Record of Decision for NC 12 – Pea Island Long-Term Improvements Bonner Bridge Replacement Project Phase IIa Federal‐Aid No. BRNHF‐0012(55) NCDOT Project Definition: 32635 TIP Project No. B‐2500A Dare County, North Carolina Federal Highway Administration North Carolina Department of Transportation October 2013 Table of Contents 1.0 DECISION............................................................................................................................ 1 2.0 PROJECT HISTORY .......................................................................................................... 6 2.1 2010 Record of Decision .......................................................................................... 6 2.2 2013 Phase IIa Environmental Assessment ......................................................... 6 3.0 ALTERNATIVES CONSIDERED ................................................................................... 7 3.1 Phase IIa Alternatives Studies ............................................................................... 8 3.1.1 Parallel Bridge Corridor with NC 12 Transportation Management Plan Alternatives Considered ............................................ 8 3.1.2 Other Alternatives Considered .................................................................. 9 3.2 Phase IIa Basis for Selection of the Selected Alternative ............................... 13 3.3 Description of the Phase IIa Selected Alternative ........................................... 15 3.4 Cost Estimate for the Phase IIa Selected Alternative ...................................... 18 3.5 Summary of Impacts for the Phase IIa Selected Alternative ......................... 20 3.5.1 Phase IIa Selected Alternative Impacts ................................................... 20 3.5.2 Effect of Implementing Phase IIa Selected Alternative on the Impacts Associated with All Phases of the PBC/TMP Alternative ................................................................................ 28 3.6 Agency Coordination ............................................................................................ 30 3.6.1 January 30, 2013 Merger Team Meeting ................................................. 30 3.6.2 Endangered Species Consultation (Section 7) ........................................ 33 3.6.3 Essential Fish Habitat Coordination ....................................................... 34 3.6.4 Section 106 Coordination .......................................................................... 35 3.6.5 Other Agency Coordination ..................................................................... 35 4.0 SECTION 4(F) STATEMENT ......................................................................................... 35 5.0 MEASURES TO MINIMIZE HARM ............................................................................ 38 5.1 Project‐Specific Commitments ............................................................................ 39 5.2 Relocations .............................................................................................................. 39 5.3 Parks and Recreation Facilities ........................................................................... 39 5.4 Cultural Resources ................................................................................................. 39 5.5 Wetland Impacts .................................................................................................... 40 5.6 Protected Species Impacts .................................................................................... 41 5.7 Construction Impacts ............................................................................................ 42 Record of Decision iii NCDOT TIP Project Number B-2500A Table of Contents (concluded) 5.8 Mitigation ................................................................................................................ 42 6.0 MONITORING AND ENFORCEMENT PROGRAM ............................................... 43 7.0 CORRECTIONS TO THE 2013 PHASE IIA EA .......................................................... 43 8.0 RESPONSE TO COMMENTS ON THE 2013 PHASE IIA EA ................................. 44 9.0 SECTION 106 PROGRAMMATIC AGREEMENT .................................................... 45 10.0 NEXT STEPS ...................................................................................................................... 46 10.1 Phase IIa ................................................................................................................... 46 10.2 Later Phases (NC 12 Transportation Management Plan) ................................ 46 10.3 Permits and Approvals ......................................................................................... 47 10.3.1 Phase IIa ...................................................................................................... 47 10.3.2 Later Phases (NC 12 Transportation Management Plan) ..................... 49 11.0 CONCLUSION .................................................................................................................. 49 APPENDIX A PROJECT COMMITMENTS ................................................................. A‐1 APPENDIX B AGENCY, NON‐GOVERNMENTAL ORGANIZATION, AND PUBLIC OFFICIAL COMMENT LETTERS ON THE PHASE IIA ENVIRONMENTAL ASSESSMENT ...................B‐1 APPENDIX C RESPONSE TO COMMENTS ON THE PHASE IIA ENVIRONMENTAL ASSESSMENT ................................................... C‐1 APPENDIX D NEPA/404 CONCURRENCE FORMS, MERGER MINUTES, AND AGENCY CORRESPONDENCE ................................................ D‐1 APPENDIX E FIRST AMENDMENT TO SECTION 106 PROGRAMMATIC AGREEMENT ............................................................................................ E‐1 Record of Decision iv NCDOT TIP Project Number B-2500A List of Tables Table 1. Revised Impacts to Biotic Communities in the Phase IIa Project Area .......... 24 Table 2. Project Mitigation Measures ................................................................................ 43 List of Figures Figure 1. Parallel Bridge Corridor with Transportation Management Plan Alternative ............................................................................... 3 Figure 2. Phase IIa Selected Alternative ................................................................................ 4 Figure 3. Phase IIa Bridge Typical Section ......................................................................... 17 Figure 4. New Inlet Boat Ramp Access Road ..................................................................... 18 Record of Decision v NCDOT TIP Project Number B-2500A 1.0 Decision This document records the decision for the proposed NC 12—Pea Island Long‐Term Improvements (Bonner Bridge Replacement Project Phase IIa) in Dare County, North Carolina and re‐affirms the Selected Alternative (Parallel Bridge Corridor with Transportation Management Plan [PBC/TMP] Alternative) presented in the 2010 Record of Decision for the Bonner Bridge Replacement Project (B‐2500). Bonner Bridge Replacement Project Phases I, IIa, and IIb are included in the North Carolina Department of Transportation’s (NCDOT) approved 2012 to 2020 and the draft 2013‐ 2023 State Transportation Improvement Program (STIP) as Project Nos. B‐2500, B‐2500A, and B‐2500B. The project is broken into phases in the NCDOT’s 2013 to 2023 Draft STIP. The NC 12 – Pea Island Long‐Term Improvements recorded in this document are designated in the Draft STIP as segment A of project B‐2500 or B‐2500A. In accordance with the National Environmental Policy Act (NEPA) and the requirements set by the Council on Environmental Quality (CEQ) (40 CFR [Code of Federal Regulations] 1505.2), this Record of Decision (ROD) for Phase IIa also summarizes the following: Alternatives considered for the proposed project by NCDOT and the Federal Highway Administration (FHWA) and the basis for selection, description, cost estimates, and impacts of the Selected Alternative The Section 4(f) statement Measures adopted to avoid and minimize harm Monitoring and enforcement programs for the implementation of mitigation measures Public and agency comments on the February 2013 Phase IIa Environmental Assessment (EA) The replacement of Bonner Bridge over Oregon Inlet is Phase I of Project No. B‐2500. Bonner Bridge, built in 1962, is approaching the end of its reasonable service life. Bonner Bridge is a part of NC 12 and provides the only highway connection between Hatteras Island and Bodie Island. The replacement structure will serve the same function. The project also includes the NC 12 corridor between the community of Rodanthe and Oregon Inlet, a section of roadway that is at risk because of shoreline erosion (with potential for storm overwash and road loss), five locations considered geologically susceptible to breaching, and which has experienced extensive recent damage as a result of Hurricane Irene in 2011 and Hurricane Sandy in 2012. Phase IIa consists of long‐term improvements in the Pea Island inlet area. The entire Bonner Record of Decision 1 NCDOT TIP Project Number B-2500A Bridge Replacement Project (B‐2500), including Phase IIa as discussed in this Phase IIa ROD, will provide a long‐term approach to minimizing that risk through 2060. The Bonner Bridge Replacement Project (B‐2500) project area is in Dare County in eastern North Carolina, and encompasses northern Hatteras Island, the southern end of Bodie Island, and regions of the Pamlico Sound. As set forth in the 2010 ROD, the Selected Alternative for