TAB8_818CM3034_BD_BOD_InfoOnly.pdf

Massachusetts National Cemetery Inground Cremains Burial Section

VA Project No. – 818CM3034

Bourne, Massachusetts

Final Basis of Design Report

Prepared for:

Department of Veterans Affairs

September 2020

*FOR INFORMATION ONLY* - REFER TO PLANS AND SPECIFICATIONS

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FOR INFORMATION ONLY - SECTIONS REMOVED FOR BIDDING

THIS PAGE INTENTIONALLY LEFT BLANK FOR DOUBLE SIDED PRINTING

*FOR INFORMATION ONLY* - REFER TO PLANS AND SPECIFICATIONS

Prepared By:

Gordon – The LA Group Joint Venture, LLC

Aqua Engineering, Inc.

TABLE OF CONTENTS

1. Introduction

2. Existing Conditions

3. Architectural

4. Commissioning

5. Cost Estimating

6. Critical Path Method

7. Electrical

8. Environmental Impact

9. Equipment

10. Fire Protection

11. Heating, Ventilating and Air Conditioning

12. Historic Preservation

13. Plumbing

14. Security

15. Site Development & Utilities

16. Environmental

17. Specifications

18. Structural

19. Sustainability

20. Telecommunications

21. Appendices

• Appendix A – Meeting Summaries o Kickoff Meeting Summary o SD Review Meeting Summary o SD Review Comments and Responses o DD-CD Review Meeting Summary o DD-CD Review Comments and Responses

• Appendix B – Cost Estimate Report

• Appendix C – Final Supplemental Environmental Assessment

• Appendix D – Initial Site Development Alternatives

• Appendix E – Preferred Site Development Alternative

• Appendix F – Irrigation Basis of Design Narrative

• Appendix G – Stormwater Management Basis of Design Narrative

• Appendix H – Stormwater Pollution Prevention Plan

• Appendix I – Geotechnical Engineering Letter Report

• Appendix J – Historical Commission Notification Form

• Appendix K – Earthwork Analysis

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1. Introduction

Project Need & Goals The purpose of this project is to increase the burial capacity of an existing national cemetery to continue to provide burial services for eligible veterans in southeast Massachusetts and eastern Rhode Island. Located in Barnstable County on Cape Cod, approximately 65 miles southeast of Boston and adjacent to Joint Base Cape Cod is Massachusetts National Cemetery serving a veteran population of approximately 257,500 within a 75-mile service area. The intent is to construct the maximum practicable number of in-ground cremains within the approximate +/-1-acre project area with a minimum yield of 1,200 gravesites. In addition, this project includes requisite infrastructure of utilities, signage, site furnishings and irrigation to support the new development. Construction of this project must be completed prior to depletion of gravesites, currently projected to be November 2021. Design and construction documents must be completed in time to support award of the construction contract in FY 2020.

Project Kick-Off Meeting On April 16th, 2020, the project kick-off meeting was held via conference call. During the meeting, representatives from the NCA, Massachusetts National Cemetery, and the Design Team reviewed and discussed the program objectives.

On June 29, 2020, the schematic design review meeting was held via conference call. During the meeting, representatives from the NCA, Massachusetts National Cemetery, and the Design Team reviewed and discussed the merits of the three (3) initial design concepts and formulated a consensus for development of the preferred design moving forward.

Refer to Appendix A for a list of attendees and meeting notes for each of the above referenced meetings, as well as schematic design review comments and Design Team responses.

2. Existing Conditions

The Massachusetts National Cemetery is located on Connery Avenue, Bourne, Massachusetts 02532. The existing Cemetery consists of 60 existing burial sections, 110 flower watering stations, seven columbarium complex locations, two memorial walls, an assembly area, a combination Public Information Center (PIC) / Administrative Building with associated parking area, six Committal Service Shelters, a Maintenance Complex with Maintenance Yard, a Memorial Walk, vehicular access roads throughout the cemetery providing access to all the amenities and burial sections, and dump, borrow, and stock pile area. Pedestrian circulation is provided at each amenity (burial sections, committal shelters, etc.) but is not interconnected throughout the site. Existing utility infrastructure consists of electric and telecommunications conduit/direct bury, storm sewer and associated storm facilities, irrigation, and sanitary sewer with associated septic tanks and drain fields. In addition to the existing site amenities, wetlands and small ponds are located on-site. Joint Base Cape Cod is adjacent to the site to the southeast.

The approximate +/-1-acre project area is located immediately to the east of the existing Committal Service Shelter 1. Previously planned for a future pre-placed crypt burial section, the project area was previously cleared, roughly graded, turfed and lies below the adjacent committal service shelter and primary roadways. Beyond the cleared areas, densely wooded slopes fall steeply away to the east/southeast.

3. Architectural

There are no architectural renovations or expansions included in this burial expansion project.

4. Commissioning

There will not be a Commissioning Agent assigned to this project. Commissioning is limited to the testing and acceptance of the irrigation system which will be addressed as part of the irrigation specifications.

5. Cost Estimating

See Appendix B for Cost Estimate Report.

6. Critical Path Method

No critical path method is required for this minor expansion design. Critical Path Method to be utilized by the contractor as required by the Specifications prepared by the design team.

7. Electrical

There are no electrical renovations or expansions included in this burial expansion project.

Electrical work is limited to low voltage wiring and controls associated with the irrigation system and will be addressed as part of the irrigation work accordingly.

8. Environmental Impact

As the project area was previously disturbed, environmental impacts are anticipated to be minimal and are in accordance with the overall cemetery Master Plan established as part of the Phase 4 major expansion project. See Appendix C for the Phase 4 Final Supplemental Environmental Assessment.

9. Equipment

There are no equipment renovations or expansions included in this burial expansion project.

10. Fire Protection

Improvements are limited to open-air burial expansion; therefore, fire protection improvements are not required as part of this project.

11. Heating, Ventilating and Air Conditioning

There is no heating, ventilating or air conditioning renovations or expansions included in this burial expansion project.

12. Historic Preservation

See Appendix C for the Phase 4 Final Supplemental Environmental Assessment.

13. Plumbing

Improvements are limited to the non-potable irrigation system and will be addressed as part of the irrigation work accordingly.

14. Security

There are no physical security renovations or expansions included in this burial expansion project.

The principles of Crime Protection Through Environmental Design (CPTED) will be limited to maintaining unobstructed views and avoiding the creation of hiding spaces within and adjacent to the proposed burial expansion.

15. Site Development

As part of the Schematic Design submission three (3) alternative site development concepts were presented for consideration by the NCA and Cemetery. Based upon discussions during the Schematic Design Review Meeting and subsequent consensus formed, a preferred site development approach was formulated as part of this Design Development / Construction Documents submission. (A copy of the initial three (3) alternative site development concepts are included in Appendix D.)

The preferred site development concept (included in Appendix E) is intended to blend with and extend the character of the existing cemetery and create a dignified setting for burial services.

The primary goal of the preferred site development concept is to maximize potential burial plot yields while balancing the need for imported fill to optimize site accessibility and maintain existing drainage patterns. This is achieved by clearing and removing the existing wooded knoll in the northeast corner of the project area and importing fill to provide gentle slopes of 2-3.5% throughout the burial section. Increased burial frontage is provided along the primary roadway (McKenna Road) allowing for improved access and better views into the burial area, and maintains existing drainage patterns with dispersed sheet flows towards an existing riprap armored outfall on eastern edge of the existing plateau. This approach results in a burial section generating 1,614 in-ground cremains burial plots, significantly exceeding the stated burial program of 1,200 burial plots.

Site development will include clearing/grubbing, import of fill material, grading, irrigation and sodded turf installation necessary to establish the proposed in-ground cremains burial section.

Site amenities such as a new flower watering station and burial section markers will be installed to match existing amenities seen throughout the cemetery. Additional decorative wooden guardrail and plant materials are included as construction add alternates to provide physical and visual barriers between the burial section and adjacent committal shelter drive. Plant materials included in the add alternate have been selected to maximize compatibility with existing site plant materials and local environmental conditions, minimize site maintenance requirements and to conserve water resources. The terrain surrounding the project site and nature of cemetery development inherently creates a variety of grading challenges. In areas of low visibility, lower aesthetic value and lower maintenance requirements (around the periphery of the burial section), a simple 2:1 slope with reinforcing fabric and native seeding will be proposed. The irrigation system will be designed to tie into the existing irrigation system and will be comprised of parts and components that are fully compatible with the existing system. See Appendix F for the Irrigation Basis of Design Narrative.

15.1 Utilities

Non-potable irrigation, site drainage, stormwater collection and disposal will be designed in accordance with Section 5 of the NCA Facilities Design Guide.

15.2 Storm Water Management

See Appendix G for the Stormwater Management Basis of Design Narrative.

15.3 Erosion and Sediment Control

Erosion and Sediment Control measures will be implemented during construction in accordance with the Massachusetts Erosion and Sediment Control Guidelines for Urban and Suburban Areas, latest edition. Potential control measures include, but are not limited to, construction entrance, construction road stabilization, check dams, temporary diversion, inlet/outlet protection, sediment trap/basin, sediment/silt fence, and seeding/sodding.

An EPA administered Construction General Permit (CGP) will be required to permit the construction period stormwater runoff. Additionally, a Stormwater Pollution and Prevention Plan (SWPPP) will be required to be kept onsite and maintained by the General Contractor. See Appendix H for the initial Stormwater Pollution Prevention Plan.

15.4 Earthwork

See Appendix K for cut/fill analysis within the burial section.

16. Environmental

See Appendix C for the Phase 4 Final Supplemental Environmental Assessment.

See Appendix I for the Geotechnical Engineering Letter Report

17. Specifications

See specifications submitted under separate cover as part of the construction documents.

18. Structural

There are no structural renovations or expansions included in this burial expansion project.

19. Sustainability

Sustainability in accordance with the Executive Order on Efficient Federal Operations (Executive Order 13834) will be pursued as it relates to efficient water use. This will be achieved through the use of site appropriate landscape materials and water efficient irrigation system components and controls. Green Globes and/or LEED are not being proposed for this project.

20. Telecommunications

There are no telecommunications renovations or expansions included in this burial expansion project.

21. Appendices

• Appendix A – Meeting Summaries o Kickoff Meeting Summary o SD Review Meeting Summary o SD Review Comments and Responses o DD-CD Review Meeting Summary o DD-CD Review Comments and Responses

• Appendix B – Cost Estimate Report

• Appendix C – Final Supplemental Environmental Assessment

• Appendix D – Initial Site Development Alternatives

• Appendix E – Preferred Site Development Alternative

• Appendix F – Irrigation Basis of Design Narrative

• Appendix G – Stormwater Management Basis of Design Narrative

• Appendix H – Stormwater Pollution Prevention Plan

• Appendix I – Geotechnical Engineering Letter Report

• Appendix J – Historical Commission Notification Form

• Appendix K – Earthwork Analysis

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Appendix C

Final Supplemental Environmental Assessment

FINAL

Supplemental Environmental Assessment:

Proposed Construction and Operation of the Phase 4 Expansion Massachusetts National Cemetery

Bourne, Barnstable County, Massachusetts

U.S. Department of Veterans Affairs 425 I Street, NW

Washington, DC 20001

September 2019

Supplemental Environmental Assessment Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Executive Summary i

EXECUTIVE SUMMARY

In this Supplemental Environmental Assessment (SEA), the U.S. Department of Veterans Affairs (VA), National Cemetery Administration (NCA) identifies, analyzes, and documents the potential physical, environmental, cultural, and socioeconomic impacts associated with the Proposed Action to implement the Phase 4 Expansion as described in the 2018 Master Plan at the Massachusetts National Cemetery (MNC) located at Connery Avenue, Bourne, Barnstable County, Massachusetts.

MNC covers approximately 750 acres, of which approximately 250 acres were developed for cemetery phases 1, 2, and 3, between 1979 and 2013, providing a total of 60 burial sections, memorial areas, a public information center/administration building, a maintenance facility, roadways, irrigation systems, and other supporting infrastructure.

Due to depletion of the existing gravesite capacity, VA has determined that if new burial capacity is not added, then the longevity of MNC would not be extended and future generations of eligible Veterans and their families increasingly would not have long-term, reasonable access to burial benefits at a National Cemetery in the southeastern Massachusetts region. All other National Cemeteries are more than 75 miles from southeastern Massachusetts, and, therefore, are not located within a reasonable distance of Veterans and their families in this region.

Purpose and Need The purpose of the Proposed Action is to enable NCA to extend by approximately 10 years the longevity of interment benefits to eligible Veterans and their families by increasing interment capacity at MNC.

The Proposed Action is needed due to gravesite depletion resulting in limited interment capacity at MNC.

Alternatives VA prepared this SEA to evaluate the potential impacts of implementing the Proposed Action.

This SEA also evaluates the potential impact of a “No Action” alternative, defined as not implementing the Proposed Action and maintaining conditions at MNC as they currently exist.

These two alternatives are summarized below:

· The Proposed Action is to implement the Phase 4 expansion as described in 2018 Master Plan. Under the Proposed Action, Phase 4 would be constructed over the next approximately 18 months. The Phase 4 expansion would provide new burial sections, new roadways, a new maintenance outbuilding, and associated improvements to existing physical infrastructure including the public information center/administration building, maintenance complex buildings, roadways, irrigation systems, and site furnishings. The Phase 4 expansion would provide approximately 10 years of additional interment capacity at MNC. Thus, the Proposed Action meets the purpose and need for action. The need for subsequent, potential future expansion phases would be evaluated by VA every 8-10 years, with separate NEPA analyses completed prior to implementing any future phase.

· The No Action alternative is to maintain MNC as it presently exists and not implement the Phase 4 expansion. Under the No Action alternative, VA would not add new burial capacity or complete infrastructure improvements described for the Phase 4 expansion in the 2018 Master Plan. The longevity of MNC would not be extended, and future generations of

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Executive Summary ii eligible Veterans and their families increasingly would not have long-term, reasonable access to burial benefits at a National Cemetery in the southeastern Massachusetts region.

Accordingly, the No Action alternative does not meet the purpose and need for action.

Affected Environment and Environmental Consequences The following table summarizes the potential environmental impacts associated with implementing the Proposed Action or the No Action alternative.

Resource / Issue Proposed Action No Action

Aesthetics

Short-term, direct, less-than-significant adverse impacts during construction due to the use and presence of heavy construction equipment for grading, road construction, and other improvements.

Direct, long-term, moderately beneficial aesthetic impact from the expansion of the park-like setting in the Phase 4 expansion area. None.

Air Quality

Short-term, direct, negligible, adverse impact from construction vehicle emissions and dust generation. Long-term, direct, negligible adverse impact from increased visitors and maintenance activities during operation. None.

Cultural Resources

Potential for adverse impacts from inadvertently encountering previously unknown cultural resources. Implementation of inadvertent discovery plans and protocols would maintain potential impacts at less-than-significant levels. None.

Geology, Topography, and Soils

No impact on geology. Long-term, direct, less-than-significant adverse impact on topography due to grading burial areas and roads. Short-term, direct, less-than-significant adverse impact on soil due to potential erosion during construction; short-term, direct, negligible adverse impact during operation due to soil erosion. None.

Hydrology and Water Quality

Short-term, direct, negligible, adverse impact on surface water during construction from potential sedimentation of runoff, and negligible impact during operation. Long-term, direct, negligible adverse impact during operation from increased use of groundwater to supply irrigation water. None.

Wildlife and Habitat

Short- and long-term, direct, less-than-significant adverse impacts on terrestrial wildlife species and habitat due to disturbance during construction and long-term conversion of habitat to landscaped grounds. No impact to listed species due to avoidance measures. None.

Noise

Short-term, direct, less-than-significant adverse impact from construction noise on visitors and off-site receptors. Short-term, direct, negligible adverse impacts from operational maintenance activities within the Phase 4 expansion area. None.

Land Use No impact. The Phase 4 expansion area is within MNC property, owned by the federal government and designated for cemetery use. None.

Wetlands, Floodplains, and Coastal Zone Management

Long-term, direct, less-than-significant adverse impacts to wetlands from filling in the 0.09-acre isolated freshwater wetland adjacent to the maintenance complex for construction of the new vehicle storage building. Proposed Action is outside of 100- and 500-year floodplains and not subject to Massachusetts coastal zone review. None.

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Executive Summary iii

Resource / Issue Proposed Action No Action

Socioeconomics

Short-term, direct, less-than-significant beneficial impact on the local economy from construction employment and material purchases. Long-term, direct and indirect, negligible beneficial impact during operations from increased visitors, potential increase in spending on area services, and minimized visitors’ travel costs.

Negligible adverse impact due to increased costs for families and visitors once existing burial capacity is reached at MNC, requiring burial at a private cemetery or travel to a National Cemetery outside of southeastern

MA.

Community Services

Long-term, direct, significant beneficial impact due to increased MNC burial capacity and longevity.

Long-term, direct, significant adverse impact due to lack of burial opportunities at MNC or another National Cemetery within 75 miles of southeastern Massachusetts.

Solid Waste and Hazardous Materials

Short-term, direct, negligible adverse impacts from generation of construction debris. Long-term, direct, negligible adverse impact from continued generation of operational solid wastes, excess soils, and pesticide/herbicide applications during routine operational maintenance activities. None.

Transportation and Parking

Short-term, direct, negligible adverse impact on transportation and parking during the construction phase. Long-term, direct, moderate beneficial impact from expanded parking within MNC and new maintenance entrance in the northwestern portion of MNC. None.

Utilities

Increase in extraction of groundwater to supply irrigation water would have a long-term, less-than-significant impact on this resource. None.

Environmental Justice No impact; no environmental justice communities within area. None.

Potential for Generating Substantial Controversy

The Proposed Action is anticipated to be widely accepted in the community, because it would extend the longevity of MNC for approximately 10 years, allowing MNC to continue providing burial benefits to eligible Veterans and their families in the southeastern Massachusetts region.

Not expanding MNC conflicts with anticipated community expectations and therefore could generate substantial controversy.

The impacts from the Proposed Action, when considered on a cumulative basis with impacts from past projects and probable future projects at and in vicinity of MNC, remain at less-than-significant adverse levels for all of the environmental resources analyzed in this SEA. Impacts from the No Action alternative would remain significant and adverse due to the cumulative effects of the unmitigated impact on Community Services associated with a decrease in the longevity of MNC and a lack of burial opportunities at a National Cemetery in the southeastern Massachusetts region.

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Executive Summary iv

Agency and Public Involvement VA involved regulatory agencies and the public in decision-making for this Proposed Action. VA published a Notice of Availability (NOA) announcing the release of a Draft SEA for a 30-day comment period in the Cape Cod Times, Barnstable Patriot, and Bourne Courier on July 21 and 23, 2019. The NOA also announced and invited the public to attend a public meeting to discuss the Proposed Action and the NEPA process, held at the Hilton Garden Inn in Plymouth, MA on August 1, 2019. VA mailed the NOA to selected federal, state, and local regulatory agencies and Native American Tribes. As stated in the NOA, the Draft SEA was available for review at the Jonathan Bourne Library in Bourne, MA; the North Falmouth Library in North Falmouth, MA;

and the public information center at MNC. An electronic copy of the Draft SEA was made available for download from VA’s website at http://www.cem.va.gov/cem/EA.asp.

No comments were received from the public during the Draft SEA 30-day review period. A comment was received from only one federal agency (USEPA) and no state or local agencies; the comment was not in opposition to the Proposed Action. No comments were received from Native American Tribes. No agencies or members of the general public attended the public meeting.

Correspondence with regulatory agencies and Tribes has been incorporated into the Final SEA.

Conclusion VA considers comments from the public, regulatory agencies, and tribes prior to making a decision on whether or not to implement the Proposed Action. Based on the absence of public comments and no comments expressing opposition to the Proposed Action as described in the Draft SEA, VA has completed this Final SEA without requiring substantive changes relative to the Draft SEA.

As previously concluded in the Draft SEA and reiterated in this Final SEA, the Proposed Action would not cause significant adverse impacts on the environmental resources presented herein.

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Table of Contents v

TABLE OF CONTENTS

EXECUTIVE SUMMARY ....................................................................................................... I

ACRONYMS AND ABBREVIATIONS ............................................................................... IX

1 INTRODUCTION

1.1 BACKGROUND AND EXISTING SITE DETAILS

1.1.1 Location

1.1.2 Development History

1.2 CURRENT STATUS

1.3 PURPOSE AND NEED FOR THE PROPOSED ACTION

1.4 REGULATORY REQUIREMENTS

1.5 SCOPE OF THE ANALYSIS

1.6 DECISION MAKING

2 DESCRIPTION OF THE PROPOSED ACTION AND ALTERNATIVES

2.1 DEVELOPMENT OF ALTERNATIVES

2.2 PROPOSED ACTION

2.3 NO ACTION ALTERNATIVE

2.3 ALTERNATIVES IDENTIFIED BUT NOT EVALUATED IN DETAIL

3 AFFECTED ENVIRONMENT AND ENVIRONMENTAL CONSEQUENCES

3.1 CRITERIA FOR ANALYSIS OF IMPACTS

3.2 RESOURCES NOT EVALUATED IN THIS SEA

3.3 AESTHETICS

3.3.1 Existing Environment

3.3.2 Environmental Consequences

3.4 AIR QUALITY

3.4.1 Regional Climate

3.4.2 Air Quality Standards

3.4.3 Existing Emissions Sources

3.4.4 Sensitive Receptors

3.4.5 Environmental Consequences

3.5 CULTURAL RESOURCES

3.5.1 Existing Environment

3.5.2 Environmental Consequences

3.6 GEOLOGY, TOPOGRAPHY, AND SOILS

3.6.1 Existing Environment

3.6.2 Environmental Consequences

3.7 HYDROLOGY AND WATER QUALITY

3.7.1 Existing Environment

3.7.2 Environmental Consequences

3.8 WILDLIFE AND HABITAT

3.8.1 Existing Environment

3.8.2 Environmental Consequences

3.9 NOISE

3.9.1 Existing Environment

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Table of Contents vi

3.9.2 Environmental Consequences

3.10 FLOODPLAINS, WETLANDS, AND COASTAL ZONE MANAGEMENT

3.10.1 Existing Environment

3.10.2 Environmental Consequences

3.11 SOCIOECONOMICS

3.11.1 Existing Environment

3.11.2 Environmental Consequences

3.12 COMMUNITY SERVICES

3.12.1 Existing Environment

3.12.2 Environmental Consequences

3.13 SOLID WASTE AND HAZARDOUS MATERIALS

3.13.1 Existing Environment

3.13.2 Environmental Consequences

3.14 TRANSPORTATION AND PARKING

3.14.1 Existing Environment

3.14.2 Environmental Consequences

3.15 UTILITIES

3.15.1 Existing Environment

3.15.2 Environmental Consequences

3.16 ENVIRONMENTAL JUSTICE

3.16.1 Existing Environment

3.16.2 Environmental Consequences

4 CUMULATIVE IMPACTS

4.1 PROPOSED ACTION

4.2 PROJECTS CONSIDERED FOR POTENTIAL CUMULATIVE IMPACTS

4.3 EFFECTS OF CUMULATIVE ACTIONS WITH THE PROPOSED ACTION

4.4 EFFECTS OF CUMULATIVE ACTIONS WITH THE NO ACTION ALTERNATIVE

4.5 POTENTIAL FOR GENERATING SUBSTANTIAL CONTROVERSY

5 AGENCY COORDINATION AND PUBLIC INVOLVEMENT

5.1 FEDERAL, STATE, AND LOCAL AGENCY COORDINATION

5.2 NATIVE AMERICAN TRIBAL COORDINATION

5.3 PUBLIC INVOLVEMENT

5.4 FINAL SEA

6 BEST MANAGEMENT PRACTICES AND MONITORING

7 ENVIRONMENTAL PERMITS, APPROVALS, AND DETERMINATIONS

POTENTIALLY REQUIRED

8 LIST OF PREPARERS

9 ORGANIZATIONS CONSULTED

10 REFERENCES

11 GLOSSARY

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Table of Contents vii

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Table of Contents viii

TABLES

Table 1. Total Suspended Particulates Table 2. Estimated Total Operational Hours for Construction Equipment Table 3. SCAB Fleet Average Emission Factors (Diesel) Table 4. Total Criteria Pollutant Emissions from Non-Road Construction Vehicles Table 5. Soil Map Units within MNC Table 6. Listed Species Potentially Occurring at MNC Table 7. Migratory Birds Potentially Occurring within MNC Region Table 8. Common Household, Industrial, and Construction Sound Levels Table 9. Demographic Data for Barnstable County and Commonwealth of Massachusetts Table 10. Economic Data for Barnstable County and the Commonwealth of Massachusetts Table 11. Average Annual Daily Traffic Volume for Area Roadways Table 12. Minority and Low-Income Populations

FIGURES

Figure 1. MNC Site Location Figure 2. Proposed 2018 Master Plan Development Figure 3. Maintenance Complex Expansion Figure 4. Master Plan Alternative A Figure 5. Master Plan Alternative B Figure 6. Master Plan Alternative C Figure 7. Topography of MNC Figure 8. Existing Slopes at MNC Figure 9. Soil Types within MNC Figure 10. Landfill-1 Plume Map Figure 11. Wetlands within MNC Figure 12. Floodplain Map Figure 13. Massachusetts Coastal Zone Map

APPENDICES

Appendix A – Environmental Survey Reports Appendix B – Regulatory Communications

Appendix C – Public Involvement

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Acronyms and Abbreviations ix

ACRONYMS AND ABBREVIATIONS

AADT annual average daily traffic ACHP Advisory Council on Historic Preservation ACS American Community Survey AIRFA American Indian Religious Freedom Act amsl above mean sea level APE area of potential effect AQCR Air Quality Control Region ARPA Archaeological Resources Protection Act AST above ground storage tank ASTM American Society for Testing and Materials BCC Birds of Conservation Concern BHP Bureau of Historic Preservation BMP best management practice CAA Clean Air Act CCRTA Cape Cod Regional Transit Authority CEC Civil & Environmental Consultants, Inc.

CEQ Council on Environmental Quality CFR Code of Federal Regulations CGP Construction General Permit CCI4 carbon tetrachloride CO carbon monoxide CWA Clean Water Act CZM Coastal Zone Management CZMA Coastal Zone Management Act dBA A-weighted decibel DEP Department of Environmental Protection EA environmental assessment EBT eastern box turtle EIS environmental impact statement EISA Energy Independence and Security Act EO executive order ESA Endangered Species Act FEIS final environmental impact statement FEMA Federal Emergency Management Agency FFA Federal Facility Agreement FHWA Federal Highway Administration FONSI finding of no significant impact GCR General Conformity Rule GPM gallons per minute JBCC Joint Base Cape Cod JD Jurisdictional Determination LF-1 Landfill-1 MA DEP Massachusetts Department of Environmental Protection MBTA Migratory Bird Treaty Act MESA Massachusetts Endangered Species Act MHC Massachusetts Historical Commission

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Acronyms and Abbreviations x

MNC Massachusetts National Cemetery NAAQS National Ambient Air Quality Standards NAGPRA Native American Graves Protection and Repatriation Act NCA National Cemetery Administration NEPA National Environmental Policy Act NHESP Natural Heritage and Endangered Species Program NHPA National Historic Preservation Act NLEB northern long eared bat NO2 nitrogen dioxide NOA notice of availability NOAA National Oceanic and Atmospheric Administration NOI notice of intent NPDES National Pollution Discharge Elimination System NPS National Park Service NRCS Natural Resources Conservation Service NRHP National Register of Historic Places NWI National Wetlands Inventory O3 ozone OCFM VA Office of Construction and Facility Management OSHA Occupational Safety and Health Administration Pb lead PCE perchloroethene PEM palustrine emergent PFO palustrine forested PM particulate matter PNF project notification form RCRA Resource Conservation and Recovery Act RDA Request for determination of applicability RPW relatively permanent water SEA supplemental environmental assessment SESC soil erosion and sedimentation control SHPO State Historic Preservation Office SIP state implementation plan SO2 sulfur dioxide SR state route SWPPP stormwater pollution prevention plan TCE trichloroethene TNW traditionally navigable water U.S. United States USACE US Army Corps of Engineers USC United States Code USDA United States Department of Agriculture USEPA United States Environmental Protection Agency USFWS United States Fish and Wildlife Services USGS United States Geological Survey VA US Department of Veterans Affairs VOC volatile organic compounds

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Chapter 1. Introduction 1

1 INTRODUCTION

The U.S. Department of Veterans Affairs (VA) National Cemetery Administration (NCA) honors Veterans and their families with final resting places in National Shrines and with lasting tributes that commemorate their service and sacrifice to the nation. NCA maintains approximately 3.3 million gravesites at 136 National Cemeteries, and 33 soldiers’ lots and monument sites in 40 states and Puerto Rico (NCA, 2018). VA’s Office of Construction and Facility Management’s (OCFM) mission is to advance VA’s mission in support of the nation’s Veterans by planning, designing, constructing, and acquiring major facilities, and setting design and construction standards. This Supplemental Environmental Assessment (SEA) evaluates the proposed implementation of the Phase 4 expansion as described in the 2018 Master Plan for the Massachusetts National Cemetery (MNC), located at Connery Avenue, Bourne, Barnstable County, Massachusetts.

1.1 Background and Existing Site Details

1.1.1 Location

MNC is located on the western end of Cape Cod, approximately 65 miles southeast from Boston, MA, and 60 miles east of Providence, Rhode Island (RI) (Figure 1). MNC serves eligible Veterans in the southeastern Massachusetts region. MNC is located within the town of Bourne in Barnstable County, MA. MNC covers approximately 750 acres and is adjacent to Otis National Guard Base and Camp Edwards Military Reservation on the Joint Base Cape Cod (JBCC). MNC is accessible from Connery Avenue, which runs along the northern border of MNC and also provides access to JBCC. Massachusetts State Route (SR) 28 runs perpendicular to Connery Avenue and borders MNC to the west. Approximately 250 acres of the 750-total acreage of MNC have been developed, leaving approximately 500 acres available for future development.

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Chapter 1. Introduction 2

Figure 1. MNC Site Location

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Chapter 1. Introduction 3

1.1.2 Development History

In 1976, VA prepared an environmental assessment (EA) to analyze the potential environmental and socioeconomic impacts of a proposed action to select, construct and operate a new National Cemetery on the approximately 750-acre site that, at the time, was owned by the Commonwealth of Massachusetts. The EA concluded that no significant impacts on the human environment would occur due to construction or operation of a National Cemetery at the site. Subsequently, the Commonwealth of Massachusetts and VA signed a land transfer agreement in 1976 to transfer ownership of the 750-acre site to VA for development as the new MNC. VA completed a Master Plan in 1976 that specified the layout and design for the phased development of the majority of the 750-acre property. Based on the 1976 Master Plan, VA in 1979 constructed the first development phase (Phase 1A), and in October 1980 MNC began accepting burials.

The initial Phases 1A and 1B were fully completed in 1982 and provided full casket burial sites, cortege lanes, an administration building, a maintenance complex, and a committal shelter loop to the east of the administration building. In 1996, VA completed the Phase 2 expansion to double the full casket burial capacity of MNC and provide a new columbarium plaza.

In 2009, VA anticipated that by November 2010, MNC would close to new casketed burial sites if additional burial capacity was not established (VA, 2010). Accordingly, in July 2010, VA completed an EA for the construction and operation of the Phase 3 expansion and concluded that implementing the expansion would have no significant adverse impacts on the environment (VA, 2010). In 2013, VA completed construction of the Phase 3 expansion, which provided approximately 9,600 casket gravesites, 1,000 in-ground cremation remains burial sites, and 4,500 cremation remains niches in two new columbarium areas within the western portion of MNC. The Phase 3 expansion also provided new public restrooms, a public information center, a new administration building, a new grounds maintenance building, and improvements to existing structures, roadways and utilities.

1.2 Current Status

VA projects that by fiscal year 2020, approximately 257,500 Veterans will reside within a 75-mile radius of MNC (VA, 2010). Based on current capacity at MNC, NCA projects gravesite depletion of casketed pre-placed crypt gravesites will occur by July 2025, in-ground cremation gravesite depletion by May 2020, and columbarium niche cremation site depletion by July 2031.

National Cemeteries located more than 75 miles from southeastern Massachusetts are considered to be located beyond a reasonable distance of Veterans and their families in this region. Currently, the closest National Cemetery to MNC is Calverton National Cemetery in Long Island, NY, 170 miles from MNC. The route to Calverton National Cemetery involves transport by ferry which increases the travel time beyond what is considered reasonable. The next closest is the Gerald B.H.

Solomon Saratoga National Cemetery in Schuylerville, NY, approximately 240 miles from MNC.

Three State Veteran Cemeteries located in Exeter, RI, Winchendon, MA, and Agawam, MA are open to Veteran burials; however, they are located approximately 80, 115, and 120 miles from MNC, respectively.

Although the 1976 Master Plan provided a design for potential future expansion phases, NCA design standards have since changed: they no longer based on primarily utilizing pre-placed full-sized crypts, but instead include more efficient casketed, double-depth, and pre-placed crypts.

Therefore, selected elements of the 1976 Master Plan design are no longer appropriate for the

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Chapter 1. Introduction 4 future development of MNC. Accordingly, VA prepared the 2018 Master Plan, which incorporates some elements of the original 1976 Master Plan while also meeting the latest NCA design standards. The 2018 Master Plan includes the design for the Phase 4 expansion.

1.3 Purpose and Need for the Proposed Action

Due to depletion of the existing gravesite capacity, VA determined that if new burial capacity is not added, then the longevity of MNC would not be extended and future generations of eligible Veterans and their families increasingly would not have long-term, reasonable access to burial benefits at a National Cemetery in the southeastern Massachusetts region. All other National Cemeteries are more than 75 miles from southeastern Massachusetts, and, therefore, are not located within a reasonable distance of Veterans and their families in this region.

Thus, the purpose of the Proposed Action is to enable NCA to extend by approximately 10 years the longevity of interment benefits to eligible Veterans and their families by increasing interment capacity at MNC.

The Proposed Action is needed due to gravesite depletion resulting in limited interment capacity at MNC.

1.4 Regulatory Requirements

The National Environmental Policy Act (NEPA) of 1969 established the national policy for the environment and the Council on Environmental Quality (CEQ) and provides for the consideration of environmental issues in federal agency planning and decision-making. To implement the NEPA policies, CEQ promulgated the Regulations for Implementing the Procedural Provisions of the National Environmental Policy Act (40 CFR 1500-1508) (referred to as the CEQ Regulations).

VA’s procedures to comply with NEPA are set forth in 38 CFR Part 26, Environmental Effects of the Department of Veterans Affairs Actions. These regulations establish the VA policies and responsibilities to integrate environmental considerations early in the decision-making process.

Instructions on preparing NEPA documentation and carrying out public and agency coordination are provided in VA’s NEPA Interim Guidance for Projects (VA, 2010).

These requirements specify that, prior to taking action, VA must evaluate the potential environmental impacts of VA facilities, operations, and related funding decisions. The evaluation of the potential environmental impacts of the proposed action and alternatives includes direct, indirect, and cumulative effects, as well as qualitative and quantitative (where possible) assessments of the level of significance of these effects. Additionally, as required by NEPA and the implementing regulations from CEQ and VA, the alternative of taking no action is also evaluated, providing a baseline for comparison of potential impacts from the action alternative(s).

An EA provides a sufficient level of analysis and evidence to evaluate if an action would cause a significant environmental impact. When the EA concludes there is no significant impact, VA may issue a finding of no significant impact (FONSI) (40 CFR 1508.9). A FONSI is a decision document that briefly presents the reasons why an action would not have a significant effect on the human environment (40 CFR Part 1508.13). Conversely, when an EA finds that an action may have a significant adverse impact on the environment, VA would issue a notice of intent (NOI) to prepare an environmental impact statement (EIS).

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Chapter 1. Introduction 5

1.5 Scope of the Analysis

This SEA has been prepared to analyze and evaluate the potential effects of the Proposed Action to implement the Phase 4 Expansion at MNC. Further details of the Proposed Action are provided in Section 2.0.

This SEA tiers to and supplements the analyses and findings presented in VA’s 1976 EA for the siting, construction, and operation of MNC (VA, 1976). Information from the Phase 3 EA is also considered. This approach complies with CEQ Regulations that state that NEPA documents should be “analytic rather than encyclopedic” (40 CFR 1502.2a) and that scoping should be used to “identify and eliminate from detailed study the issues which are not significant or which have been covered by prior environmental review (40 CFR 1506.3), narrowing the discussion of these issues in the statement [SEA] to a brief presentation of why they would not have a significant effect on the human environment or providing a reference to their coverage elsewhere” (40 CFR 1501.7(a)(3)). Therefore, VA is using "Incorporation by Reference" per 40 CFR 1502.21 and "Tiering" per 40 CFR 1502.20 to reduce the volume of this SEA.

1.6 Decision Making

VA, as a federal agency, is required to incorporate environmental considerations into its decision-making process for the actions it proposes to undertake. This is done according to the regulations and guidance identified in this Section 1.0. As such, this SEA provides VA with the necessary analysis to address and support decision making for the Proposed Action and serves to:

§ Inform the public of the possible environmental impacts of the Proposed Action and its considered alternatives, as well as methods to reduce these impacts § Provide for public, state, inter-agency, and tribal input into VA’s planning and evaluation § Document the NEPA process, and § Support informed decision-making by the federal government

As the decision document for this proposed federal undertaking, this SEA also identifies the actions to which VA would commit to minimize adverse environmental effects, as required under NEPA, its implementing regulations from CEQ (40 CFR 1500-1508) and VA (38 CFR 26), and VA’s NEPA guidance (VA, 2010). The decision to be made is whether—having considered the potential physical, environmental, cultural, and socioeconomic effects—VA should implement the Proposed Action including, as appropriate, measures to reduce adverse effects.

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Chapter 2. Description of Proposed Action and Alternatives 6

2 DESCRIPTION OF THE PROPOSED ACTION AND ALTERNATIVES

NEPA, and the regulations of CEQ and VA for implementing NEPA, require that an EA include a brief discussion of all reasonable alternatives, including at least the Proposed Action and the No Action alternative. This section summarizes the process used to develop alternatives and provides a description of the subsequently selected Proposed Action and its alternatives, as well as alternatives considered, but ultimately eliminated, from further analysis, and the reasons for elimination.

2.1 Development of Alternatives

As previously described, the original 1976 Master Plan was primarily based on utilizing pre-placed full-sized crypts. New NCA guidelines include more efficient casketed, double-depth, and pre-placed crypts. Accordingly, VA developed the 2018 Master Plan while retaining selected elements of the 1976 Master Plan that remained consistent with the new guidelines. The 2018 Master Plan provides the design for the Phase 4 expansion, which is evaluated in this SEA, as well as potential future expansion phases that would be analyzed under separate NEPA EAs should the need for a future phase be identified by VA. No other reasonable alternatives to the Phase 4 expansion that would meet the purpose and need for action were identified by VA. Thus, the Proposed Action and the No Action alternative are evaluated in this SEA.

2.2 Proposed Action

Under the Proposed Action, VA would implement the Phase 4 expansion according to the 2018 Master Plan (see Figure 2). The Phase 4 expansion would cover approximately 50 acres of currently undeveloped land, primarily in the central southern portion of MNC.

The Proposed Action for the Phase 4 expansion includes the following elements:

§ Burial Expansion o To provide 10 years of continued burial benefits by providing approximately 12,000 gravesites, including both casket and cremation sites, in six new burial sections in the southern central portion of MNC. Gravesites include:

§ 4,000 pre-placed double depth crypt full casket gravesites

§ 300 over-sized pre-placed crypt full casket gravesites § 200 traditional full casket gravesites

§ 6,000 in-ground cremation sites § 1,500 columbarium niches

§ Access Roads and Parking o Approximately 1.4 miles of new curbed access roads connecting the existing cemetery to the new burial sections.

o Approximately 20 additional parking spaces at the administration building and maintenance complex to be used by cemetery staff and visitors.

o A fourth cortege lane to improve efficiency and ease of access for funeral attendees and a cortege staging booth for volunteers to assist in directing funeral processions.

Proposed Construction and Operation of the Phase 4 Expansion, Massachusetts National Cemetery September 2019

Chapter 2. Description of Proposed Action and Alternatives 7 o Paving and widening the service road within the northwestern portion of the property and installing signage and an entrance gate.

o Widening the service drives at Committal Shelters 2 and 3 from 12 feet to 15 feet and increasing the turning radii of the drives to 30 feet.

§ Committal Service Shelter Upgrades o Committal Shelter 1

§ Provide wind protection by installing dense evergreen plantings in the open lawn areas west and south of the shelter.

o Committal Shelter 2 § Provide wind protection by installing dense evergreen plantings in the open lawn area west of the shelter.

§ Widen the service drive to 15 feet and increase the turning radius to 30 feet.

o Committal Shelter 3 § Provide wind protection by installing a windscreen on the west side of the shelter and dense evergreen plantings in the open lawn areas west and south of the shelter.

§ Provide sound protection by installing additional dense evergreen plantings north of the shelter to dampen noise associated with operations at the maintenance complex.

o Demolition of two unused committal shelters (A and B).

§ Upgrades to Irrigation System o Extend irrigation system to new Phase 4 burial sites.

o Evaluate and update, repair, and / or replace, as needed, existing irrigation pumping station and 0.5-million-gallon irrigation water tank.

o Install two new groundwater source wells to help provide irrigation water for the

Phase 4 expansion area.

§ Upgrades to the Maintenance Complex (Figure 3 provides the development plan for the maintenance complex expansion) o Construction of an approximately 13,000-square-foot enclosed vehicle equipment storage building to increase capacity for cemetery vehicle equipment storage. This structure would be built adjacent to the existing maintenance complex.

Construction includes an approximately 300-foot long modular block retaining wall to stabilize the hill on the southeastern side of the new building.

o Repair and replace the metal seam roof of the main maintenance building.

o Redesign and expand the existing maintenance yard to improve functionality.

o Expand the employee break area including the concrete slab and covered overhead shelter.

Proposed Construction and Operation of the Phase 4…