Statement of Work 9-25-2022.pdf

STATEMENT OF WORK

9-25-2023

Northern Michigan State Veterans Cemetery Crawford County, Michigan

PROGRAM VALIDATION, REQUIREMENTS, AND PROFORMA STUDY

1.0 BACKGROUND

1.1 Michigan is one four states in the nation that does not have a state operated veterans cemetery.

The other three, Florida, South Carolina, and Oregon are states that have Department of Veterans Affairs

National Cemeteries that provide substantial geographical coverage for veterans. Northern lower

Michigan by contrast, has a large geography of veterans that are underserved when applying the service area criteria of veterans having access to a veterans cemetery within a 75-mile radius of their home. Major metropolitan areas around the U.S. are presently served by national cemeteries with the remaining areas of veteran population being served by state operated veteran cemeteries that have been developed through the National Cemetery Administration’s (NCA) state grant program.

State Senator Curt Vanderwall and others introduced Senate Bill 971 that would, “provide for a military veterans cemetery, to create the Veterans Cemetery Fund, to authorize the purchase of land and to provide for the powers and duties of certain state governmental officers and entities.” This statement of work is the first step required to provide the framework for the development of a new state veterans cemetery in northern lower Michigan through the NCA’s Veterans Cemetery Grants Program.

Through the system of state operated veterans cemeteries, the NCA extends the mission to honor veterans with final resting places in state shrines and with lasting tributes that commemorate their service to our Nation. The NCA assists state and tribal organizations in providing burial benefits to veterans through the Veterans Cemetery Grants Program; allowing the state cemeteries to furnish headstones and markers for graves in national, federally administered state, tribal, and private cemeteries; mark veterans' graves with a government-furnished headstone, marker or medallion and provides Presidential Memorial Certificates in recognition of their service to a grateful Nation; and administers grants for establishing or expanding state and tribal government veterans cemeteries.

2.0 PROJECT GOALS

The purpose of this project scope through the review of existing data, interviews, and analysis is to further define the program and needs requirements, validate the operational and financial characteristics of establishing the first operationally sustainable state veterans cemetery in Michigan through a written requirements and validation study that includes an operational proforma. This study is the first of several milestones that will result in the establishment of the first state veterans cemetery in Michigan. This is not a master plan or design study but a higher-level due diligence program and operation study.

3.0 SITE LOCATION

The site to be established defined in Michigan Senate Bill 971 is to be, “in a county with a population of not less than 12,500 and not greater than 13,500 that is suitable for a veterans cemetery or designate land owned by this state under the jurisdiction of the department in a county with a population of not less than 12,500 and not greater than 13,500 as a veterans cemetery.” This location is further supported by the NCA goal of being able to provide burial benefits to veterans within a 75-mile radius of their homes.

This translates into a geographical spacing of 150 miles between NCA and NCA grant funded state cemeteries. Eligible land in Crawford County is the intended focus of this study following application of this criteria. While this study focuses on filling the needs gap in lower northern Michigan, it is also intended to identify and provide a program for a future development of additional future cemeteries in Michigan’s upper peninsula using the same geographical spacing criteria. This study will focus on a primary site and an alternative site with each comprising approximately 100 ac. in size in Crawford County for program suitability. Location information will be provided to the Consultant following award.

4.0 PROGRAM

Based on initial analysis provided by the Crawford County Cemetery Advocacy Committee, data provided through the National Cemetery Administration State Cemetery Grants Program, and the Michigan Department of Military and Veterans Affairs, it is anticipated that the cemetery will support 500 annual first interments on 100 acres employing 4-6 full time employees. Of the total build out acreage, only the burial and high-profile areas are to be irrigated and maintained turfgrass following the NCA design guide.

A typical phase development should provide 10 years of inventory for first interments. The preliminary estimate for a Phase I would provide for a first phase inventory development of 5000 first interments/burial sites. The burial types that are to be considered along with distribution are as follows:

In Ground Double Depth Lawn Crypts (3’X8’) - 52% In Ground Sites for Cremated Remains Containers (3’X3’) - 17% Columbarium Niches for Cremated Remains Containers - 32%

This distribution above is based on actual rates from another comparable state cemetery in the region.

Burial type preferences are tracked by the NCA and do not always follow the national trends. The same can be true for cremated remains where nationally, the 2020 percentage rates vary state by state from a high of almost 82% (Nevada) to a low of 29% (Mississippi). The Consultant is to validate the distribution based on actual burial trends at Fort Custer National Cemetery and Great Lakes National Cemetery, burials at surrounding state veterans cemeteries, and non-metropolitan regional trends where there may be differing preferences (https://www.cremationassociation.org/page/IndustryStatistics).

The variable rates may also be influenced by the difference in preferences outside major metropolitan areas.

Other burial type preferences such as green burial and ossuaries have been limited among veterans cemeteries.

The initial Phase I program will include the full development of the following features and facilities:

• Administration Facility/Public Information Center

• Committal Shelters

• Maintenance and Storage Facilities (including Honor Guard Facilities)

• Flag Assembly Area

• Memorial Walk/Pathway

• Avenue of Flags

• Monumental Entrance

The underlying theme for this cemetery is one of a sustainable operation. It is envisioned that the cemetery would operate utilizing proven solar/wind energy systems to support daily facility operation and the electric vehicle and equipment of the cemetery. It is not intended for the cemetery operation and land to become a power generator source beyond that which is needed for the cemetery itself. The premiums or specialized costs associated with this approach shall be identified at the order of magnitude level along with potential returns/savings in carbon reduction compared to a conventional development.

5.0 PROGRAM VALIDATION AND NEEDS REQUIREMENTS STUDY

A formal written report with supporting tables and graphics will be prepared that includes the following:

• Summary of the background and research completed to date.

• Confirmation, update, and validation of the veteran data, location, and death rates for the following regions:

o The project target geography of northern lower Michigan including the counties within a 75-mile radius of the Crawford County Seat (Grayling) o The upper peninsula of Michigan.

• Description of the organizational structure of the proposed State Veterans Cemetery and its relationship with other departments within the Michigan DMVA and the NCA including any periodic reporting requirements. Include the assumption that the operation and administration of the cemetery will be based out of Crawford County at the cemetery or Camp Grayling or a combination of both. Long term, future additional state veterans cemeteries would be run administratively from the Crawford County location. This would also include operational logistics support and temporary staff support for any surge in burials.

• Location Description and Physical Characteristics of each site compared against the program and related needs. Provide graphics to support the narrative and the information provided in Section 3 of this statement of work.

• Building and Burial Program and Characteristics

• Sustainability/Resilience concepts are to be considered for daily operations and in facility design.

• Pre-Planning and Predesign Requirements o Identify specific permits, approvals, special investigations that will be required before design commences.

• Project Development Checklist and Timeline o Generally, the process should reflect the NCA’s Six Step Process: Site Selection;

Environmental Assessment; Land Acquisition; Master Planning and Design Development;

Construction Documents Preparation; and Construction award and completion.

6.0 CEMETERY DEVELOPMENT AND OPERATIONS PRO FORMA

A financial analysis is to be developed that identifies the cost of the cemetery development, operations, initial funding sources, grant reimbursement, and expected annual state outlay. These elements are discussed in detail below.

6.1 Costs of Cemetery Development – This element will include opinion of costs for the initial studies, documents, and reports such as this and those required for the development of a Master Plan, Phase I Detail Design, and Construction Documents and Construction. The basis of this estimate will be the validated program, the typical site and building program allowances for grant reimbursement provided in 38 CFR Part 39, and the spatial relationships provided in Section 23 of the January 1, 2002 National Cemetery Design Guide (https://www.cfm.va.gov/TIL/NCA/dgNCA.pdf). The costs at this stage should be Class 5 Order of Magnitude level used for screening and feasibility.

Costs are organized by what is allowable and unallowable and are to be broken out as follows:

• Land, Structures, Right of Way Appraisals, etc.

• Architectural and Engineering Fees

• Other Architectural and Engineering Fees for special studies; geotechnical, irrigation/water supply, cultural resources etc.

• Project Inspection Fees

• Construction o Building Facilities o Site Development o Interment/Inurnment development

▪ Lawn Crypt Development

▪ Columbarium Development o Equipment including EV and Non-EV

• Contingencies

Alternative Methods of Delivery – The consultant is to examine and include a discussion for alternative project delivery through use of military engineering units that may be stationed at Camp Grayling for various training exercises and any associated cost recovery. The pros and cons that emerge from discussions with personnel at Camp Grayling are to be identified and included in the document.

6.2 Costs of Operations – This element will address the costs with the annual operation of the cemetery exclusive of grants or reimbursement. It is assumed that after initial establishment there will be 4-6 full time personnel: Cemetery Director/Superintendent, Cemetery Representative, Grounds/Burial Foreman, Grounds Laborer (2). These positions closely correspond to the NCA positions.

Costs are to be organized and broken out as follows:

• Staff Labor by type inclusive of Fringe etc.

• Utilities (Power, Data, Communications etc.)

• Fuel

• Building and Office Supplies

• Facility Maintenance & Repair Contracts (HVAC and other specialized systems such as solar)

• Equipment Maintenance/Supplies (Consumables)

• Agronomy and Horticultural Service Contracts (turf and tree fertilization and weed control)

• Snow and Ice Management Supplies.

For future phase projections, some elements may be presented as a per acre unit cost or lineal foot costs.

Initial Funding Sources – Identify the costs that the State of Michigan will need to initially fund and for what period before the reimbursement may be obtained from the NCA grants program. Identify any unallowable amounts that would need to be fully funded by the state under the current grant program policies. Consider that there will be a lag in reimbursements until the cemetery facility is fully commissioned and staffed. It is anticipated that the design through construction period will be 3-4 years with the first interments commencing in year 4.

Grant/Interment Reimbursement – Identify and confirm the limits of the reimbursement for design engineering, construction, and initial equipment provisioning. Also identify the reimbursement schedule.

Confirm the current rates of reimbursement for each interment.

Post Development Estimated Annual Outlay – Develop an operating cost model that can be used to inform annual budget requests. This cost model should identify the total annual operating cost by major category and the reimbursements that would be provided by the VA for interments.

7.0 DELIVERABLES

7.1 Meetings:

A Kick-Off Meeting will be held to review the awarded scope, expectations, schedule communications format, and other contract housekeeping. The meeting will be held in Crawford County with a two-week minimum notice. The Consultant team members to attend should include at a minimum the Project Manager, Financial/Cost Analysis, and Project Planner.

Review Meetings:

Conference calls will be held 21 days following each stated progress submittal to discuss the review comments. The consultant will be responsible for documenting, tracking, and verifying that all comments have been addressed. The Consultant will identify comments that require deconflicting by the Review Team. The consultant will have no responsibility for deconflicting comments.

7.2 Presentations

Progress Submission Briefing – Each submission will be accompanied by a briefing to the Review Team that highlights the major components of the submission and any significant findings. It is not intended to be an exhaustive presentation but one where the Consultant can highlight any specific areas of concern that they would like the review team to pay particular attention. These briefings can be held virtually.

Pre-Final - A pre-final in-person presentation will be made to the Client Team in Crawford County.

The Consultant should have appropriate team members attend to answer questions related to the study and pro forma.

7.3 Report/Formal Submissions

• Program Validation and Needs Requirements Study: 25%, 90% (prefinal), Final Submittals

• Cemetery Development and Operations Pro Forma: 50%, 90% (prefinal), Final

• Power Point Presentation – Pre-Final and Final Submittals

• Meeting Minutes/Notes – To be compiled by the Consultant and distributed to the entire team within 72 hours of the meeting’s completion.

Submittal and Format Notes:

• Report Submittals to be made in PDF digital format.

• Final Report Submittal to be made in both PDF and MS WORD format. Tables and spreadsheet exhibits may be submitted as Excel files as appropriate.

• Final Power Point Submission to be made in both PDF and WORD Format.

• Prior to all submissions, the deliverables are to have undergone the Consultant’s internal quality review process.

8.0 CLIENT TEAM

• Michigan Department of Military and Veterans Affairs – Team Lead COL Scott L. Meyers, Commander Camp Grayling.

• Michigan Department of Military and Veterans Affairs – Project Manager

• Crawford County Cemetery Advocacy Committee:

o Carey Jansen, Crawford County Commissioner District #5 o Wayne Koppa, Veteran and Former Commander Camp Grayling o William Romzick, ASLA – VA Cemetery Subject Matter Advisor