The Federal Lands Highway Program — 2014 The Year in Review

From the desk of the Associate Administrator

Associate Administrator Joyce Curtis, displaying the FHWA Best Places To Work plaque at Trail Ridge Road, Rocky Mountain National Park, Colorado.

As I reflect over the last year and write my third and final note for our accomplishment report I am once again humbled by the incredible people, 

partners and projects we have here in Federal Lands Highways. There is no question that this last leadership opportunity in my career with FHWA 

challenged and inspired me. It further reinforced my belief that people are our greatest asset and no matter how complex or controversial the 

project or initiative might be the people in Federal Lands find a path forward.

 

I am very proud of the collaborative way we have worked with all our partners to build some of the most picturesque projects in the country which 

are continually recognized by many engineering organizations. One example this past year is the National Recognition we won from the Precast/

Prestressed Concrete Institute for the Foothills Parkway Bridge #2 in Tennessee. I was also privileged to see some of the great work done by one of our 

new partners, the Army Corps of Engineers, in the Lake Lanier and the Allatoona Lake area.

 

I am pleased with all the wonderful projects on Tribal Lands that I saw this year. It is clear we all are making a big difference in Indian Country.

As I pass the torch to the next Associate Administrator it has been my honor and pleasure to work in Federal Lands and I wish you many, many 

years of continued success. You have earned it! 

Joyce A. Curtis, Associate Administrator for

 Office of Federal Lands Highway
The Federal Lands Highway Program — 2014 The Year in Review

Our Role

The Program 

Project Delivery Awards & Recognition

Tribal Transportation Program

Project Delivery Showcase

Emergency Relief for Federally Owned Roads 

Performance Management

Innovation

U.S. Department of Transportation

Federal Highway Administration

Office of Federal Lands Highway

The Federal Lands Highway Program

2014

The Year in Review

Table of Contents

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.................................................................... 8-11

........................................................................ 12-17

........................................ 18-21 

......................................................................... 22-27

.................................................................................................... 28-33

Front Cover: Foothills Parkway, Bridge 2, Great Smoky Mountains National Park, Tennessee

Back Cover: Conzelman Road to Point Bonita, Golden Gate National Recreation Area, California

Federal Lands Offices

Western Federal Lands

Central Federal Lands

Eastern Federal Lands 

Special thanks to the Federal Lands employees responsible for taking the 

majority of the beautiful photographs contained in this report.
The Federal Lands Highway Program — 2014 The Year in Review

Yosemite National Park, California
The Federal Lands Highway Program — 2014 The Year in Review 1

The Federal Highway Administration (FHWA) Federal Lands Highway 

Program (FLHP) was established to promote effective, efficient, and reliable 

administration for a coordinated program of public roads and bridges; to 

protect and enhance our Nation’s natural resources; and to provide needed 

transportation access for Native Americans. The Federal Government, 

through various Federal Land Management Agencies (FLMAs): the National 

Park Service (NPS); USDA Forest Service (Forest Service); U.S. Fish and 

Wildlife Service (USFWS); Bureau of Indian Affairs (BIA) and Tribal 

Governments; Bureau of Land Management (BLM); Department of 

Defense (DOD); U.S. Army Corps of Engineers (USACE); and Bureau of 

Reclamation (BOR), have ownership responsibilities for more than 30% of 

the Nation’s land. This responsibility covers more than 500,000 miles 

of public and administrative roads on federal land across the U.S. and its 

island territories.

The Office of Federal Lands Highway (FLH) is relied upon by these partners 

to solve and manage unique challenges that are wide-ranging in environment, 

geography and complexity, through engineering solutions that are sensitive 

to the context of the land. We are often confronted by unique terrain, 

challenging work restrictions, and uncompromising deadlines. Whether it 

is building highly visible and political projects, constructing roads that are 

national landmarks, or providing critical access on low-volume transportation 

facilities, FLH is at the forefront of consistently delivering distinct and sound 

engineering projects.

Our Role 

FLH consists of a Headquarters Office (HFL) in Washington, District of 

Columbia and 3 field Division Offices: Eastern Federal Lands (EFL) in 

Sterling, Virginia; Central Federal Lands (CFL) in Lakewood, Colorado; and 

Western Federal Lands (WFL) in Vancouver, Washington.

Federal Lands’ role is categorized into two areas: Program Administration 

and Project Delivery. Program Administration addresses stewardship and 

oversight for our resources; as well as management and oversight of the 

program including responsibility for the Highway Trust Fund, totaling over 

$1 billion per year. Project Delivery is the development of projects and begins 

at preliminary design and continues through the construction of the project. 

Within those areas we also focus on Innovation & Technology Deployment 

and Professional Development. All of this comes together to support the 

delivery of the program.

FLH is uniquely enabled and entrusted to administer many different types 

of funds to facilitate transportation improvements for our many Partners.

Now in its 32nd year, the program and our role continue to expand and 

now includes more Federal partners and road networks. FLH expertise and 

credibility has grown to deliver a wider variety of transportation projects and 

improvements nationwide.

Delaware Water Gap National Recreation Area, view of Pennsylvania side of river from Mt. Tammany, New Jersey
2 The Federal Lands Highway Program — 2014 The Year in Review

The Program

Mount Hood Express Bus

Implementing the Federal Lands Access Program (FLAP)

The Federal Lands Access Program (FLAP), authorized at $250M, is part of 

Moving Ahead for Progress in the 21st Century Act, or MAP-21 legislation, 

the first multi-year highway authorization enacted since 2005. The program

funds projects that benefit transportation facilities such as public highways, 

roads, bridges, trails, or transit systems that are located on, are adjacent to, 

or provide access to Federal lands for which title or maintenance 

responsibility is vested in a State, county, town, township, tribal, municipal, 

or local government.

Federal Lands Highway employees throughout the country were recognized 

for their collective contributions in implementing a transformational piece 

of MAP-21, the FLAP. The FLH implementation team provided outreach, 

collaboration, and implementation of new decision-making bodies that 

represent Federal, State, and local agencies. This team innovated new ways to 

ensure vital transportation needs were identified, worked with asset owners 

to collect local fiscal matching commitment, and created a robust program of 

projects that met MAP-21 requirements. The passage of FLAP ensures safe 

and vital connections are made to our most beautiful lands in America, and 

this team memorialized this significant milestone with the spirit of excellence, 

collaboration, and commitment to public service in which this Department 

is known.

Federal Lands Transportation Program (FLTP)

The Federal Lands Transportation Program (FLTP), authorized at $300M, 

funds projects that improve access within Federal lands maintained by the 

BLM, the USACE, the USFWS, the Forest Service, and the NPS.

The program covers program administration, transportation planning, 

construction, and reconstruction of Federal lands transportation facilities. 

Other aspects of the program include: Research, preventive maintenance, 

engineering, rehabilitation, restoration, adjacent vehicular parking areas; 

acquisition of necessary scenic easements and scenic or historic sites 

with provisions for pedestrians and bicycles. The program is intended to 

mitigate the damage to wildlife, aquatic organism passage, habitat, and 

ecosystem connectivity, including the costs of constructing, maintaining, 

replacing, or removing culverts and bridges, as appropriate; construction 

and reconstruction of roadside rest areas; congestion mitigation; and other 

appropriate public road facilities as determined by the Secretary.

The FLTP complements the FLAP. Where the Access Program provides funds 

for State and local roads that access the Federal estate, the FLTP focuses on 

the transportation infrastructure owned and maintained by FLMA’s.

Unique Public/Private Partnership Under FLAP

Federal Lands, in partnership with the Oregon Department of 

Transportation, participated in the ribbon cutting/grand opening of the 

Mount Hood Express Bus Service, serving the City of Sandy, the Villages 

and Mount Hood, Ski Bowl, Government Camp, and Timberline Lodge. 

This project is the first transit project funded in Oregon under MAP-21 

Fand is the result of a unique public/private partnership that included many 

government agencies, FHWA, and local businesses. The project provides 

more opportunity to the public for sightseeing, hiking, exploring and skiing 

on Mount Hood, especially in winter, when driving can be a challenge. 

Bus route to Timberline Lodge, Oregon

How the MAP-21 Program Obligations Break Down

Millions of Dollars
The Federal Lands Highway Program — 2014 The Year in Review 3

The Program

Map -21 P

$300M Transportation Program

$250M Access Program

$450M Tribal Program

...............................................................................

program Deliv

93.8%

of the MAP-21 Program 

Was Expended

1,309.4

Lane Miles Improved

(Completed Construction)

56

Bridges

(Completed Construction)

Surpassing Our Small Business Goals

There are a number of contracting and procurement opportunities to support the Federal Lands 

Highway program to include engineering services, construction contracts, technical and professional 

services, data analysis, information systems, and laboratory equipment to name a few. FLH also runs 

a simplified acquisition program to purchase supplies, support services, information technology, and 

other equipment.

FLH is committed to supporting small businesses and small business concerns. In fact, in FY 14, 

we surpassed the goals established by the Small Business Administration and Department Of 

Transportation by contracting with different small business socio-economic categories. We hope to 

continue and grow upon our success for FY 15.

0%	
  

5%	
  

10%	
  

15%	
  

20%	
  

25%	
  

30%	
  

35%	
  

40%	
  

45%	
  

Socio-­‐Economic	
  Program	
  Goals	
   TOTAL	
  FHWA	
  

43.0%	
  

38.7%	
  

5.0%	
  

28.8%	
  

3.0%	
  

9.6%	
  

5.0%	
  

8.9%	
  

3.0%	
   4.0%	
  

U.liza.on	
  of	
  Small	
  Business	
  

Small	
  Business	
  

Small	
  Disadvantaged	
  

HUBZone	
  

Women	
  Owned	
  Small	
  Business	
  

Service	
  Disabled	
  Vetran	
  Owned	
  Small	
  

Business	
  

Improvement Under FLTP

San Luis Refuge, San Joaquin Valley, California Before & After
4 The Federal Lands Highway Program — 2014 The Year in Review

Project Delivery Awards & Recognition

Engineering Excellence

The completed bridge

Foothills Parkway, Bridge 2

Great Smoky Mountains National Park, Tennessee

Recipient of the 2014 Precast/Prestressed Concrete Institute (PCI) Award: Best Bridge with Span over 150 feet

The designers choice of high-performance precast concrete was made to manage costs and to meet the National Park Service aesthetic requirements to mimic 

the mountain terrain geometrically and by coloring the concrete to match the native rock, gently blending it into the natural landscape. This project required 

a new approach that allowed various aspects of precast concrete construction to be performed concurrently. New methodology incorporated a temporary 

work trestle that provided access along the entire bridge alignment that could be reconfigured as work shifted from foundation and precast segmental piers to 

superstructure segment erection. A specialized segment walker placed segments in balanced cantilevers, significantly increasing progression over one-direction 

progressive placement methods. 

With the use of high-performance concrete this structure will have the expected life span of 75- to 100-years, ensuring lasting enjoyment of the unobstructed 

views of the Great Smoky Mountains.

FLH Design Visualization 

prepared for use during 

planning stage 
The Federal Lands Highway Program — 2014 The Year in Review 5

Project Delivery Awards & Recognition

Davey’s Bridge

Banks-Lowman Highway, Wildlife Canyon Scenic Byway 

Garden Valley, Boise County, Idah

Recognized in Fall 2014 issue of Aspire The Concrete Bridge Magazine

The use of precast, prestressed concrete girders contributed to building a structure that is simple, aesthetically pleasing, and blends nicely into the natural 

environment of the rural Idaho countryside. Prestressed concrete girders provided the lowest overall cost, considering production and lifetime maintenance and 

reduced life-cycle costs. An optimal solution was implemented that satisfied hydraulic requirements with a single span while accommodating the need for an 

unusually wide bridge deck. Efficient and innovative staged construction strategy allowed for uninterrupted traffic flow. 

Setting the girders in place
6 The Federal Lands Highway Program — 2014 The Year in Review

Project Delivery Awards & Recognition

Engineering Excellence

Raymondskill Creek Bridge (US 209)

Delaware Water Gap National Recreation Area

Dingman Township, Pike County, Pennsylvania

Recipient of the 2013-14 Association for Bridge Construction and Design 

(ABCD) Susquehanna Chapter Outstanding New Short Span Bridge

The Raymondskill Creek Pedestrian Bridge project showcased Prefabricated 

Bridge Element Systems (PBES) technology as an economical solution 

by installing precast concrete abutments and a prefabricated truss 

superstructure. By using prefabricated elements, construction time was 

greatly reduced and there was minimal disturbance to the surrounding area. 

The new pedestrian bridge spans Raymondskill Creek and is adjacent to the 

U.S. Route 209 Bridge connecting with the Delaware Water Gap National 

Recreation Area trail system. 

Fairfax County Parkway. Phases I, II & I

Fairfax County, Virgini

Recognized with a Merit Award from the Design-Build Awards Institute of 

America (DBIA).
The Federal Lands Highway Program — 2014 The Year in Review 7

Project Delivery Awards & Recognition

Lamar River Bridge

Northeast Entrance Road, Yellowstone National Park, Park County, Wyomin

Recognized in the P.E. Magazine, Special International Bridge Conference Edition, also featured in an April 2014 Modern Steel Construction 

magazine article

The New Lamar River Bridge in Yellowstone National Park was selected as one of the winners of the 2014 International Bridge Conference Photographic 

Contest — Bridges of the U.S. Federal Lands. The bridge is a three-span 420 foot long, haunched steel plate girder. Due to high seismic activity and active faults 

within 50 miles of the project area (the park sits atop a massive underground volcano) seismic vulnerability had to be taken into account for the replacement 

structure. One of the specific goals of this project was to build a structure to withstand the environment with architectural features that matched existing 

structures in the park while still blending into the natural environment. 
8 The Federal Lands Highway Program — 2014 The Year in Review

Tribal Transportation Program (TTP)

Cheyenne River Bridge

Oglala Sioux Tribe, Custer County, South Dakota

Bridge replacement and new roadway alignment

The Cheyenne River bridge is a major access route for the Oglala Sioux 

Tribe and Custer County residents. The Tribe contributed $1,000,000 

in TTP Bridge Program funding towards the construction of the bridge, 

Custer County contributed $874,000 and South Dakota DOT contributed 

$1,626,000. A great example of relationship building, and funds leveraging 

across federal, state, county and Tribal agencies!

The Tribal Transportation Program (TTP), funded at $450M, provides 

funds to the 566 federally recognized tribes to improve the transportation 

systems that are located within Indian Country. These roads, bridges, and 

transit systems provide basic access to community services and are vital to 

the safety and quality of life of tribal members. Federal Lands co-administers 

the TTP with the Bureau of Indian Affairs (BIA) and is responsible for the 

primary stewardship and oversight of these funds. More than 120 of the 

tribal governments operate their TTP directly through Program Funding 

Agreements with Federal Lands.

In 2014, FLH Leadership met with tribes in New Mexico, North and South 

Dakota, California, and Alaska to listen to tribal concerns and issues. The 

Tribal Safety Funding provided $8.6M in funding to 183 tribes for 195 

projects. The Tribal Bridge Program provided $8.6M for the design or 

construction of an additional 20 bridge projects in Indian Country. 

before

after
The Federal Lands Highway Program — 2014 The Year in Review 9

Tribal Transportation Program (TTP)

More than 120

of the tribal governments

operate their TTP 

directly through Program Funding 

Agreements with Federal Lands.

Federal Lands co-administers 

the TTP with the BIA 

and is responsible 

for the primary 

stewardship and oversight 

of these funds.

Technical assistance and capacity building continued to be of primary importance to the FLH 

TTP Team. Several regional training workshops were carried out during this year, including tribal 

participation in the Western and Central Federal Land’s Offices Winter Trainings. Overall, FLH’s 

commitment to improve the outreach and delivery of the TTP has resulted in a program that is making 

a difference to the tribal community. 

FLH provides Survey Training to Tribal members at the Fort Vancouver National Historic Site, Washington

TTP Conference held in Anchorage, Alaska
10 The Federal Lands Highway Program — 2014 The Year in Review

Tribal Transportation Program (TTP)

Chaco Culture National Historical Park, Visitors Center Access Road and Bridge Reconstruction, New Mexico
The Federal Lands Highway Program — 2014 The Year in Review 11

Tribal Transportation Program (TTP)

Huerfano Bridge (BR 8105) Replacement Project

San Juan County, New Mexico 

Huerfano Bridge (BR 8105) Replacement Project, a joint effort of the Navajo 

Division of Transportation, San Juan County, New Mexico and New Mexico 

DOT. This “Bailey” bridge, built in the 1970’s, is known as such because it 

is made out of military surplus material. It rises about 12 feet over Galleglos 

Wash and is used daily by Huerfano residents, a Navajo Nation chapter.

The intent of this project is to replace the existing 17-span one-lane military 

bridge which is structurally deficient, functionally obsolete, and in a state 

of severe deterioration; with a two lane concrete bridge. The new concrete 

bridge will consist of a four-span structure with concrete girders and a castin-place slab deck. The project would also include approximately 150 feet of 

roadway reconstruction on each side of the bridge. These bridge approaches 

would consist of widening the existing road to conform to the width of the 

new two-lane bridge and shoulders, and would include the installation of 

safety guardrails.

An unimproved detour crossing was used upstream of the existing bridge 

by local residents and school buses transporting children to the Huerfano 

Community School. The Huerfano Community School is located south of 

the bridge. During inclement weather, drainage flows within the Gallegos 

Wash makes the detour road impassable. Once runoff recedes, it takes several 

weeks for the detour road to dry out to support vehicle traffic. The detour for 

the community is about 12 miles one-way and adds an additional 45 minutes 

to 1 hour to the local commute due to the condition of the unimproved 

detour routes. The new structure will provide a safer, faster route for the 

local community.

Stebbins Roadway Improvements Project

Stebbins, Alaska

The Stebbins Roadway Improvements Project fully reconstructed virtually 

all the streets in the remote tribal village of Stebbins on the Bering Sea in 

2014. The project included improved roadway drainage, riding surface, and 

user safety on the village streets. Airborne dust caused by vehicular traffic 

on the old dirt and gravel road surfaces was a significant public health 

issue. This project addressed the dust hazard by placing higher quality, 

compacted aggregate road surfacing, along with an application of synthetic 

dust abatement material, on all of the roadways in the project. The result is a 

much more functional street system for the village that provides significantly 

lower dust production, improved air quality and user safety, and reduced road 

maintenance costs.

The existing bridge

New bridge under constructon
12 The Federal Lands Highway Program — 2014 The Year in Review

Project Delivery

Swiftcurrent Creek Spillway Bridge Reconstruction

Glacier National Park, Montana

The Swiftcurrent Creek Spillway Bridge project replaced an historic bridge 

built in 1929, that provided the only access to the Many Glacier Lodge, listed 

on the U.S. National Register of Historic Places. Precast abutments and 

wingwalls were required on this reconstruction project in order to meet the 

requirement for short term completion. The short duration was neccessary 

to allow for little interruption of normal tourist activities, the onset of winter 

weather, and follow-on NPS facilities contracts requiring access to the area 

via the bridge. The demolition of the existing bridge started on September 26, 

2014, and construction of the new bridge was completed in November 2014.

The amazing view from the completed bridge.
The Federal Lands Highway Program — 2014 The Year in Review 13

Project Delivery

East Verde River Crossing, Houston Mesa Roa

Tonto National Forest near Payson, Arizona

This reconstruction project under the Access Program included roadway realignment, three concrete 

bridges with precast elements, a concrete box culvert, and rockery walls. Custom color and formliner 

were used to enhance the bridge setting. 

Prefabricated Bridge Element 

Systems considered 1st

on all FLH projects

...........................................................................

The FLH Office of Bridges & Structures

delivered completed designs for 

96 Structures on schedule

(a total of 36 individual projects)

to include:

33 New/Replacement Bridges

47 Rehabilitated Bridges

11 Box Culverts

3 Retaining Walls

1 Dock

and 1 Stream Drop structure

EDC II initiative

ABC used on 53 bridges/structures

53 = 41 PBES + 12 GRS-IBS

...........................................................................

Standard Specifications for the 

Construction of Roads and Bridges on 

Federal Highway Projects 2014 has been 

completed and put into practice
14 The Federal Lands Highway Program — 2014 The Year in Review

Project Delivery

South Fork Smith River Bridge Replacement Projects 

Steven Memorial Bridge and Hurdy Gurdy Bridge are two major bridge projects within the Six River National Forest in northern California. The existing 

Hurdy Gurdy and Steven Memorial Bridges were built in the 1950s. The two replacement bridges presented the FLH design team with a number of challenges, 

including the use of deep foundations in a highly seismic area. 
The Federal Lands Highway Program — 2014 The Year in Review 15

Project Delivery

Multi-Modal Safety

Sections of Picture Rocks Road and Sandario Road located within Saguaro National Park (SAGU) are used by park visitors, but also serve as commuter roads 

for local residents. A Road Safety Assessment (RSA) was requested by SAGU and Pima County DOT in 2012 due to the high number of fatal crashes. At that 

time, a total of nine fatal crashes occurred in the previous five years, of which five occurred within the same year. Picture Rocks Road has more than ten times 

the daily traffic volume of other SAGU interior roads and is year round. Having evolved from a stock trail, the roadway alignment had never been engineered 

for motor vehicle traffic, and the 35 mph and 40 mph speed limits are often exceeded by an average of 10 mph. Conversely, Sandario is wide and straight which 

invites speeding, further complicated with vertical curves this road also had sight distance concerns as well. Because of the hazardous conditions on these 

routes, the RSA recommendations were evaluated on site to determine if there were solutions that could be quickly implemented to help reduce the crashes 

until a more permanent solution could be designed and funded.

The project consisted of improvements to 19 miles of roadway in the park. Improvements included site distance, raised pavement markers, striping width, 

roadway edge fill, installation of rumble strips, trail crossing areas, and warning signs to improve safety. The NPS requested additional work to construct a 

concrete section to widen a portion of Cactus Loop Road. The section was added to the project due to the number of bike accidents that were attributed to 

the existing geometrics of the roadway. Bicyclists that were going at a high rate of speed were unable to make the sharp right uphill curve causing numerous 

accidents before the widening. Special advanced warning signs were placed at the top of the hill to warn riders to slow down. The project was completed in 

three months and success is attributed to the collaboration between Pima County, Saguaro National Park, and FLH.
16 The Federal Lands Highway Program — 2014 The Year in Review

Project Delivery

Newfound Gap Road, Great Smoky Mountains National Park, North Carolina

In September 2012, NPS personnel reported the discovery of a slide on Newfound Gap 

Road in the Great Smoky Mountains National Park. A subsurface investigation was 

completed in April 2013 and indicated that the slide was progressing in comparison to 

photos taken during the earlier October 2012 visit. Given the site characteristics, FLH 

recommended that repair work be completed during the winter season of 2013-2014; 

in advance of the next wet season. Three remediation alternatives were developed for 

NPS review as part of a Value Engineering Study. The recommended repair, a soldier 

pile drilled shaft anchored retaining wall with precast concrete lagging and exposed 

steel whalers, was developed and advertised in October 2013. A two-step procurement 

method was used to identify technically acceptable contractors that were then asked to 

submit bids. Construction began in December 2013.
The Federal Lands Highway Program — 2014 The Year in Review 17

Project Delivery

Project Headlands

Golden Gate National Recreation Area, Marin County, California 

Construction for Project Headlands Phase II was completed in 2014. The 

completion of this final phase of the project marks a major accomplishment 

in improving the roadway and trail system in the Marin Headlands and Fort 

Baker areas within and adjacent to Golden Gate National Recreation Area 

(GGNRA) in Marin County, California. The $23.5M overall project has 

rehabilitated and reconstructed 10.8 miles of historic roads, and multiple 

trails and parking areas to improve access and safety for motorists, bicyclists 

and pedestrians in this high use recreation area. Major safety improvements 

included utilization of Safety Edge on all paved roads.

Due to high visitation and overall public interest in the project, an extensive 

Public Information Program (PIP) was implemented. The PIP included 

a project website and periodic eblasts (up to weekly) to provide timely 

construction information regarding work areas, hours, and delays.

Bridge Replacement, DesLacs National Wildlife Refuge, North Dakota Before and After
18 The Federal Lands Highway Program — 2014 The Year in Review

Emergency Relief for Federally Owned Roads (ERFO)

Fort Wadsworth, Gateway National Recreation Area

Staten Island, New Yor

During Hurricane Sandy the massive storm surge that swept through New 

York City hit Staten Island particularly hard, and with the damage, important 

history was nearly lost. Fort Wadsworth was built to protect New York City 

from attack by the sea. An important component of the Fort is Battery Weed, 

a substantial three tier cannon battery. The seawall that was built in 1845 

was destroyed by Hurricane Sandy, undermining the already compromised 

foundations of Battery Weed. It was necessary to rebuild the seawall to 

protect and maintain the important historical aesthetics of Battery Weed. 

To accomplish this each stone block was collected, cleaned, and cataloged. 

The area behind the wall was excavated and open graded stone was placed 

in a fabric wrap to improve drainage and prevent future water pressure build 

up. The massive seawall stones were replaced and sealed together with a 

hidden epoxy to add structural integrity to the wall without changing the 

look. The worst areas of the wall had a reinforced concrete backing wall built 

and hidden with a layer of sand and stone to add heavy reinforcement against 

future extreme weather events and rising tides. The seawall now looks as it 

did during the Civil War and has added resiliency to protect this landmark for 

future generations. 

Resetting historic stones

Major Breach Area, Historic Boat Dock

Wall Repaired with Stone Backing

Santa Clara Puye Road 

Santa Clara Pueblo, New Mexico 

On October 24, 2013, President Obama declared a major disaster within the 

Santa Clara Pueblo, New Mexico. The disaster declaration was the result of 

severe flooding within the Los Conchas Burn Area, which contributed to the 

loss of property and resources within the Pueblo.

Shortly after the declaration, the Federal Emergency Management Agency 

(FEMA) enacted the National Disaster Recovery Framework (NDRF), which 

develops an interagency partnership to publish a recovery framework. As 

part of the NDRF, FLH, along with the USACE, BOR, USDA, BIA, NPS, New 

Mexico DDOT, and various other local and state agencies developed and 

enacted mitigation measures within the developed framework.

FLH, through the ERFO program, was responsible for restoring critical access 

within the Santa Clara Canyon. Access within the Canyon was vital to the 

work of other Federal Agencies in restoring the burn area and constructing 

flood mitigation measures to protect the residents and resources of the 

Pueblo.

Due to the emergent needs within the NDRF, an accelerated contracting 

technique, through use of a letter contract, was employed by FLH to begin 

mitigation repairs to a multi-culvert crossing structure. FLH and the 

contractor worked in close coordination to finalize the details of the structure 

design while construction repairs were underway. Due to the extreme 

hydraulic conditions within the burn area watershed, the crossing structure 

was designed to overtop and, as such, was hardened with rigid pavement, 

slope paving, and riprap. During construction, debris flows associated with 

monsoonal precipitation dammed the inlet of the structure and upstream 

channel, but did not damage the structure. The crossing structure was 

successfully completed on December 10, 2014.

Before

After
The Federal Lands Highway Program — 2014 The Year in Review 19

Emergency Relief for Federally Owned Roads (ERFO)

U.S. Highway 36, Colorado Flood Damage

During the week of September 11, 2013, a storm producing heavy rains 

stalled over Colorado. After several days of intense rain, Colorado’s 

Front Range from Colorado Springs to the Wyoming border experienced 

catastrophic flooding. Within a day, parts of Larimer and Boulder Counties 

in Colorado had received upwards of 20 inches of rain. Sections of U.S. 36 

were severely damaged by the flooding and closed to all traffic as a result. The 

U.S. 36 corridor is the primary access route from the Denver Metropolitan 

Area to the Town of Estes Park, surrounding communities, Arapaho and 

Roosevelt National Forests, and Rocky Mountain National Park. 

The project to restore access to the area provided a more resilient roadway 

and demonstrated excellent local, state, and federal government collaboration 

and teamwork.

Examples of the damaged roadway

Project Completion

Recipient of the American Public Works Association 2014 Colorado Chapter — Project of the Year
20 The Federal Lands Highway Program — 2014 The Year in Review

Emergency Relief for Federally Owned Roads (ERFO)

On June 27, 2014, Kīlauea Volcano erupted and the lava flow began advancing 

towards the community of Pahoa, on the Big Island of Hawaii. Based on the 

flow location, direction and advancement, it was expected to cross State 

Highway 130, where approximately 10,000 cars travel through Pāhoa daily 

on the way to school or work would have only makeshift, one-lane gravel and 

dirt roads access located within the lava flow’s probable path. In response to 

the impending need, the Hawaii Volcanoes National Park executed a Decision 

Memorandum to Support Emergency activities for an emergency evacuation 

route along the Chain of Craters Road, previously closed in the 1980’s due to 

lava flow, which would connect to State Route 130 and maintain emergency 

evacuation access. Residents in the flow path were placed on an evacuation 

advisory and notified of possible need for evacuation.

Federal Lands was called upon to provide technical expertise to support 

evacuation access construction performed by the County of Hawaii. 

Geophysics activities were used in advance of construction to identify lava 

tubes and hot spots mitigating risk of delay or injury while construction 

engineering representation was made available to provide guidance, 

coordination and monitoring ensuring the best interests of the stakeholders 

is met. In cooperation and partnership with the Hawaii Division office, plans 

are in place to provide funding from FHWA’s Emergency Relief Program to 

reimburse expenses incurred immediately following the lava flow closing 

State Route 130. Ground breaking of the emergency project within the Park 

began October 24th, the same day the Governor of Hawaii requested a 

Presidential Disaster Declaration. 
The Federal Lands Highway Program — 2014 The Year in Review 21

In FY 14 FLH Responded to a total of

16 Disasters

due to heavy rain, snow and floods throughout the 

following areas:

National Forests of Alabama

(Tuskegee, Talladega Conecuh)

BLM Gila District, Arizona

Chiricahua National Monument, Arizona 

Coronado National Forest, Arizona

San Bernardino National Wildlife Refuge, 

Arizona

Ouchita & Ozark National Forests, Arkansas

Lake Seminole Recreation Area, Florida

Land Between The Lakes National Recreation 

Area, Kentucky

Lake Okatibbee Recreation Area, Mississippi

Noxubee National Wildlife Refuge, Mississippi

BLM Las Cruces District, New Mexico

Carlsbad Caverns National Park, New Mexico

Cuyahoga Valley National Park, Ohi

El Yunque National Forest, Puerto Ric

Guadalupe Mountains National Park, Texas

Each disaster approved for coverage under the 

program may have numerous damage sites. 

Emergency Relief for Federally Owned Roads (ERFO)

The US Virgin Islands Department of Public Works (DPW) requested FLH assistance to provide an 

emergency access road in order to close an existing bridge off Route 405, located in St. Thomas. This 

multi-span concrete bridge was inspected by the Federal Lands Bridge inspection team and was found 

to be seriously deficient.

DPW then contacted EFL and requested further assistance in providing a temporary access road so the 

deficient bridge could be closed. This bridge provided sole access to six properties off Route 405, and 

was in imminent danger of failure. It was imperative to quickly construct a temporary embankment and 

detour road in hilly terrain in order to remove traffic from the existing bridge. To address this situation, 

EFL put together a contract package on a fast track and awarded a letter contract. Construction work 

started on January 23, 2014, and was successfully completed on February 10, 2014, with a 21-foot wide 

detour road in place. The deficient bridge was closed to vehicular and pedestrian traffic and a public 

safety hazard was safely eliminated. 
22 The Federal Lands Highway Program — 2014 The Year in Review

Federal Lands Pavement Preservation Program

By applying a cost-effective treatment at the right time, costly rehabilitation and reconstruction can be postponed. Performing a series of successive pavement 

preservation treatments during the life of a pavement is less disruptive to tourist activity and traffic flow than is normally associated with reconstruction 

projects.

Performance Management

FLH team site visit to assess pavement condition before the onset of serious damage. 

Sleeping Bear Dunes National Lakeshore, Michigan
The Federal Lands Highway Program — 2014 The Year in Review 23

Performance Management

Carlsbad Cavern National Park, New Mexico

The Point Launch, Oklahoma

One pavement preservation project administered by the Central Division 

encompassed 14 different National Parks (13 in New Mexico and 1 in 

Arizona). The project work included the placement of micro seals, chip seals, 

fog seals, asphalt patching, asphalt crack sealing, and cape seals. The intent 

to preserve all asphalt paved surfaces in these Parks was successfull, and 

demonstrated the flexibility of the pavement preservation program and FLH’s 

ability to collaborate with multiple Parks to complete the project under one 

contract. The project timeline was designed and built within one year on the 

initial project scoping.

Buckhorn Road, Chickasaw National Recreation Area, Oklahoma

Perimeter Road, Chickasaw National Recreation 

Area, Oklahoma
24 The Federal Lands Highway Program — 2014 The Year in Review

Performance Management

Full Depth Reclamation (FDR)

FDR is a rehabilitation technique in which the full thickness of the asphalt 

pavement and a predetermined portion of the underlying materials (base, 

subbase and/or subgrade) is uniformly pulverized and blended with an 

additive, such as cement, to provide an upgraded, homogenous base material. 

FDR can be performed at 4-12 inch depths depending on the nature of 

existing materials. By recycling and reusing existing pavement materials, 

FHWA has conserved non-renewable resources and conserved energy, 

besides saving tax payer dollars. Use of FDR has enhanced the structural 

performance of the pavement by improving its ability to carry the imposed 

traffic loads. 

FDR on this project was performed at an 8 inch depth. The NPS was pleased with the process 

and the quality of the finished roadway and fully supports use of FDR on their future projects. 

Completed Roadway, Blue Ridge Parkway, Virginia. 

FDR application being observed 

by VDOT personnel

One lane remains 

open during FDR

Knowledge Sharing

With the successful implementation of the FDR, FHWA was approached 

by the Virginia Department of Transportation (VDOT) and was requested 

to share knowledge gained and lessons learned so that VDOT can also 

successfully use FDR for their roadway rehabilitation projects. VDOT was 

invited to visit the Blue Ridge Parkway project site to see the construction 

operations first hand and get technical briefing by an FLH project engineer 

and division materials engineer. On three seperate occasions during the 

summer of 2014, key VDOT personnel including state and district level 

asphalt and materials engineers, designers and project inspectors visited 

the site to see the work in progress. These visits also included group and 

individual discussions between VDOT and FLH project personnel as to the 

changes initiated by FLH to the industry standard reclamation process and 

testing and how these changes raised the quality level of the work being 

performed. VDOT intends to use the lessons learned by Federal Lands and 

shared through these site visits as they modify their specifications and design 

their projects that will incorporate FDR work throughout the state.
The Federal Lands Highway Program — 2014 The Year in Review 25

Performance Management

Federal Bridge Inspection

The FLH Office 

Bridges & Structures 

is responsible for oversight of the

19 federal bridge inspection 

programs nationwide.

...........................................................................

NBIS Compliance

FLH provides Federal bridge owners 

technical and managerial advice 

to assist them, not only 

in complying with NBIS 

but also in managing their 

programs more efficiently.

National Bridge Inspection Standards and Compliance

The FLH Bridge Office has been delegated to conduct oversight of the 19 federal bridge inspection 

programs throughout the country. The oversight is conducted at the Intermediate Level through a 

risk-based, data driven approach. This approach assesses an agency’s level of compliance in 23 metrics 

relating to specific components of the National Bridge Inspection Standards such as inspection staff 

qualifications, inspection frequency, inspection procedures, inventory data, load rating and posting 

of bridges. As part of the review process, any metric determined to be Non-Compliant will require 

improvement through approved Plans of Corrective Actions (PCA). The FLH Bridge Office also 

conducts annual assessments at the Minimum Level to follow up on the PCA implementation progress 

for non-compliant metrics.

Out of 19 federal bridge inspection programs, the NBIS Compliance assessment at the Intermediate 

Level has been completed for 12 – Forest Service, USFWS, USACE, U.S. Navy, U.S. Army, BIA, U.S. 

Air Force, BOR, Tennessee Valley Authority (TVA), U.S. Department of Energy (USDOE), National 

Aeronautics and Space Administration (NASA), and NPS. The reviews of the remaining of 7 Federal 

agencies owning bridges are currently in progress and will be completed in the first quarter of 2015. 

During 2014, the FLH Bridge Office has also completed the NBIS Compliance assessment at the 

Minimum Level for Forest Service, USACE, and U.S. Navy. These agencies have seen significant 

improvement of their bridge inspection program through PCA implementation.

In addition to oversight of the federal bridge inspection programs, the FLH Bridge Office provides 

Federal bridge owners technical and managerial advice to assist them not only in complying with NBIS 

but also managing their program more efficiently. As part of this effort, the FLH Bridge Office was 

invited to attend the Forest Service national meeting which took place the week of January 27, 2014. 

The Forest Service then requested that FLH prepare an estimate to perform the inspection of all bridges 

on the Forest Service bridge network. A briefing conference was subsequently held with the FHWA 

Office of Infrastructure and with the Associate Administrator for FLH on February 25, 2014, to discuss 

the request and the status of the PCA. The FLH Bridge Office subsequently developed and transmitted 

an estimate for inspection services to Forest Service.
26 The Federal Lands Highway Program — 2014 The Year in Review

Performance Management

Federal Lands Transportation Roads Performance Management and 

Data Collaboration Workshop

FLH hosted a “Federal Lands Transportation Roads Performance 

Management and Data Collaboration” workshop on June 4-6, 2014 in 

Shepherdstown, West Virginia. Over 40 individuals attended representing 

staff from NPS, USFWS, BLM, Forest Service, USACE, BIA, BOR, 

Department of Interior Office of the Secretary, Department of Transportation 

Geospatial Information Office, Volpe Center, FHWA Transportation 

Performance Management Office, FHWA Office of Policy and FLH.

The purpose of the workshop was to:

•	 reconcile concerns regarding the policy on public and FLTP 

transportation network definitions and their impact on FLTP funding 

eligibility

•	 draft minimum standards and processes for implementing route IDs

•	 develop timelines for updating FLTP inventory and data elements for 

collecting, analyzing, reporting, and storing road condition information 

for all partners

•	 draft standards for 1-100 road condition index, building on the 

experiences of NPS and USFWS

•	 draft an approach for collecting data beyond minimum standards and 

data elements, depending on individual partner needs.

During the workshop “Task Teams” at both the Agency and Interagency levels 

were developed. Official repository(ies) of inventory, condition data and 

official partner interface(s) and many corresponding short term actions 

were identified. 

The partners came to several agreements as a result of Task Team discussion 

and a list of items were developed: 

•	 public and FLTP network definitions

•	 a process for implementing route IDs for all partners and a plan to draft 

and approve minimum standards 

•	 a process to propose, validate, and operationalize an index the partners 

agreed to conceptually based on a 0-100 road condition index

•	 timelines for completing route IDs and mapping condition data to a 

0-100 road condition index

The partners proposed official repositories for inventory and condition and 

agreed that initial road condition data will focus on pavement “between the 

white fog lines” and agreed to revisit data beyond minimum standards on a 

partner-by-partner basis at a future time.

In addition, the FHWA Office of Policy provided a brief overview of the 

Transportation for the Nation Program and the reasoning behind All Road 

Network (ARNOLD). ARNOLD brings spatial data into one platform to limit 

duplication efforts and provide an open source for most up to date data.

Road Inventory Program 

Data Collection Vehicle, The 

PathRunner, Hawaii Volcanoes 

National Park, Hawaii

Road Inventory Program Team 

Member recording data, Golden 

Gate National Historical Park, 

Point Bonita, California
The Federal Lands Highway Program — 2014 The Year in Review 27

Performance Management

FLH Hosts Research Scholar — Studying Asset Management

The Federal Highway Administration Office of International Programs hosted a Research Scholar this 

past year from Korea. Kanghyun “Kang” Seo has been on a rotational scholar assignment to the FHWA 

for the past 18 months. He works as an engineer for the Korean Expressway Corporation in South 

Korea and was chosen to come to the US to learn about Asset Management. He spent six months at 

DOT Headquarters and the remaining year at Eastern Federal Lands.

Kang has spent his time in Federal Lands shadowing several transportation colleagues in different 

disciplines within FLH, as well as our partners in the NPS, Forest Service and USFWS. He has stated 

that he has learned a great deal from us that will help him in his new assignment back in Korea.

The main objective of his US visit was to research the Highway Performance Monitoring System 

(HPMS) and to gain understanding of how to utilize a Pavement Management System, a set of defined 

procedures for collecting, analyzing, maintaining, and reporting pavement data, to assist in future 

budgeting and decision-making.

Mr. Seo is pictured here in the center flanked on the left by the FLH Road Inventory Program Coordinator, the FLH Asset 

Manager, and on the right by members of the FLH Bridge & Structures Office, during a site visit.

e

Ass

“The most impressive thing I have 

learned is the HPMS...” — Kang Seo

“... what I have learned in the US 

is very helpful and precious for 

me...I am looking forward to 

contributing to the improvement of 

the Korean road system 

in the future.” — Kang Seo
28 The Federal Lands Highway Program — 2014 The Year in Review

Innovation

Ultrasonic Shear Wave Tomography (MIRA)

John Coffee Memorial Bridge, Natchez Trace Parkway, Tennessee

The John Coffee Memorial Bridge, built in 1964, is nearly a mile long bridge that carries Natchez Trace Parkway over the Tennessee River. The 2 lane, 38 span, 

two steel plate girder bridge provides a direct route for the traveling public from Tennessee to Mississippi. Due to the limited number of bridges spanning the 

Tennessee River in the region, closing this bridge would add a 25 mile detour to the travelling public. In the middle of a routine bridge maintenance project to 

repaint guardrails, replace bridge joints and repair some minor concrete spalls an unexpected problem was discovered. During the preparation work to fix the 

spalls it was discovered that there was severely deteriorated concrete of unknown extent several inches thick hidden under the minor spalls. The shotcrete layer 

had covered up the extent of the deteriorated concrete. Deterioration extended under one of the bearings of the plate girder. Repair work was stopped due to the 

extent of the deterioration. Determining the extent of the deterioration and whether the bridge needed to be closed for safety became the priority. An answer 

was needed fast, that preferably would not require a lot of coring or other time consuming tests. FLH turned to a non-destructive testing method, known as 

Ultrasonic Shear Wave Tomography (MIRA) , to determine the extent of the deterioration.

FLH obtained MIRA testing equipment on loan from the FHWA Office of Asset Management, Pavements, and Construction to perform the investigation of the 

bridge piers. MIRA was used, to “see” through the sound shotcrete layer into the deteriorated concrete underneath, and to map the extent of the deterioration 

so a cost effective strategy could be developed to repair the piers. A cross section scan of a pier took less than 15 minutes to complete.

MIRA scans of the concrete piers determined that only one section was damaged. Results were verified with concrete cores. MIRA allowed the targeting of 

resources to determine the extent of deterioration and to develop a cost effective plan to repair the piers while the bridge remained in service.

Ultrasonic Shear Wave Tomography analysis

Horizontal Concrete Coring or Concrete Core Drilling performed by FLH Bridge Inspection 

staff as part of the in-depth investigation into the condition of bridge piers on the John Coffey 

Bridge. The retrieved concrete samples were laboratory tested to evaluate the concrete and 

verify initial bridge inspection findings. 

John Coffee Memorial Bridge, Tennessee
The Federal Lands Highway Program — 2014 The Year in Review 29

Innovation

Helical Piles 

Mount Vernon Trail Bridge Replacement, George Washington Memorial Parkway, Virgin

This project utilized a unique foundation design to replace the 278 foot long, 10 foot wide pedestrian/bicycle timber bridge on the Mount Vernon Trail. Mount 

Vernon trail is an 18-mile long multi-use trail located next to the George Washington Memorial Parkway in Arlington County, Virginia. Existing piles were 

replaced with helical piles, a unique foundation design intended to minimize disturbance to wetland areas. Additional environmental protection measures 

included the use of a turbidity barrier. Construction access for bridge work was limited to the footprint of the existing bridge and the contractor was required to 

provide timber matting over separation geotextile to protect existing ground and vegetation.

Geogrid Reinforced Soil (GRS) construction 

Blue Ridge Parkway Slide Repair, North Carolina

As a result of above normal precipitation a major landslide occurred on the Blue Ridge Parkway in Buncombe County, North Carolina. Use of GRS construction 

was utilized in the Winter/Spring of 2014. By utilizing GRS slope construction, it was possible to reconstruct this section of roadway 275 feet long, 110 feet 

wide, and 38 feet high at a slope steeper than for soil embankments at 1 horizontal to 1 vertical slope. This project clearly showcases GRS technology by 

providing durable slide repairs using smaller footprint/less environmental disturbance and reducing construction time and materials.
30 The Federal Lands Highway Program — 2014 The Year in Review

Innovation

Use of Ground Penetrating Radar

Trail Bridge Replacement, Delaware Water Gap National Recreation 

Area, Pennsylvania

Ground Penetrating Radar was used for in place testing of precast wall 

elements. The nondestructive testing to confirm rebar type and location in 

the precast concrete sections allowed for immediate casting after contract 

award. This approach provided safeguards to ensure the quality of the 

finished product while greatly accelerating the construction process as 

compared to traditional quality assurance practices.

GRS-Integrated Bridge System (IBS) Construction

Sand Creek Bridge, Oglala National Grasslands, Nebraska

GRS-IBS was used to construct the Sand Creek Bridge in Dawes County, 

Nebraska, which accesses the Oglala National Grasslands. Construction of 

both abutments (including foundations) took only 15 ten-hour work days. 

The project required very limited personnel and equipment. By utilizing 

GRS-IBS construction methods the road closure time and the need for 

specialized equipment and skilled-labor requirements were minimized for 

the project. The project was completed ahead of schedule resulting in quicker 

delivery and overall reduced construction cost.
The Federal Lands Highway Program — 2014 The Year in Review 31

Innovation

Contractor Manager/General Contractor (CMGC) procurement 

Historical Reconstruction/Safety Improvement

Blue Ridge Parkway, North Carolina

This project along Blue Ridge Parkway required reconstruction of historical 

stone masonry retaining walls and replacement of stone masonry guardwalls 

with crashworthy stone faced concrete core guardwalls to meet safety 

requirements while maintaining the aesthetics of the parkway. Utilization of 

Contractor Manager/General Contractor (CMGC) procurement enabled FLH 

to select a contractor experienced with historic stone masonry repairs and 

with the local terrain. This method enabled more accurate constructability 

reviews and input into the design, reducing construction costs, optimizing 

the project budget, reducing risk for both government and the contractor, 

while also expediting the schedule. It was possible to provide the most 

efficient means of repair utilizing the most appropriate materials.

Fiber Reinforced Polymer (FRP) Bridge Rehabilitation 

Wallops Island Causeway Bridge, Wallops Flight Facility NASA, 

Chincoteague, Virgini

FLH performed its first large scale use of FRP bridge rehabilitation at Wallops 

Flight Facility in Virginia. This structure is an early precast, prestressed 

concrete girder bridge built in 1960. The girders had delamination occurring 

in the bottom flanges that resulted in corrosion of the prestressing strands. 

Due to section loss and the load demand that NASA requires to transport its 

equipment to their facilities, the bridge required a solution that would restore 

the girders back to their original load carrying capacity as well as protect 

the strands from further corrosion. The proposed solution was to remove 

the bottom layer of gunite to determine the extent of the prestressing strand 

section loss. Once this was determined, an analysis was performed by FLH 

to determine the number of layers of FRP that were required to restore the 

girder. After the FRP was installed, a protective layer was added and painted 

to match the existing beams. In all, 46 girders were rehabilitated with FRP, 

in addition to two spans that had external post-tension strands wrapped to 

protect them from the elements.

Carbon Fiber Wrap being installed after repair 

of beam surface

Repair material being applied to bottom 

of beam

Beam after repaired and finish coat applied Causeway Bridge
32 The Federal Lands Highway Program — 2014 The Year in Review

Innovation

Rockfall Hazard Mitigation Techniques:

Rock Bolt Installation

Lehigh Gap, Appalachian Trail, Pennsylvania

Heavy erosion along the Appalachian Trail resulted in massive rock falls 

onto not just the trail, but a major State Road and a railway below. The size 

of material and the geometry of the site required a hybrid rockfall netting 

system of nearly 10,000 square yards (according to materials supplier, 

reported to be one of the largest such installations in North America at the 

time). To pin the rest of the mountain back together hundreds of rock bolts 

were installed for long-term stability of the mountain’s many fractured faces.

Wagon Drills

Ketchum-Challis Highway, Sawtooth National Recreation Area, Idaho

Air powered and winch operated “Wagon Drills” along the Ketchum-Challis 

Highway to address the hazard of impending rockfall. These custom made 

drills are capable of drilling a 3.5” diameter hole up to 20’ or more. The real 

value of these drills is their ability to access some of the steepest, highest, and 

most irregular terrain on the mountain to drill out the locations for rock bolts 

and dowels.

Raised Rockfall Flexible Barrier Fence 

Banks-Lowman Highway, Wildlife Canyon Scenic Byway, Idaho

To address rockfall along the Banks-Lowman Highway, a raised flexible 

barrier fence was installed in 2014. This coupled with the raised wall, further 

enhances the effectiveness of the rock catchment area behind the wall 

providing for increased safety.

Contour Pins

Ketchum-Challis Highway, Sawtooth National Recreation Area, Idaho

Draped wire mesh rockfall protection system along the Ketchum-Challis 

Highway in 2014. In the past, these systems have been installed free draping, 

without the use of contour pins. Often times this free draping creates large 

gaps between the mesh and the slope in locations where there are slope 

irregularities. These gaps can cause shadows and a “waterfall effect” that 

is visually distractive and unattractive. The contour pins are used to help 

minimize the gaps created around slope irregularities by pulling the mesh 

down into low spots.
The Federal Lands Highway Program — 2014 The Year in Review 33

Innovation

Design-Build

Deweyville to Neck Lake, North Prince of Wales Road, Alaska

On September 12, 2014, FLH officially cut the ribbon on the Deweyville to 

Neck Lake portion of the North Prince of Wales Road design-build project. 

Joining the Western Federal Lands Office, was Alaska DOT and Public 

Facilities, U.S. Forest Service, Alaska Department of Fish and Game, and 

residents and representatives of the Prince of Wales communities of Whale 

Pass, Naukati, Coffman Cove, Thorne Bay, Craig, 

and Klawock.

The $41.6 million design-build project designed the 11-mile stretch of 

roadway and secured permits from the U.S. Army Corps and Alaska 

Department of Fish and Game in seven months. Over the course of two 

construction seasons, the one-lane logging road transformed into a two-lane 

paved roadway. The project also included construction of two bridges and 

installation of numerous large culvert pipes to enable fish to continue their 

migration upstream. The design-build request for proposals (RFP) required 

bidders to provide a critical path method (CPM) schedule. The schedule was 

used to evaluate proposals, and points were given for completing the project 

before the September 2015 date specified in the RFP. The awarded proposal 

contained a December 2014 completion date, cutting nine months off the 

project. This early completion had several benefits. First, it opened the much 

safer new roadway to the traveling public a year earlier than anticipated. Also, 

by compressing the construction seasons from three to two, the potential 

for environmental issues related to heavy rain and erosion was dramatically 

reduced. From a cost-savings perspective, the early completion date reduced 

Western’s contract administration cost by one-third.

The design-build contracting method also benefited the project and the 

government in other ways. Having the contractor in charge of the design 

allowed them to bring their construction experience, innovations, and cost 

savings ideas to the forefront so the engineers could incorporate those 

concepts into the design. Another benefit associated with the design-build 

delivery method was the reduced amount of paperwork. On a typical sealed 

bid contract, the contractor is paid on the basis of the units of work actually 

completed and pay notes are required to support the requested payment. 

With design-build, FLH contract administration staff still inspected the work 

to ensure compliance with the contract, but the paperwork to substantiate 

payment was virtually eliminated. This enabled FLH and the contractor staff 

to focus their time on creating efficient operations, building a quality product, 

and staying ahead of potential problems.

Overnight install of fish pipes

Geogrid Stabilization
U.S. Department of Transportation

Federal Highway Administration

Office of Federal Lands Highway