20110023_Meeting Minutes_20090515

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CONCURRENCE MEETING
INFORMATION PACKET
FOR YOUR REVIEW
PRIOR TO MEETING ON
Thursday, May 21, 2009
PROJECT ENGINEER
Beth Smyre
TIP #B-2500
Please bring this packet
L to the meeting.

STATE OF NORTH CAROLINA
DEPARTMENT OF TRANSPORTATION
BEVERLY EAVES PERDUE EUGENE A. CONTI, JR.
GOVERNOR SECRETARY
AGENDA
Western Concurrence Meeting
Thursday, May 21, 2009
Board Room, Transportation Building
Raleigh, North Carolina
1:00 PM to 3:00 PM - Beth Smyre - Project Planning Engineer, PDEA Branch
TIP - B-2500 - Bonner Bridge Replacement, Highway 12 Over Oregon Inlet, Dare
County, Division
Team Members:
Bill Biddlecome, USACE
Beth Smyre, PDEA
Clarence Coleman, FHWA
Chris Militscher, USEPA
Ron Sechler, NMFS
Mike Murray, NPS
Pete Benjamin, USFWS
Mike Bryant, USFWS - PINWR
David Cox, WRC
Renee Gledhill-Earley, SHPO
Brian Wrenn, DWQ
Sara Winslow, DMF
Jim Gregson, DCM
NCDOT Technical Support Staff and Other Agency Staff:
Scott McLendon, USACE
Ron Lucas, FHWA
Kathy Matthews, USEPA
Gary Jordan, USFWS
Dennis Stewart, USFWS-PINWR
Thayer Broili, NPS
Travis Wilson, WRC
David Wainwright, DWQ
Anne Deaton, DMF
Cathy Brittingham, DCM
Doug Hugget, DCM
Jim Hoadley, DCM
Jerry Jennings, Division I
Clay Willis, Division 1
Victor Barbour, Technical Services
Virginia Mabry, Trans. Prog. Management
Rodger Rochelle, Trans. Prog. Management
Lonnie Brooks, Structure Design
Doug Taylor, Roadway Design
Dave Henderson, Hydraulics
Brian Yamamoto, PDEA
Rob Hanson, PDEA
Michael Turchy, NEU
Morgan Jethro, Albemarle RPO
Consultants:
John Page, PB
Bobby Norbum, PB
* The purpose of this meeting to revisit the selection of CP3.
MAILING ADDRESS: LOCATION:
NC DEPARTMENT OF TRANSPORTATION TELEPHONE: [phone] TRANSPORTATION BUILDING
PROJECT DEVELOPMENT AND ENVIRONMENTAL ANALYSIS FAX: [phone] SOUTH WILMINGTON STREET
1548 MAIL SERVICE CENTER RALEIGH NC
RALEIGH NC 27699-1548 WEBSITE:WWW.NCDOT.ORG

North Carolina Department of TransportT YIS
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NEPA/Section 404 Merger Meeting
May 21, 2009
NC 12 Replacement of Herbert C. Bonner Bridge
(Bridge No. 11) over Oregon Inlet
Federal-Aid Project No. BRS-2358(15)
WBS No. 32635
TIP Project No. B-2500
Dare County
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NEPA/Section 404 Merger Meeting - May 21, 2009
NC 12 Replacement of Herbert C. Bonner Bridge
(Bridge No. 11) over Oregon Inlet
MEETING AGENDA
1. Why Are We Here?
A. Purpose
B. Background
1. Project Status
2. Summary of Comments on the Designation of the Phased
Approach/Rodanthe Bridge Alternative as the
LEDPA/Preferred Alternative in the FEIS
II. What's Changed since the Phased Approach Alternative was Designated
as the LEDPA and Preferred Alternative?
A. Design changes to minimize impacts to the Section 106 properties
in Rodanthe
B. Designation of Wintering Piping Plover Critical Habitat
C. Information regarding the History of the Road and the
Refuge/Seashore
III. How Does the New Information Affect Our Decision?
A. Rodanthe Historic District & Chicamacomico Lifesaving Station
Effects Determinations
B. Pea Island National Wildlife Refuge/Cape Hatteras National
Seashore
IV. Why do NCDOT and FHWA Now Believe that the Road North/Bridge
South Alternative is the LEDPA?
V. What About the Pamlico Sound Corridor Alternative, Why is it not the
LEDPA?
VI. Next Steps
I t
NEPA/Section 404 Merger Meeting
May 21, 2009
NC 12 Replacement of Herbert C. Bonner Bridge
(Bridge No. 11) over Oregon Inlet
Federal-Aid Project No. BRS-2358(15)
WBS No. 32635 (TIP Project No. B-2500)
1. Why Are We Here?
A. Purpose of This Meeting
The purpose of this meeting is to revisit the selection of the Least
Environmentally Damaging Practicable Alternative (LEDPA)/Preferred Alternative
(Concurrence Point 3) and, if necessary, discuss Bridging Decisions
(Concurrence Point 2A) for the entire LEDPA.
FHWA and NCDOT are proposing a change in the designation of LEDPA/
Preferred Alternative because of consideration and evaluation given to
comments received on the FEIS and the Section 4(f) Evaluation included in the
FEIS. FHWA and NCDOT also obtained additional information, which also
contributed to the re-evaluation of the LEDPA/Preferred Alternative
B. Background
1. Project Status
The FHWA and NCDOT propose to replace the Herbert C. Bonner Bridge across
Oregon Inlet in Dare County. Bonner Bridge, built across Oregon Inlet in 1962, is
approaching the end of its reasonable service life. Bonner Bridge is part of
NC 12 and provides the only highway connection between Hatteras Island and
Bodie Island. The replacement structure would serve the same function. Two
replacement bridge corridors were considered: the Pamlico Sound Bridge
Corridor and the Parallel Bridge Corridor with NC 12 Maintenance. This project
is identified in the 2009 to 2015 Transportation Improvement Program (TIP) as
TIP Project No. B-2500.
FHWA and NCDOT issued a Final Environmental Impact Statement (FEIS) and
Final Section 4(f) Evaluation on September 17, 2008. The Phased
Approach/Rodanthe Bridge Alternative was identified as the LEDPA/Preferred
Alternative in the FEIS. The FEIS was provided to 18 Federal agencies, 11 State
agencies, 14 local agencies or governments, and 23 interest groups and non-
governmental organizations (NGOs). Copies of the FEIS were made available
T
for public review at six libraries or government offices in the local study area, as
well as on the internet at the Outer Banks Task Force website
(http://www.obtf.org ) and the NCDOT project website. Comments on the FEIS
were accepted during a 30 day review period ending on October 27, 2008.
Comments received late were still considered. Several agencies expressed
concerns in their written comments about the LEDPA/Preferred Alternative.
2. Summary of Comments on the Designation of the Phased Approach/
Rodanthe Bridge Alternative as the LEDPA/Preferred Alternative.
The U. S. Department of Interior (USDOI) commented that "Though all
alternatives have some form of 4(f) impact, the Preferred Alternative [LEDPA
Alternative] has far greater impacts in quantity and quality on lands protected by
section 4(f)." In USDOI's view, the LEDPA/Preferred Alternative would
constructively use the Refuge because the elevated road structure in the Refuge
would cause noise, visual intrusion, shading of beach habitat, interference with
the flyway of shorebirds, and loss of access to Refuge visitor facilities. USDOI
noted that the impacts would be lessened with an at-grade road. USDOI further
advised that the LEDPA/Alternative would likely not avoid the need for a
compatibility determination because construction and/or maintenance work would
still likely occur outside of the existing right of way easement.
The North Carolina Department of Cultural Resources (NCDCR) also took issue
with FHWA's finding that the LEDPA/Preferred Alternative would not
constructively use historic properties. A specific concern was that "the
construction of a ten-mile long bridge, elevated thirty feet above ground level and
topped with a nearly five-foot railing (and perhaps an additional six-foot high
chain-link fence as suggested by the Refuge during the Section 106 consultation)
will introduce a substantial visual intrusion that is antithetical to the historic
landscape" of the Refuge. In the Rodanthe Historic District, NCDCR was
similarly concerned that introduction of a thirty-foot bridge with flanking one-way
frontage roads in the district would substantially impair the characteristics which
make the District and Chicamacomico Life Saving Station eligible for the National
Register. Another concern was the reduction in access to the Rodanthe District
and Chicamacomico Life Saving Station with the LEDPA/Preferred Alternative.
The NOAA Fisheries Service (NMFS) also expressed concerns about Essential
Fish Habitat for the Phased Approach/Rodanthe Bridge Alternative. NMFS
stated that the FEIS improves upon the SSDEIS in discussing the value of and
impacts to surf zone EFH in the Pea Island National Wildlife Refuge; however,
the FEIS does not fully consider the significant habitat changes associated with
bridge supports in the surf zone and ultimately the near shore ocean.
The U. S. Environmental Protection Agency (EPA) expressed concerns about the
construction duration of the Phased Approach/Rodanthe Bridge Alternative.
EPA's comment letter states "Page 4-114 of the FEIS describes the timing of
construction for the four phases of bridges in the Phased Approach alternatives.
I
This section describes 7 years of construction for Phases I and II (together),
followed by a 7-year gap of no construction, then 10 years of construction for
Phase III, a 10-year period of no construction, then 10 years of construction for
Phase IV. This totals 27 years of construction over a 44-year period, although the
FEIS states that it is 17 years of construction. Given the unknowns in this project
concerning shoreline erosion, breach/inlet formation, and other unpredictable
factors, this timeline may change considerably, with phases built sooner than
predicted. The FEIS does not investigate the potential impacts of 27 years of
construction in a shorter overall timeframe, although it seems likely".
Extensive comments were also provided by the Southern Environmental Law
Center (SELC) organization. SELC commented that the Section 4(f) analysis is
inadequate and erroneously concluded that the Phased Approach will not "use"
Refuge lands because it operates within the existing NC 12 easement.
Specifically, the SELC commented that the analysis failed to explain how it is
feasible to construct and maintain an elevated bridge within the existing right of
way easement, construct a service road, while maintaining the current NC 12 and
cause no further encroachments into the Refuge. The SELC also commented
that the analysis failed to address the projected dune building and maintenance
activities through 2030 that are integral to the Phased Approach. Further, the
SELC commented that the constructive use analysis was deficient because the
analysis did not adequately assess ecological impacts and access restrictions of
the Phased Approach in the Refuge. The SELC commented that the
documentation failed to acknowledge or assess the use of the Refuge that will
result from retaining the terminal groin, which does not lie within the existing NC
12 easement.
II. What's Changed Since the Phased Approach Alternative was
Designated as the LEDPA and Preferred Alternative?
Three things have changed that caused FHWA and NCDOT to re-evaluate their
designation of the LEDPA and preferred alternative. First, FHWA and NCDOT
wanted to minimize the extensive adverse impacts that were identified by the
resource agencies in their FEIS comments. Second, USFWS designated critical
habitat for the wintering piping plover around the terminal groin after the FEIS
was published. Third, as part of the right of way certification process, the history
of and title to NC 12 was investigated since the road was known to have been
relocated over the years when storms hit the islands. As a result of this
investigation, FHWA and NCDOT found substantial evidence that a public
vehicular thoroughfare existed across the length of the project area before the
Refuge and Seashore were established. This new information changes FHWA
analysis required by Section 4(f).
A. Design changes to minimize impacts to the Section 106 properties in
Rodanthe.
In order to address the concerns expressed in the FEIS about the impacts to
Rodanthe Historic District and Chicamacomico Life Saving Station, NCDOT
revised the designs for both the Phased Approach/Rodanthe Bridge and the
Road North/Bridge South (and, by extension, the All Bridge) Alternatives, both of
which were previously found to have an Adverse Effect on the district. The
designs were revised to remove the presence of bridges from within the district
boundaries and have NC 12 traffic at-grade by the time it reaches the district.
These designs were presented to the merger team during the March 26, 2009
informational meeting, and copies of the new designs were included in the packet
for that meeting. The Rodanthe revisions will be implemented for all three
alternatives regardless of the outcome of this merger team meeting. The
following is a brief summary of those revisions.
Road North/Bridge South and All Bridge Alternatives: The Rodanthe bridge
portion of these alternatives was revised so the new intersection with NC 12. is
located approximately 530 feet north of the Rodanthe Historic District. The
southern terminus is a curved intersection, similar to that designed for the
Pamlico Sound Corridor- Curved Rodanthe Terminus alternative. NC 12 traffic
would be at-grade as it enters the Rodanthe Historic District. The section of NC
12 roadway between the southern terminus of the bridge portion north to the Pea
Island National Wildlife Refuge (Refuge) border would be maintained as a
service road to provide property access to homes and businesses north of the
bridge.
The northern terminus of the Rodanthe Bridge remains the same; bridging begins
at a point approximately two miles north of the Refuge's southern boundary and
extends into Pamlico Sound before rejoining NC 12 in Rodanthe (Figures 4 and
5).
Phased Approach/Rodanthe Bridge Alternative: The original design of the
Phased Approach/Rodanthe Bridge alternative included a bridge in Rodanthe
that was contained within the existing 100-foot easement, with one-way service
roads on either side of the bridge being used to provide local access. Because of
the visual impacts of the bridge as well as concerns over access both to the
Chicamacomico Lifesaving Station and across the Rodanthe Historic District, the
Rodanthe Bridge was shortened so that the bridging stops at a point
approximately 420 feet north of the District. The southern end of this bridge
would not be brought down to grade; instead, traffic would access the bridge via
a two-lane ramp located on the west side of the bridge. NC 12 traffic would be at-
grade as it passes through the Rodanthe Historic District.
I I
The northern terminus of the Rodanthe Bridge remains the same; bridging begins
at a point north of the Rodanthe hotspot within the Refuge and extends south into
Rodanthe while remaining within the existing 100-foot easement (Figure 6).
B. Wintering Piping Plover Critical Habitat
The USFWS designated wintering piping plover critical habitat in December 2008
after publication of the FEIS. Part of the habitat includes areas on Pea Island
behind the terminal groin and adjacent to the terminal groin where the shoreline
has accreted since the groin's construction. The terminal groin was constructed
by NCDOT in 1989 to protect the Bonner Bridge and the bridge approaches from
shoreline erosion. The right of way permit issued by the USFWS for its
construction states "NCDOT owns the revetment and groin and all appurtenant
improvements for the term of this permit."
The permit provides a termination process if the groin is not used for a two year
period for the purpose for which it was granted, in which case the land must be
restored to its original condition unless the USFWS waives that requirement.
FHWA and NCDOT therefore assumed that selection of the Pamlico Sound
Bridge Alternative would most likely result in the removal of the terminal groin
since under the Pamlico Sound Alternative NCDOT would abandon NC 12 within
the Refuge and replace the bridge on a completely new alignment that avoids
Oregon Inlet entirely. The NCDOT would likely remove the terminal groin for this
alternative to reduce its maintenance responsibilities and other liabilities
associated with leaving the groin in place. Implementation of the Pamlico Sound
Bridge Corridor and the resulting removal of the terminal groin would alter the
shape and the location of Oregon Inlet. When the terminal groin is removed, the
ocean shoreline could respond initially by adjusting back to a position that
corresponds to a continuation of historic trends. This means that substantial
shoreline erosion could occur on the northern end of Pea Island. As noted in the
FEIS, the Pea Island shoulder might migrate south nearly 2000 feet to assume
an average width similar to those prior to the construction of the terminal groin.
This represents a loss of well more than half of the Piping Plover Critical Habitat
on Pea Island. Over time it is likely that advanced shoreline erosion and loss of
dunes would decrease the area of Piping Plover Critical Habitat. Should the inlet
move as much as 8,000 feet south of the current location, almost all of the
current land area on Pea Island that is designated as Critical Habitat is expected
to be lost.
All Parallel Bridge Alternatives (including the Phased Approach Alternative and
the Road North/Bridge South Alternative) would replace the Bonner Bridge on an
alignment that is nearly identical to the existing Bonner Bridge alignment. FHWA
and NCDOT believe that although the permit may need modification, which
would be negotiated with the USFWS, the Parallel Bridge Alternatives would not
trigger termination of the permit by its terms. Therefore, the analysis of
environmental impacts for all of the Parallel Bridge Alternatives assumes that the
terminal groin would remain in place.
As between the Phased Approach/Rodanthe Bridge Alternative and the Road
North/Bridge South Alternative, the Road North/Bridge South Alternative is
expected to have less impact on the critical habitat of the wintering piping plover.
This is because the Phased Approach/Rodanthe Bridge Alternative has NC 12
remaining in the existing road easement, while the Road North/Bridge South
Alternative has NC 12 (including the Bonner Bridge) moved further from the
designated critical habitat. Therefore, the Road North/Bridge South Alternative is
expected to reduce the effects of the project on the critical habitat by providing
more physical separation between the road and the critical habitat.
C. Information about the History of the Road and the Refuge/Seashore
FHWA regulations require the NCDOT to certify right of way as part of the
construction authorization process. Therefore, FHWA requested the NCDOT
research the title of the NC 12 easement and the Refuge because the road has
been relocated within the Refuge on several occasions. As a result of this effort,
FHWA and NCDOT found information documenting the existence of easements
for public roads dating back to the time when the Refuge and Cape Hatteras
National Seashore were established.
A brief summary of the history is provided here. Additional details can be found
in Appendix B. FHWA and NCDOT acknowledge that while a large volume of
historical material was found, not all documents one could expect to have existed
could be located. On March 19, 2009 the information in Appendix B was
provided to the USFWS for review and comment. So far, no comments or
additional documents have been received.
Before there was a Refuge or a National Seashore, residents of the Outer Banks
villages acquired cars for transportation. Starting in the 1920s, cars were ferried
across Oregon Inlet and other island breaches, first by private toll operators and
then by the State. The U. S. Government assisted in the ferry operations by
providing U. S. Navy ships to the fleet. Beginning around 1934 and ending by
around 1941, the Civilian Conservation Corps enhanced the dunes, making them
higher and steeper to protect the road on the backside of the dunes. . The
official state highway map printed in 1938 shows an unimproved road mapped
through the entire length of the project area. The same year, a condemnation by
the U. S. Department of Agriculture for the newly established Refuge included an
express reservation of existing public highways. In 1939, the North Carolina
legislature created a Seashore Commission to acquire parkland for creation of a
future Federal park in the Outer Banks that would include the Refuge. The
legislation included a requirement that the State Commission must ensure the
State's right to maintain existing roads and provide new roads as needed for its
citizens. Thousands of acres assembled by the State Commission in the 1940s

and 1950s were accordingly donated to the United States subject to express
reservations for North Carolina to maintain and relocate public roads as needed.
Beginning in 1951 and continuing through 1954, the road across the Refuge was
re-aligned and paved by NCDOT. Congress authorized USDOI to convey a
permanent highway easement to NCDOT for the right of way. In 1962, Congress
authorized USDOI to contribute $500,000 towards the construction of Bonner
Bridge by NCDOT, "to be maintained by the State as part of its public road
system." Additional Federal funds were provided by the Bureau of Public Roads
(FHWA's predecessor agency), with the remainder from the State of North
Carolina. The unusual financing of Bonner Bridge was explained in the
accompanying Senate Report: "contrary to the practice in many other national
park system areas, the road system within the Cape Hatteras National Seashore
Recreation Area was constructed and is maintained at the sole expense of the
State and that all the land now owned by the United States within the recreation
area was donated by citizens of the State and others." Congress passed this law
in spite of a letter from the Secretary of USDOI questioning whether the Bonner
Bridge would conflict with the preservation of those portions of the Seashore
designated for wildlife as opposed to recreation. In 1963, 1967, 1988, and 1995,
in coordination with USDOI the NCDOT relocated portions of NC 12 within the
Refuge as the shoreline eroded. Compatibility determinations for road
easements have been required since the National Wildlife Refuge System
Administration Act of 1966. In 1989, the USFWS permitted NCDOT to construct
the terminal groin, outside the NC 12 easement, to protect the roadway
approaches and southern abutment of the Bonner Bridge. An accompanying
letter expressed the USFWS Regional Director's view that "it is in our mutual
interest to work concertedly" and a need "to insure that the future highway
corridor will not only fully consider human transportation needs, but will, at the
same time, be compatible with long-range goals of the Pea Island National
Wildlife Refuge and Cape Hatteras National Seashore Recreation Area."
Taken together, the history demonstrates that the Federal and state governments
preserved the Outer Banks with an understanding that vehicular passage would
be accommodated, and that the vehicular passage has historically not been fixed
to one location. Rather, the vehicular passage has evolved in response to
advances in highway construction and in response to the forces of nature.
Further, the history indicates that the Refuge, National Seashore, paved road,
and existing Bonner Bridge were jointly planned and developed by the Federal
and state governments working togetherto preserve the land and wildlife while
maintaining a right of way for safe and efficient vehicular transportation.
The history influenced FHWA's re-evaluation of the Preferred Alternative and
LEDPA. The 80+ years of vehicular passage across the dynamic island
landscape does not support a view that Section 4(f) now requires either removal
of NC 12 from the Refuge or that NC 12 can not be relocated once again to safer
ground within the Refuge. To the contrary, the long history of shifting the road's
path to maintain a safe and efficient vehicular passage in response to natural
forces means that relocating the road is not counter to Section 4(f)'s preservation
purpose because the vehicular passage has always co-existed with the Refuge
and Seashore. Rather, Section 4(f) directs us to relocate the road in a manner
that best minimizes harm to the important features, activities, and attributes of
the Refuge and Seashore. In this vein, FHWA re-considered the wisdom of
rigidly adhering to the current alignment by elevating NC 12 on a high structure
through the beach and expected future surf zone.
D. Section 106 Determinations
In response to comments received on the FEIS, FHWA reassessed effects for
the Refuge and the (former) Oregon Inlet Coast Guard Station. Regarding the
Coast Guard Station, FHWA has not changed any effects determinations. All
alternatives currently are still anticipated to have an Adverse Effect on the Coast
Guard Station. Recently, the NC Aquariums Division (responsible for oversight
of the property) has provided their opinion that all alternatives that assume
retention of the terminal groin should be No Effect. FHWA is currently reviewing
this information and will decide whether we will modify any of our effects
determinations in light of these views.
Regarding the Refuge, FHWA has made the following change to its effects
determinations effect:
The Pamlico Sound Bridge Alternatives will have an Adverse Effect on the
Refuge (this is a change from the previous No Effect determination). The reason
for this change is the consideration of how the removal of the terminal groin
(reasonably expected with the selection of either of the Pamlico Sound Corridor
Bridge alternatives), along with NCDOT's expected discontinuance of
maintenance of the dunes and its abandonment of existing NC 12, thereby
allowing natural coastal processes to occur, would adversely affect the resource.
While the State Historic Preservation Office has not concurred with this revised
effects determination, the Advisory Council on Historic Preservation (ACHP)
indicated that it's reasonably foreseeable that this alternative will result in the loss
of man-made features within the Refuge that contribute to its as a historic
property. The ACHP has agreed with FHWA and NCDOT on the Adverse Effect
determination.
Further consultation will be necessary to complete the Section 106 process. A
Memorandum of Agreement will be required among the State Historic
Preservation Office, the Advisory Council on Historic Preservation, FHWA,
NCDOT, and Consulting Parties (which includes the Refuge) to resolve adverse
effects to complete the Section 106 process.
III. How Does the New Information Affect Our Decision?
A. Rodanthe Historic District & Chicamacomico Lifesaving Station Effects
Determinations
Previously, the Phased Approach/Rodanthe Bridge Alternative was determined
to have an Adverse Effect on the Rodanthe Historic District and Chicamacomico
Lifesaving Station in the FEIS. Design changes were made to minimize impacts
as discussed in the previous section. Design changes were also made for the
Road North/Bridge South alternative as discussed previously. These changes
were shown and discussed with the State Historic Preservation Officer, the
Advisory Council for Historic Preservation and other consulting parties. Based
on these design changes, the NCDOT and FHWA determined that all alternatives
would have No Adverse effect on the Rodanthe Historic District and
Chicamacomico Lifesaving Station. Consulting parties concurred with this
decision on March 24, 2009.
B. Pea Island National Wildlife Refuge
This historical review of how present day NC 12 and the Refuge/Seashore have
developed together led FHWA and NCDOT to reassess the prudence of staying
within the bounds of the existing easement at all costs. The previously perceived
need to strictly stay within the existing easement -- which significantly influenced
the selection of the Phased Approach/Rodanthe Bridge Alternative as the
LEDPA/Preferred Alternative -- is an artificial and imprudent constraint that is
inconsistent with the mandate of Section 4(f) to minimize harm to Section 4(f)
property. As has occurred throughout the history of the National Seashore and
Refuge, a prudent Bonner Bridge Replacement Alternative can be provided that
maintains the transportation need for a safe NC 12 while at the same time
protecting the important activities, features, and attributes of the Section (4f)
property.
Road North/Bridge South- Avoid Ponds Alignment (Figure 4 and Appendix D)
The Road North/Bridge South Alternative, as documented in the FEIS, was
determined to have an Adverse Effect (under Section 106) on the Refuge, since
the proposed relocation of NC 12 would displace approximately 23 acres of the
1,000 acres of impoundments in the northern part of the Refuge. NCDOT
prepared a revised alignment that completely avoided intrusion into the
impoundments; with the "Avoid Ponds Alignment" of the Road North/Bridge
South Alternative, this section of the road would be located east of the
impoundments and would consist of an at-grade roadway of the same right of
way width and the same number of lanes as the original Road North/Bridge
South alternative for a five-mile long stretch, as shown on Appendix D. Because
the Avoid Ponds Alignment would be impacted by the future predicted shoreline
migration sooner than the original Road North alignment, it is assumed that .

dunes (approximately 10 feet in height) would be needed eventually for the entire
length of roadway in front of the impoundments, beginning in approximately
2020. For comparison, the original Road North roadway included just three short
sections of constructed dunes (also 10 feet in height); the first also needed
around 2030.
The Oregon Inlet crossing, the southern Refuge stretch of NC 12 that would
remain in place and the "Bridge South" (including the Rodanthe revision noted
previously) sections would all be the same as with the original Road North/Bridge
South Alternative.
Though the proposed Avoid Ponds Alignment was developed as possible
mitigation for the Adverse Effect to the Refuge, the Road North/Bridge South
Alternative with the Avoid Ponds Alignment was found to still have an Adverse
Effect on the Refuge during recent meetings with the SHPO and the Advisory
Council on Historic Preservation. The Adverse Effect determination was due to
the continued presence of a bridge in the southern portion of the Refuge, which
would be out of character with the existing visual landscape in that area.
However, the Avoid Ponds Alignment does substantially minimize impacts to the
man-made impoundments that serve as habitat for migratory waterfowl and
substantially reduces the visual impacts to the Refuge facilities in the northern
portion of NC12 due to the alternative being at-grade.
IV. Why do NCDOT and FHWA Now Believe that the Road North/Bridge
South Alternative is the LEDPA?
FHWA and NCDOT have re-evaluated the Alternatives. FHWA and NCDOT are
now proposing that the Road North/Bridge South Alternative is the Least
Environmental Damaging Practicable Alternative (LEDPA). The reasons for this
determination are listed below.
1. Improved Public Access to the Refuge - The Road North/ Bridge South
Alternative provides significantly greater visitor access in the northern
portion of the Refuge, which is where all of the visitor facilities are located
and where the historic man-made CCC structures are easily and safely
accessible to the public. The impoundments are essential to the USFWS
fulfilling its mission and refuge originating purpose, of providing habitat for
migratory waterfowl. According to.the Pea Island National Wildlife Refuge
Comprehensive Conservation Plan, increased public use opportunities
were a factor in the selection of the preferred Refuge management
alternative. In addition, this Alternative allows for a potential of a portion of
the existing Bonner Bridge to be retained as a fishing pier.
2. Consistency with Historic Landscape - The Road North/ Bridge South
Alternative will be at-grade through the northern portion of the Refuge
adjacent to the impoundments and associated dikes that were constructed

by the Civilian Conservation Corps (CCC) in the 1930s. The Refuge is a
site eligible for the National Register of Historic Places both because of its
association with the CCC, and as an excellent example of an early 201h
century wildlife sanctuary eligible in the field of the conservation
movement. In its FEIS comments, the NCDCR expressed great concern
about the impact of the former LEDPA/Preferred Alternative's looming
elevated structure on the historic setting, which is not a mitigable impact.
Since Road North/Bridge South would be at grade through most of the
refuge, particularly in the area of the dikes and ponds, visitors would be
able to continue to experience the historic landscape as it has existed for
the past fifty years. In addition, with the at-grade alignment, NCDOT
would be able to add interpretation of the historic landscape and CCC
activities that would improve the visitors' understanding of this important
Refuge attribute, if such a strategy is agreed upon as part of the Section
106 process.
3. Road North/Bridge South would not have any significant impact on the
wildlife features of the Refuge that could not be minimized through a
mitigation plan. In order to protect the road from the eroding shoreline,
NC 12 has been relocated to the west of the original easement in the
Refuge four times in the past without any significant environmental
impacts. One of the recorded relocations is located at the southern
terminus of the existing Bonner Bridge. The lengths of the remaining
three relocations were: approximately 1.5 miles, and 1.2 miles, and 3.3
miles. The most recent relocation, which occurred in 1995, was the 3.3
mile-long road relocation. The USFWS made a Finding of No Significant
Impact under NEPA and a finding of compatibility under the Refuge Act for
this NC 12 relocation. While the Road North/Bridge South
Alternative would involve a longer distance of relocation, the types of
impacts would be the same as what occurred with the earlier relocations.
Moreover, NCDOT pledges to work with the Refuge to develop adequate
plans to avoid, minimize, mitigate all impacts to the Refuge as part of the
Road North/Bridge South Alternative, and will meet all reasonable
conditions and stipulations to protect the Refuge as part of the Federal
land transfer of the relocated easement area.
4. Substantial Cost Difference - Cost is a factor in determining the
practicability of an alternative in accordance with Section 404(b) (1).
Guidelines. The Road North/Bridge South Alternative remains
substantially less expensive than the Pamlico Sound Corridor and other
Parallel Bridge Corridor Alternatives. The Road North/Bridge South
Alternative is approximately $550 million less expensive (when
considering the total highway costs through the year 2060) than the
Phased Approach/ Rodanthe Bridge Alternative. In addition, the Road
North/Bridge South Alternative can be financed by constructing the
Alternative in phases, unlike either of the Pamlico Sound Bridge Corridor
alternatives.
5. Less impact on waterfowl - USDOI expressed concerns about the Phased
Approach/Rodanthe Bridge Alternative causing shading effects from the
bridges. The agency indicated that the shading would affect nesting,
foraging, and roosting habitat quality for some migratory birds, and nesting
quality for sea turtles. The Road North/Bridge South alternative
addresses concerns about shading because it is at-grade in the northern
part of the Refuge, adjacent to the impoundments that serve as habitat for
waterfowl. In addition, the Road North/Bridge South Alternative would
remove the road from the southern portion of the Refuge, creating
roadless area.
6. Shorter construction duration/less construction impacts - For the Phased
Approach/Rodanthe Bridge alternative, several agencies have expressed
concern about constructing bridges within the easement for NC 12 that
would ultimately be in the surf zone. In addition, the shoreline bridges are
estimated to take well over a decade to complete. The relocation of NC
12 at grade as proposed with the Road North/Bridge South Alternative in
the northern portion of the Refuge can be done faster and less expensive
than constructing bridges in the NC 12 easement. Finally, for the Road
North/Bridge South Alternative, it would not be necessary to close NC 12
during construction, since traffic can continue to utilize NC 12 as the
relocated new roadway is being constructed.
A summary of all of the updated impacts associated with each alternative
included in the FEIS (as well as the new Road North/Bridge South- Avoid Ponds
Alignment) is included in Tables 1 to 7. Information that has been updated since
the publication of the FEIS is shaded in gray.
FHWA and NCDOT recognize that the Road North/Bridge South Alternative
dramatically increases the amount of wetland and open water impacts and
pledge to work with the merger team agencies on ways to reduce and provide
compensatory mitigation for these impacts (through bridging options, alignment
shifts, etc.), as has been done in the past. Though NCDOT and FHWA are
asking to revisit the LEDPA decision, a combined Concurrence Point 2A/3 could
be signed if additional bridging agreements are needed to concur on a LEDPA.
Though NCDOT developed the Road North/Bridge South- Avoid Ponds
Alignment in response to Section 106 concerns, a decision has not been made
whether or not to include the Avoid Ponds Alignment within the revised LEDPA.
Section 4(f) requires the FHWA to minimize harm to all of the protected features,
activities, and attributes of the Refuge property. Although the Avoid Ponds
Alignment appears to minimize harm to the historic features of the Refuge more
than the original Road North/Bridge South alignment, FHWA is looking to the
USFWS to provide input as to which of the two Road North/Bridge South
alignments would be least harmful to the recreational and conservation aspects
of the Refuge. Input is also welcome from the other merger team members to
help decide among the two alignment options.
To date, the analysis of the Road North/Bridge South Alternative has assumed
that construction of the entire Alternative would occur within a single construction
program. However, due to the changed economic conditions, NCDOT would
construct this Alternative in phases, with the Oregon Inlet Bridge being
constructed as Phase I. Subsequent phases would be implemented as coastal
conditions dictate.
V. What about the Pamlico Sound Corridor Alternative, Why is it Not the
LEDPA?
NCDOT and FHWA acknowledge the continued positions expressed by some
state and federal environmental resource and regulatory agencies in their
comments on the FEIS that the Pamlico Sound Bridge Corridor is the least
environmentally damaging alternative. While the Pamlico Sound Corridor
Alternative (also referred to as the Pea Island Bypass) avoids the Refuge, it was
previously determined to be not practicable because of its high cost and the
impossibility of financing a 17.5 mile-long bridge in a single construction phase
and a single construction contract. Nothing has changed since the publication of
the FEIS that would make it more feasible to construct the Pamlico Sound
Corridor Alternative. To the contrary, the U.S. and North Carolina economy have
deteriorated since August 2007 when this Alternative was found not to be a
practicable alternative. Nonetheless, in response to FEIS comments
recommending this alternative, FHWA has taken another very hard look at the
Pamlico Sound Corridor Alternative. After careful consideration, the position of
NCDOT and FHWA on this alternative has not changed since the initial LEDPA
decision; because of the high cost of the Pamlico Sound Bridge Corridor and the
lack of available funds to build a project at a cost of $1 billion or more in a single
TIP period under a single construction contract, the Pamlico Sound Bridge
Corridor is not practicable.
With respect to Section 4(f), FHWA considered USDOI's comment that Section
4(f) requires FHWA to select the Pamlico Sound Corridor Alternative. Section
4(f) regulations allow FHWA to approve the Pamlico Sound Corridor Alternative
only if it causes the "least overall harm in light of the statute's preservation
purpose." 23 CFR 774.3(c). The least overall harm determination requires
consideration of cost and ability to meet the purpose and need, along with five
other factors (23 CFR 774.3(c)(1)). FHWA and NCDOT will address the least
overall harm test in the revised Section 4(f) Evaluation as outlined in the "Next
Steps" section below.
VI. Next Steps
If a decision is made to revise the LEDPA/Preferred Alternative, FHWA and
NCDOT will do the appropriate amount of work to ensure compliance with all
applicable laws and regulations. Due to the comments received on the Section
4(f) Evaluation, the new information, and the additional Section 106 consultation
FHWA will complete a revised Section 4(f) Evaluation. The revised Section 4(f)
Evaluation will be provided for coordination and comment to the officials with
jurisdiction and to the USDOI, in accordance with the Section 4(f) regulation. No
additional or supplemental Environmental Impact Statements are currently
proposed. However, if the additional work reveals any significant environmental
impacts not evaluated in the FEIS, then a Supplemental FEIS would be
completed.
FHWA expects to issue a Record of Decision in the fall of this year. The merger
team will likely need to be reconvened prior to the Record of Decision in order to
update the Concurrence Point 2A/4A agreement signed in November 2008.
Because the CP 4A (Avoidance and Minimization) commitments are likely to be
the same for any Parallel Bridge crossing, it is anticipated that.this meeting would
focus on CP 2A for Phase I, particularly the southern terminus of the bridge.
Once the Record of Decision is issued, NCDOT would obtain all required permits
and Federal approvals for construction, and the design-build contract for Phase I
of the project would be let. FHWA would provide oversight on the procurement,
design, and construction of all phases. The timing of construction for project
subsequent phases would depend upon the occurrence of storms and the
shoreline erosion rates.
In recognition of the important resources that will be affected by the construction
of this project, a number of special measures are proposed to be taken to ensure
that the impacts of the project are adequately minimized and mitigated. FHWA
and NCDOT propose to work with the appropriate environmental resource
agencies on mitigation strategies for all project phases as part of the Section
106, Section 4(f), and Section 404 processes. Examples of the types of possible
mitigation measures that could be included are the projects identified along the
NC12 corridor within the Pea Island National Wildlife Refuge Comprehensive
Conservation Plan (9/06) and the Corridor Management Plan for the Outer Banks
Scenic Byway (12/1/08).
The project mitigation strategies would be finalized prior to the Record of
Decision. NCDOT would include the mitigation commitments, as well as all
applicable permit conditions and stipulations, in the contract specifications.
NCDOT would also track the mitigation commitments, permit conditions, and
stipulations to ensure that they are adhered to during final design engineering
and construction. If any permit modifications or changes to the mitigation
strategies became necessary as a result of the final design engineering process,
the merger team would be consulted with. In addition, the merger team
members would have an opportunity to review and comment on the final design
prior to the authorization of construction. These extra steps would ensure that
the Refuge, National Seashore, and other important resources are protected.

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LEGEND
r Pamlico Sound Bridge Corridor
Parallel Bridge Corridor
® Known Submerged Aquatic Vegetation
Q Pea Island National Wildlife Refuge
0 Hot Spots
0 National Oceanic and Atmospheric
Administration Navigation Chart -
Project Area Depths less than 6 feet (1.8m)
e 1 2W
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REPLACEMENT BRIDGE CORRIDOR ALTERNATIVES 1
71

,ac
. A
0 0.1 0.2 KM
0 0.1 0.2 Mile
PAMLICO SOUND BRIDGE CORRIDOR - RODANTHE Figure
CURVED AND INTERSECTION TERMINUS OPTIONS 2
I'
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LEGEND
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Figure
PARALLEL BRIDGE CORRIDOR WITH NOURISHMENT 3

!stand
ROAD NORTH/BRIDGE SOUTH
ALTERNATIVE REVISED TO AVOID PONDS v1 \`
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LEGEND
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0 1 2KMKM _ RODANTHE
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PARALLEL BRIDGE CORRIDOR WITH NC 12 RELOCATION Figure
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Duck
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9
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LEGEND
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RODANTHE
PARALLEL BRIDGE CORRIDOR WITH NC 12 RELOCATION Figure
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LEGEND
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PARALLEL BRIDGE CORRIDOR WITH Figure
PHASED APPROACH 6
Pea Island
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Potential Short-Term Location
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RODANTHE
PARALLEL BRIDGE CORRIDOR WITH PHASED APPROACH Figure
r PLUS REFUGE LANDSCAPE FEATURES 7
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Potential Summary of Merger 01 Dispute Resolution Board Meeting
8.27 2007
Issue: Concurrence Point 3 - Least Environmentally Damaging Practicable
Alternative (LEDPA)
Bonner Bridge : B-2500
The Sponsoring Agencies (hereafter referred to as agencies) of Merger 01
have reached concurrence on an approach to advance the Bonner Bridge
projectand provide a replacement of the Bonner Bridge essentially within
the same alignment or with minor changes to the current alignment as
presently outlined in the Parallel Bridge alternates.
- The agencies concur that a Final Supplemental Environmental
Impact Statement needs to address all connnents received to date and a
Record of Decision completed as soon as possible.
- Concurrence on this point does not imply that state or federal
permits or other approvals for this activity will be granted: rather, it simply
means that the agencies agree that, given the information provided, the
Phased Approach/Bridge Alternative can be identified as the LEDPA in the
NEPA/404 document.
The environment in the study area is complex and constantly changing. The
ability to predict the effect of Mother Nature's future impact on the study
area is extremely difficult to quantify. The shoreline alone is continually
moving and unexpected storms will exacerbate the uncertainties. The
environment present today can be changed overnight by Mother Nature.
The environment outlined in an environmental document at the time of
approval will likely change before permits are requested.
Based on the information available to the agencies as of today, the agencies
concur in the following:
The Pamlico Sound Bridge corridor is not practicable,
based upon cost estimates, and thus is not the LEDPA.
The Parallel Bridge Corridor contains various
alternates, all of which include a short parallel
replacement structure adjacent to the existing Bonner
Bridge. The agencies concur that Phase I of the project
should be to construct the replacement bridge within
this corridor as soon as possible. Every possible effort
needs to be made for the bridge touchdown point to stay
within the existing alignment on Pea Island. The
agencies agree, based upon the information available
today, Phase I should be advanced through the Merger
'01 Process in order to insure applicable permits and
other approvals can be granted when requested by
NCDOT.
Phase I alone as outlined above does not meet purpose
and need of the project. and thus additional phases of
work will be needed to meet purpose and need.
The agencies concur that the remaining phases of work
present substantial challenges before the appropriate agencies
will be satisfied in order to grant applicable permit and
approvals. It will be incumbent on NCDOT to provide the
necessary information to the permitting agencies to satisfy
their needs before permits and approvals are granted.
At the time of permit application, all reasonable, practicable
and feasible alternatives will be considered and evaluated for
each phase. This evaluation will include avoidance,
minimization, and compensatory mitigation considerations for
each selected alternative.
The NCDOT should finalize the Supplemental Draft EIS and
address all comments to date. It is expected that the Phased
Approach/Bridge will be identified in the Record of Decision
as the LEDPA. The agencies today are concurring this
alternate is the LEDPA, but with the clear understanding that
no permitting agency is bound by this concurrence to grant
permits or approvals for the entire LEDPA. To reiterate, the
agencies believe Phase I needs to be advanced through Merger
'01. Remaining phases beyond Phase I are more problematic
from a permitting aspect given the information available
today. These remaining phases of work in the Phased
Approach/Bridge Alternative indicate work on Pea Island will
be done within the existing easement via the construction of
short bridge segments, or other alternatives as determined at
that time. The agencies concur, based on the information
available today, they can not conclusively say that permits or
approvals will or will not be granted for these additional
phases. The agencies do agree that permits will not be granted
for these remaining phases of work until their applicable laws

and regulations have been satisfied. The agencies are reaching
concurrence on this approach for the purposes of advancing
the project to a ROD but are making it clear the remaining
phases of work may need further study after the ROD but
before any permits or approvals are granted.
One of the basic principles of Merger 01 is found in Paragraph B of the
Memorandum of Understanding that states:
Regulatory/Resource Agency participation in this process does not imply
endorsement of a transportation plan or project. Nothing in these procedures
is intended to diminish, modify, or otherwise affect the statutory or
regulatory authorities of the agencies involved. In the event of any conflict
between this process and other statutes or regulations, the statutes or
regulations control.
The Signatures of Sponsor Agencies Below Signify Agreement To the
A hnva Pnintc
William G. Laxton,
Deputy Secretary, North Carolina Department of Environment and Natural
Resources
William F. Rosser
State Highway Administrator,
?. O
S. Kenneth Jo Ay
Chief, Regulatory Division,
of Engineers
North Carolina Department of Transportation
mington District, United States Army Corps
Assistant Division Administrator, Federal Highway Administration North
Carolina Division
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