed.
- PDF:
- Date: 04/30/2001
- Proceedings: Notice of Serving City of Jacksonville`s First Set of Interrogatories to Department of Transportation, Inc. filed.
- PDF:
- Date: 04/30/2001
- Proceedings: Notice of Serving City of Jacksonville`s First Set of Interrogatories to CSX Transportation, Inc. filed.
- PDF:
- Date: 04/30/2001
- Proceedings: Order Granting Continuance and Re-scheduling Hearing issued (hearing set for July 10 through 13, 2001; 10:00 a.m.; Jacksonville, FL).
- PDF:
- Date: 04/20/2001
- Proceedings: Department`s First Request for Production of Documents to City of Jacksonville filed.
- PDF:
- Date: 04/20/2001
- Proceedings: Department`s First Request for Production of Documents to Tremron Jacksonville, L.L.C. filed.
- Date: 04/20/2001
- Proceedings: Notice of Serving Department`s for Production of Documents to City of Jacksonville filed.
- PDF:
- Date: 04/20/2001
- Proceedings: Notice of Serving Department`s First Set of Interrogatories to City of Jacksonville filed.
- Date: 04/20/2001
- Proceedings: Notice of Serving Department`s Production of Documents to Tremron Jacksonville, L.L.C. filed.
- PDF:
- Date: 04/20/2001
- Proceedings: Notice of Serving Department`s First Set of Interrogatories to Tremon Jacksonville, L.L.C. filed.
- PDF:
- Date: 04/20/2001
- Proceedings: Department`s First Request for Production of Documents to Centurion Auto Transport filed.
- PDF:
- Date: 04/20/2001
- Proceedings: Notice of Serving Department`s First Set of Interrogatories to Centurion Auto Transport filed.
- PDF:
- Date: 04/10/2001
- Proceedings: Department`s Notice of Receipt of Supplemental Responses to Initial Order filed.
- PDF:
- Date: 04/09/2001
- Proceedings: Notice of Hearing issued (hearing set for May 31 and June 1, 2001; 10:00 a.m.; Jacksonville, FL).
- PDF:
- Date: 04/05/2001
- Proceedings: Order of Consolidation issued. (consolidated cases are: 01-001157, 01-001158, 01-001159)
Case Information
- Judge:
- SUZANNE F. HOOD
- Date Filed:
- 03/23/2001
- Date Assignment:
- 03/26/2001
- Last Docket Entry:
- 04/25/2002
- Location:
- Jacksonville, Florida
- District:
- Northern
- Agency:
- ADOPTED IN PART OR MODIFIED
Counsels
-
William Graessle, Esquire
Address of Record -
Eric L Leach, Esquire
Address of Record -
Scott A Matthews, Esquire
Address of Record -
Ernst D Mueller, Esquire
Address of Record -
Harold A Shafer
Address of Record -
Harold A. Shafer
Address of Record