For decades, Parkland Estates, Palma Ceia Pines, and other area neighborhoods have experienced severe street and yard flooding and structural damage to residential and commercial buildings. An initial evaluation concluded that the existing stormwater system, which drains this low-lying area to Hillsborough Bay, is significantly undersized for the current level of development and that a new conveyance system was needed to divert heavy rainfall to the bay. The Parkland Estates neighborhood has experienced the most frequent flooding, particularly in the area near W. Fountain Boulevard and S. Audubon Avenue extending up to W. Swann Avenue. This low-lying portion of the watershed essentially forms a bowl that collects water runoff from surrounding residential and commercial areas and the limited outfall capacity slows the recovery from rainfall events. There is also frequent and significant roadway flooding along W. Swann Avenue, W. Parkland Boulevard, and S. Lakeview Road.
These storm events have had serious impacts on the HCA Florida South Tampa Hospital and Emergency Room, requiring detouring of emergency vehicles around flooded streets and even the evacuation of a patient from an ambulance that had become stuck in flood waters. Restricting access and extending response times for emergency vehicles puts lives at risk.
A preliminary planning report for the South Howard Flood Relief project was conducted by the engineering firm Johnson, Mirmiran & Thompson (JMT). The report concluded that a new stormwater outfall was needed to address the inland flooding. The report included the previously studied alternative project segments from Parkland Estates to Hillsborough Bay, as well as analyses of stormwater vaults and a pump station in Fountain Park. Due to the existing infrastructure previously installed in anticipation of this project, a large box culvert installed along S. Howard Avenue was found to be the most feasible and reliable option to solve the flooding conditions. This segment will also provide a “spine” that can provide for future flooding relief projects in adjacent neighborhoods located along the segment.
As Tampa’s location along the Gulf Coast makes it home to some of the most severe rain events in the country, minimizing flooding within the City is an ever-present challenge. Flooding here is generally associated with either coastal flooding from storm surges generally associated with tropical storms and hurricanes or inland flooding from high-intensity storm events, also often associated with hurricanes that deliver copious amounts of rainfall to the area. As well, flooding can be due to a combination of both conditions.
Coastal Flooding
Relief from surge events is much more elusive because Tampa’s coastline is so heavily developed. Because coastal areas are generally low in elevation, they are susceptible to rising sea levels during major tropical events that, due to their trajectory, can push water into the bays and coastal areas.
Because coastal flooding is a daunting challenge with no practical, large-scale solution, the current response to storm surge is being addressed by home and business owners, often including raising existing homes prone to storm surge flooding or rebuilding homes at a higher elevation. Flooding of low-lying streets and surrounding properties unfortunately will be ever-present.
Inland Flooding
Inland flooding is generally a result of high-intensity, short duration storm events and, of course, hurricanes that are often longer in duration and generally carry much more rainfall. The Tampa peninsula, between Kennedy Boulevard and McDill Air Force Base, has some of the highest concentrations of inland flooding pockets in the City due to its low elevations ranging from ~20 feet above sea level at the highest points to 2-3 feet near the coastlines. The long drainage distances between these high and low points of up to 3 miles results in slow drainage of runoff to the coastal outfalls.
With few exceptions, the drainage systems in the peninsula were constructed between 60 and 100 years ago. Since that time, more intense development, including homes that are much larger than those originally built with smaller footprints, has resulted in significant increases in stormwater runoff that overtaxes an outdated drainage system that does not meet current standards.
The South Howard Flood Relief project includes the design and construction of a major stormwater drainage system to relieve flooding along S. Howard Avenue, W. Swann Avenue, and adjacent neighborhoods, including Parkland Estates and Palma Ceia Pines.
This project was initiated to address frequent inland flooding within the S. Howard drainage basin that includes the Parkland Estates neighborhood and the adjacent Swann Ave. area where flooding is most frequent and severe, as well as the remainder of the drainage basin which includes the Palma Ceia Pines neighborhood located north of Swann Ave. With the occurrence of extensive flooding within this basin during Hurricane Milton in October, 2024, which carried unprecedented rainfall to the Tampa Bay area on the order of a 300-year storm event, more valuable flood data was collected that will help the design team with a more detailed and refined focus to ensure the flooding within the entire watershed is reduced to the greatest extent possible. The project team has discussed modifications to the preliminary design to address flooding throughout the basin.
The City is responsible for protecting public rights-of-way from flooding to the greatest extent practical within the confines of its resources, especially CIP funding limitations. This project is being designed to relieve street flooding up to the 5-year/8-hour (5.2-inch) storm event, which addresses flooding from most wet season events. It is generally expected that in greater events, some street flooding will occur and the goal shifts to maintaining at least one lane of traffic in each direction passable on major roadways. In extreme events – up to 100-year storm conditions – the goal becomes minimizing structural damage. All these goals are being used as design criteria in this project.
In addition to the design and construction of a major stormwater drainage system, the project will include drinking water and wastewater upgrades, pedestrian and vehicular safety improvements through increased sidewalk coverage and traffic calming measures, expanded street parking, landscaping, the addition of pervious (permeable) pavers, street lighting, and other green infrastructure and streetscape improvements.
As a progressive design-build project, one team has been hired to do both the engineering design and construction work under one contract, creating a collaborative process wherein the owner and design-build team work together – an ideal approach for the delivery of complex projects such as the South Howard Flood Relief project. Through this process, issues that may arise throughout the phases of the project are effectively addressed and resolved by the team in a timely manner. This approach results in less delays in project completion and minimizes cost overruns.
Through a Request for Qualifications (RFQ), Kimmins Contracting Corporation (Kimmins) was selected as the design-build team for this project. Through this qualifications-based selection process required by state statute, the most qualified team is selected to perform the specialized work as opposed to the low-bid process. In response to the RFQ, three submissions were received and reviewed by City of Tampa staff. Each team was then required to provide a presentation and participate in an interview. The teams were scored and ranked. Given their successful completion of similar, large-scale stormwater projects for the City of Tampa along with a history of being attentive and responsive to stakeholders’ concerns, the team led by Kimmins was selected as the most qualified design-build team for the project.
The current project budget is $64.5 million including design and construction costs. The total project budget estimate is based upon preliminary engineering and design. The selected alternative segment, market conditions and cost of materials, labor and other factors will affect the total project cost.
The project is being funded by $39 million from stormwater assessments, $11 million from the Tampa-Hillsborough Expressway Authority, $4.5 million in water department assessments, and $10 million in grant funding from the Florida Department of Environmental Protection (FDEP) Resilient Florida Grant Program.
As part of the Kimmins team, AtkinsRéalis has begun the engineering design work, which includes the following steps:
When determining the best alternative/final route segments, factors such as environmental impacts/trees, cost, constructability (for example, whether the proposed segment has adequate right-of-way for installation of the box culvert), existing infrastructure, and impacts to the traveling public during construction, must all be considered. As part of the project design phase, Kimmins and their design engineer, AtkinsRéalis, will work to objectively evaluate and score each alternative route segment based on technical engineering along with the factors outlined above.
Construction will follow the completion of design work (Spring 2026) and is expected to take approximately three (3) years to complete. Prior to that, preliminary activities for an early-works construction phase will begin in late 2025 and will include water line upgrades and resurfacing of neighborhood streets. Additionally, utility relocation work will follow early-works construction and precede box culvert construction.
In an early works construction phase, streets adjacent to S. Howard Avenue that are in need of repair and will likely be used for local detours during box culvert construction will be resurfaced. Also, during this phase, water system improvements will be performed and temporary adjustments to street parking will be made to accommodate traffic on these same streets.
Neighborhood roadways will be restored in accordance with current City standards. It’s not anticipated that any significant changes will be made from existing conditions. Any historic features and landscaping will be replaced in-kind to the greatest extent possible. The design-build team will work with residents on the landscaping in the right-of-way and tree replacement.
Protecting trees is a priority for the City of Tampa and all work affecting trees will be reviewed in accordance with the City’s tree ordinance. During the design process, a certified arborist will perform a full review of the route and determine which trees may potentially be affected by construction. Each tree within and adjacent to the construction zone will be documented including size, species, canopy, and health. The arborist will work with the engineers in locating the improvements to avoid or minimize tree impacts where practical. Tree trimming and root pruning will be used to protect trees where it is determined by the arborist that they can remain. Some trees will require removal when it is determined that they cannot be adequately protected to ensure their survival. Where removal is required, the City’s arborist will work with residents to determine locations where replacement trees can be located to help restore tree canopy. The City’s goal is to maximize replacement of tree canopy within the project area.
As with many other coastal roads in our area, the flooding that occurs on Bayshore Boulevard is primarily a result of winds and tides as well as storm surge, and the relative elevation of the road. While this project will improve drainage along S. Howard Avenue and is an important part of Florida’s statewide Flooding and Sea Level Rise Resilience Plan, it will not prevent flooding on Bayshore Boulevard due to storm surge.
Stakeholder engagement will be ongoing throughout the project design and construction phases in the form of individual and group meetings, email and door-to-door notifications, and website updates and alerts at www.SHStormwater.com.
Public meetings will be conducted at various phases of design to present updates to the project design and to provide members of the community the opportunity to ask questions, provide input, and speak with project representatives. The initial public meeting to present streetscape concepts and the route analysis is expected to be held early this spring. A public information meeting will also be conducted prior to the start of construction to provide the community the opportunity to learn more about what to expect during project construction in terms of access, accommodations and duration, as well as to speak with project representatives to address questions and concerns.
Once design work is sufficiently complete, Kimmins will submit a proposal to the City of Tampa that will include a Guaranteed Maximum Price (GMP) for construction. This proposal will require City Council approval prior to the start of construction. Construction is expected to begin in Spring 2026 and anticipated to take approximately three (3) years to complete. The project will also include an early-works phase for upgrading of water lines, resurfacing of neighborhood streets, and relocation of existing utilities. Early works activities will be completed during the project design.
Construction will be active between the hours of 7 a.m. and 7 p.m., Monday through Friday, with weekend and nighttime work to occur on a limited basis, when deemed necessary.
Work on each project segment will occur one at a time; however, there may be some overlap of activities. The City of Tampa’s preliminary phasing plan divides the construction into sections, requiring Kimmins to open one segment section to traffic before beginning work on another. The phasing plan is preliminary and subject to revisions only when shown to improve traffic conditions and access to adjacent properties. The design-build team will seek input from adjacent property owners and businesses in the refinement of the phasing plan. Further changes to phasing may be implemented during construction when beneficial to the project and adjacent property owners and businesses.
Temporary street/lane closures, traffic shifts, and detours will be required to accommodate construction activities. Impacted areas will be clearly marked using signage, as well as flaggers, as needed, to direct motorists, pedestrians, and bicyclists through and around construction zones. Temporary road closures and detour information will be posted on the Alerts page of the project website.
Bayshore Boulevard: To accommodate construction activities, the two southbound lanes of Bayshore Boulevard will be closed for approximately 8 to 10 weeks. During that time, northbound and southbound traffic on Bayshore Boulevard will be maintained by converting one of the two northbound lanes to accommodate southbound traffic. This will allow for one lane of traffic in each direction.
The design-build team estimates that an individual driveway could be inaccessible for between 5 to 7 weeks to accommodate construction activities. During this time, the design-build team will work to provide alternate means of access to homes and businesses, such as the installation of temporary driveways and walkways, as well as an off-site parking area – to be staffed by security personnel on a 24/7 basis and include a golf cart shuttle service. A phone number for security and shuttle service will be provided. Property and business owners, residents and tenants will be informed in advance of construction activities that may affect normal property access.
The design-build team will implement careful vibration monitoring techniques that include placing sensors at key locations along the construction segment and adjusting construction techniques, as necessary, to keep the vibrations within acceptable levels. This team has completed several projects for the City that were near structures and of the same magnitude as the South Howard Flood Relief project, with no resulting damage to adjacent buildings or homes. For this project, the same vibration monitoring program will be used in a concerted effort to achieve the same damage-free results.
The design-build team will coordinate with the USPS and garbage/recycling providers to avoid and/or minimize service disruptions. Any service interruptions should be immediately reported through the project hotline at 813-467-7887 or by emailing the community outreach team at [email protected].
Residents/businesses will be informed in advance of any planned water service interruptions, which the design-build team does not anticipate lasting more than a few hours. In the event of unplanned interruptions, affected residents will be notified as soon as is reasonably possible.
Residents/businesses can stay up to date on the South Howard Flood Relief project by visiting the project website at www.SHStormwater.com, subscribing to alerts through the Alerts page on the project website, and attending public meetings.
More information is available at www.SHStormwater.com. You may also contact the community outreach team by email at [email protected] or calling the project hotline at (813) 467-7887 with any project-related questions or concerns.