The Federal Lands Highway Program — 2015 The Year in Review

From the desk of the Associate Administrator

Tim Hess (3rd from left) visits with Central Federal Lands Project Team, at the Colorado 

County Road 43 flood damage repair site near Rocky Mountain National Park, Colorado — 

(left to right), Karl Eikermann, Structural Engineer; Veronica Ghelardi, Hydraulics 

Engineer; Tim Hess, Associate Administrator; Khamis Haramy, Geotechnical Engineer; 

Micah Leadford, Project Manager; Stacy Dicciccio, Highway Design Engineer; Julian 

Maskeroni, Project Manager and Thomas Parker, Environmental Protection Specialist

This report celebrates another year of accomplishments by the Federal Highway Administration, Office of Federal Lands Highway. Since joining FHWA in mid-July, 

I have had the opportunity to visit each of the Federal Lands Division Offices, multiple projects, partners, and many of the talented and dedicated team members 

that make Federal Lands Highway the great organization that it is. As the new Associate Administrator for Federal Lands, I am humbled and honored to be a part 

of an organization that has done so much for our nation by assisting our federal land management agency partners in the planning, design and construction of 

context and environmentally sensitive transportation projects. These projects provide vital transportation improvements for Tribal communities and access to and 

within our nation’s parks, forests, wildlife refuges, and other federal lands. 

This year the Congress passed and the President signed the “Fixing America’s Surface Transportation Act.” The FAST Act is a five year authorization and provides 

the Office of Federal Lands Highway the opportunity to plan a five year program. Due to the lack of a multi-year surface transportation authorization and 

multiple short-term extensions, we haven’t had this opportunity in years. I’m excited about the next five years and the opportunities we now have to work with our 

federal land management agency partners in charting a path for the future. The FAST Act provides new authorities and funding increases in our core programs 

which will allow us to better serve our partners by developing innovative solutions and delivering quality projects that meet partner requirements.

The Office of Federal Lands Highway will continue our journey to become a single enterprise. While this transition will be transparent to our partners, it will allow 

the Office of Federal Lands to be more effective in providing practical, performance based solutions for our partners. The Single Enterprise Initiative involves 

making our systems consistent and transferable across Federal Lands Division boundaries which will allow us to share work and resources. This will enable the 

Office of Federal Lands to be more responsive to our partners and more efficient in our project delivery. In addition, the Single Enterprise enhances our investment 

in our most important resource — our people. 

The coming year marks the 100-year anniversary of the National Park Service and the Federal-aid Road Act. The relationship between our organizations 

represents the longest standing agreement between two federal agencies, an incredible legacy to build on. Congratulations on yet another year of success to the 

dedicated employees of Federal Lands and our many partners. Enjoy taking a few minutes to review our accomplishments in 2015. With a new transportation bill, 

2016 promises to be an exciting year, and we are ready for the challenge!

 

Tim Hess

Associate Administrator for Federal Lands

Federal Highway Administration
The Federal Lands Highway Program — 2015 The Year in Review

Our Role

The Federal Lands Programs 

The Tribal Transportation Program

Project Delivery Showcase

Emergency Relief for Federally Owned Roads 

Transportation Asset Management

Technical Assistance

The Federal Lands Highway Program

2015

The Year in Review

Table of Contents

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Front Cover: Sevenmile-Gooseberry Road, Utah

Back Cover: Snake River Overlook, Grand Tetons National Park, Wyoming

Special thanks to the Federal Lands employees responsible for taking the 

majority of the beautiful photographs contained in this report.

For additional information please visit flh.fhwa.dot.gov or contact our offices:

FLH HQ • (202) 366-9494 • federallands.fhwa@dot.gov

EFL • (703) 404-6201 • efl.fhwa@dot.gov

CFL • (720) 963-3500 • cfl.fhwa@dot.gov

WFL • (360) 619-7700 • wfl.fhwa@dot.gov

Federal Lands Offices

Western Federal Lands

Central Federal Lands

Eastern Federal Lands 
The Federal Lands Highway Program — 2015 The Year in Review

Blue Ridge Parkway, Virginia
The Federal Lands Highway Program — 2015 The Year in Review 1

The Federal Highway Administration (FHWA) Federal Lands Highway 

Program (FLHP) was established in 1982 to promote effective, efficient, 

and reliable administration for a coordinated program of public roads and 

bridges; to protect and enhance our Nation’s natural and cultural 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 (FS); 

U.S. Fish and Wildlife Service (FWS); 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, work 

restrictions, and challenging 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.

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 from 

scoping and preliminary design through the construction of a project. 

Within those areas, we support Innovation & Technology Deployment and 

Professional Development that comprise FLH’s four business lines. 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 34th year, the program and our role continue to expand to include 

more Federal partners and road networks. FLH expertise and credibility has 

grown to deliver a wider variety of transportation projects and improvements 

nationwide.

Our Role 

St. Croix National Scenic Riverway, Wisconsin

We are responsible for:

• Transportation Planning 

• Program Administration

• Project Management

• Environmental Compliance

• Preparation of Plans, Specifications and Estimates (PS&E)

• Contract Administration

• Construction Supervision and Inspection

• Technical Assistance to the Highway Community

Our engineering and technical expertise includes: 

• Highway and Bridge Design

• Survey and Mapping

• Hydraulics

• Geotechnical

• Traffic

• Safety

• Intelligent Transportation Systems

• Design Visualization

• Materials

• Consultant and Construction Contract Acquisition

• Road and Bridge Inventory and Inspection

• Asset Management

We employ practices and techniques of the FHWA Every Day Counts Innovations 

(EDC), designed to shorten project delivery, enhance durability and safety, 

improve environmental sustainability and increase efficiency through technology 

and collaboration in our daily business.
2 The Federal Lands Highway Program — 2015 The Year in Review

The Federal Lands Programs

Federal Lands and Tribal Transportation Program (FLTTP) 

The FLTTP established under the Moving Ahead for Progress in the 21st 

Century Act (MAP-21) authorizes annual funding through three primary 

programs: the Federal Lands Access Program (FLAP), the Federal Lands 

Transportation Program (FLTP), and the Tribal Transportation Program 

(TTP). Through these programs, FLH works with numerous Federal agencies 

and Indian Tribes as well as State and Territorial partners to deliver projects. 

The main purpose of the FLTTP is to provide financial resources and 

technical assistance to service FLMA transportation needs. 

Federal Lands Access Program (FLAP)

The FLAP provides flexibility for a wide range of transportation projects 

in the 50 States, the District of Columbia, and Puerto Rico. FLAP was 

established to improve state and county transportation facilities that 

provide access to, are adjacent to, or are located within Federal lands. FLAP 

supplements State and Local Agency resources for public roads, transit 

systems, and other transportation facilities, with an emphasis on Federal 

high-use recreation sites and economic generators.

Improvements may include safety enhancements, and environmental 

mitigation. The flexibility of the program allows for support of unique federal 

lands access in a multi-modal approach.

Federal Lands Transportation Program (FLTP)

The FLTP, authorized at $300 million, provides funding for the management 

and upkeep of approximately 50,000 miles of federal public roads and other 

assets comprising partners’ Federal lands transportation facility inventory, 

under the jurisdiction of the NPS, the FS, FWS, BLM, and the USACE. Of 

the three programs that comprise the FLTTP, the FLTP incorporates the 

performance based management priniciples outlined in MAP-21. These 

principles transform the business framework of the entire transportation 

industry by shifting to a data-driven results approach that involves 

establishing performance measures, setting performance targets, and 

annually assessing whether targets are met.

The NPS’ transportation system is supported annually by funds from the 

FLTP at $240 million. These funds are apportioned by formula among the 

seven NPS Regions. Most of these funds are used to pay for the work required 

to keep existing assets in good condition. There are some projects, within the 

NPS system, as well as within other FLMA systems, where the project needs 

are so great that the normal program funding within the region or even the 

national program are not sufficient. These projects may be of such magnitude 

and of nationally historic or regional significance, that additional means of 

funding must be found.

The recently approved Fixing America’s Surface Transportation (FAST) 

Act, has addressed the need for “Nationally Significant Federal Lands and 

Tribal Transportation Projects” which is intended to provide a reliable source 

of funding for priority projects like the Arlington Memorial Bridge for all 

FLMAs.

Ongoing emergency repairs under the FLTP, 

Arlington Memorial Bridge,Washington, DC

FLAP road reconstruction and 

installation of Aquatic Organism Passage 

and Animal Crossings, New Mexico State 

Highway 126, Jemez Mountain Trail 

National Scenic Byway, New Mexico
The Federal Lands Highway Program — 2015 The Year in Review 3

The Federal Lands Programs

Map-21 FY 15 Program Funding

$300 million FLTP

$250 million FLAP

$450 million TTP

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

program Delivery SUCCESS

90.1%

of the MAP-21 FY 15 Programs

were expended

1,300

Lane Miles (Completed Construction)

1,262

Lane Miles (Awarded)

82

Bridges (Completed Construction)

65

Bridges (Awarded)

Meeting Small Business Goals

FLMA Partners

Tribal Partners

State DOT Partners

Federal Lands Divisions

$462

$770

$98

$139

Total 1.47 billion — FY 2015

Program Funds Obligated by Executing Agent

$237

There are a number of contracting and procurement opportunities to support the FLH 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 FY 15, we 

surpassed the goals established by 

the Small Business Administration 

and the DOT in almost all socioeconomic categories. We strive to 

build upon this success in

FY 16 as we continue to look for 

opportunities to contract with 

small businesses.

Overall Funds Obligated

In 2015, $1.47 billion in Federal funds were obligated by Federal Lands and its partners. Of this amount, 

$770 million was obligated at our Division Offices. Another $462 million was delivered by Federally 

Recognized Indian Tribes through the BIA and FHWA. The remaining $237 million was transferred 

to our partners at various FLMAs and State Departments of Transportation (DOTs) for use on their 

projects and in administration of the Federal Lands Programs.

(Dollars in millions)

0%	
  

10%	
  

20%	
  

30%	
  

40%	
  

50%	
  

60%	
  

70%	
  

80%	
  

SB	
   SDB	
  +	
  8(a)	
  *	
   HUBzone	
   WOSB	
   SDVOSB	
  

67.1%	
  

35.0%	
   37.9%	
  

2.7%	
   5.3%	
  

Small	
  Business	
  Socio-­‐Economic	
  Program	
  

UJlizaJon	
  of	
  Small	
  Business	
  

Federal	
  Lands	
  Highway	
  Totals	
  
4 The Federal Lands Highway Program — 2015 The Year in Review

Tribal Transportation Program (TTP)

Bob Sparrow, Federal Lands TTP Director

addressed the audience at the 18th Annual National 

Tribal Transportation Conference

Heavy equipment operation 

training took place at the

Annual Conference

TTP Operations Manual Updates

Terry Schumann, TTP Environmental Specialist, led the development of the 

Tribal Transportation Program Operations Manual environmental chapter, 

which brought much needed consistency and streamlining to the TTP 

environmental process among FHWA and the twelve BIA regions. 

Terry Schumann conducting a training session 

at the FHWA/TTP Eastern Region Tribes 

Workshop in Oklahoma

The TTP, funded at $450 million, provides funds to the 567 federally 

recognized tribes to improve the transportation systems that are located 

within or provide access to Indian Country. These roads, bridges, and transit 

systems most often provide basic access to community services and help to 

enhance the quality of life of tribal members.

Federal Lands co-administers the TTP with the BIA and is responsible for 

the primary stewardship and oversight of program funds. More than 130 of 

the tribal governments operate their TTP directly through Program Funding 

Agreements with FHWA.

The Tribal Safety Funding set-aside provided $8.6 million in funding to 82 

tribes for 94 safety-related projects. The Tribal Bridge Program set-aside 

provided $8.6 million for the design and/or construction of 29 bridge projects 

in Indian Country. Technical assistance and capacity building continued 

to be of primary importance for the FLH TTP Team. In collaboration with 

the Tribes and FLMAs, various workshops and training sessions aimed at 

Tribal Transportation issues and opportunities, including policy, planning, 

funding, and technical training took place throughout the year. 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 communities.

Adam Larsen, TTP Coordinator presenting 

on Tribal Safety Management Programs
The Federal Lands Highway Program — 2015 The Year in Review 5

Tribal Transportation Program (TTP)

Members of the Ohkay Owingeh Road Crew were 

presented with certificates to acknowledge their 

accomplishment

Setting last girder into place and view of completed bridge

Ohkay Owingeh White Swan Bridge Ribbon Cutting

Pueblo, New Mexico

The Ohkay Owingeh can now construct bridges using Geosynthetic Reinforced Soil Integrated Bridge System (GRS-IBS). On August 12, 2015, Ohkay 

Owingeh workers delivered their replacement of a 60-foot span White Swan Road bridge using TTP funds and a $200,000 Accelerated Innovation Deployment 

Demonstration grant. 

Working with FLH, the Ohkay Owingeh staff carefully prepared for this EDC deployment by immersing themselves in the FHWA’s GRS-IBS guidance, and 

attending training provided by FLH. FLH also provided staff to assist the Pueblo with their problematic hydraulic assessment and scour analysis. Then to ensure 

the project launched successfully, a FLH Technology Coordinator worked side-by-side with the Pueblo workers to provide on-site advice and guidance as they 

constructed their first GRS abutment. 

By using in-house force account staff to rebuild the bridge as a GRS-IBS, the Pueblo saved 2-1/2 months of road closure time compared to the 4 months closure 

estimated for a conventional design-bid-build concrete structure. The detour used for the project routed local residents an additional 3 miles, thus the impact 

to them was minimized. Then, a project of similar size and scope delivered under traditional design and construction methods was estimated at $1,000,000. 

By using their own staff, the Pueblo replaced the four box culvert system with a single-span GRS-IBS for $419,331 saving an estimated $580,668. Within this 

amount, the estimated labor costs for an outside contractor to build the GRS-IBS would have been $105,000. The actual labor costs reinvested into the tribal 

community by using local force account labor was $52,103.

With their newly learned construction skills, the Ohkay Owingeh are now at the cutting edge of technology for replacing their small structures across the 

Pueblo. The community and the Tribal Council have expressed pride and pleasure with the outcome of the project. This project demonstrates how Tribal 

nations can rebuild their own bridges, maximize their limited funds, while employing members of their own communities.
6 The Federal Lands Highway Program — 2015 The Year in Review

Tribal Transportation Program (TTP)

Eek Community Street Improvements

Native Village of Eek, Alaska 

This project is a TTP funded replacement project of most of the boardwalks 

and boardroads in the Village of Eek. The project was developed by the 

Association of Village Council Presidents (AVCP) tribal consortium 

who provide social, economic and educational services to 56 federally 

recognized Native Alaskan tribes in the Yukon-Kuskokwim Delta, along the 

Southwestern region. 

The work is performed by AVCP Force Account crews. Force Account 

construction crews may be used to build TTP funded projects instead of 

construction contractors. The Force Account crews consist of people from 

local villages who are trained and hired by the local tribe or tribal consortium. 

Training may include welding and construction equipment operation. Using 

Force Account crews to build construction projects provides much needed 

economic development and jobs to tribal villages and reservations. Funding 

for training is generally an allowable use of TTP funds. Several TTP projects 

administered by Alaska Tribes or Tribal consortiums have been successfully 

constructed using force account crews in the last few years.

Aerial view of the Native Village of Eek

Sacaton Road Bridge Replacement

Gila River Indian Community

Phoenix, Arizona

Recipient of the 2015 Engineering News Record Best Projects Award in the 

Highways/Bridges Southwest Category

The Sacaton Road Bridge is the main outlet to the Phoenix area from the 

Gila River Indian Community. The old bridge, built in 1961, was frequently 

overtopped during heavy rain, roadway safety and hydraulic capacity were 

also factors of concern. The project was originally slated as a traditional 

design-bid-build project. However, insufficient funding and concerns over 

how long the road would have to be closed during new bridge construction 

stalled the project. What brought it back to fruition was funding the 

community received from the FHWA Tribal Transportation Bridge Program 

and additional support from the Strategic Highway Research Program 

(SHRP2). The Gila River Indian Community DOT replaced the bridge using 

the Every Day Counts (EDC) Construction Manager/General Contractor 

(CM/GC) delivery method, pre-fabricated bridge elements and slide-in bridge 

construction. 

During construction of the $2.7 million bridge, the older span remained 

open to traffic up until the final slide-in of new bridge sections occurred. The 

project featured the first lateral bridge slide in Arizona. The CM/GC delivery 

method created a collaborative, transparent, and trust-filled environment

that reduced construction time from an originally proposed 6-month

closure to just 10 days! Even with unexpected flooding of the project site 

during construction, the project was delivered under budget and without 

change orders. 

The construction team educated other industry 

professionals on accelerated bridge construction at 

seven different presentations, including inviting more 

than 100 people to the bridge slide.

Board installation

on steel framing
The Federal Lands Highway Program — 2015 The Year in Review 7

Tribal Transportation Program (TTP)

Installation of helical piers

Kongiganak Boardroad Replacement

Native Village of Kongiganak, Alaska

This project was also developed by the AVCP tribal consortium, and 

constructed by AVCP Force Account crews.

Welding and assembly of boardroad framing

Old Boardroad adjacent to the new replacement Framing in preparation for welding

Local welder
8 The Federal Lands Highway Program — 2015 The Year in Review

Project Delivery

Joyce Street provides multimodal access to the Pentagon 9-11 Memorial, Arlington National 

Cemetary and the Air Force Memorial in Arlington, Virginia

Humpback Bridge Replacement and Joyce Street Safety Improvements

George Washington Memorial Bridge, Virginia

Recipients of the 2015 Environmental Excellence Awards, Nonmotorized and Multimodal Transportation: Humpback Bridge Replacement and Joyce 

Street Improvements

Humpback Bridge and Joyce Street projects in the heavily traveled I-395 corridor of Northern Virginia advance the state of the practice in pedestrian and 

bicycle accommodations. In collaboration with the Virginia Department of Transportation (VDOT), the NPS, and Arlington County, FLH enhanced access 

for pedestrians and cyclists to destinations within our Nation’s capital, including the Pentagon, Arlington National Cemetery, and the Mount Vernon Trail. 

The George Washington Memorial Parkway Humpback Bridge replaced an historic bridge and filled missing links in the pedestrian and bicycle networks by 

incorporating two pedestrian/bicycle underpasses and adding a barrier-separated, 10-foot-wide, multi-use trail on the Bridge. The Joyce Street project widened 

sidewalks and trails and provided additional lighting to improve safety for nonmotorized transportation users as well as for accommodating a new street car 

line installation and access to nearby subway stations and bus stops. The success of the Humpback Bridge and Joyce Street projects demonstrates the value of 

incorporating bicycle and pedestrian accommodations in bridge and street reconstruction work.

Humpback Bridge carries the Mount Vernon Trail system over Boundary Channel along the Virginia side of the Potomac River 
The Federal Lands Highway Program — 2015 The Year in Review 9

Project Delivery

Isa Lake Bridge Replacement Project

Yellowstone National Park, Wyoming

The new Isa Lake Bridge spans a section of road connecting West Thumb 

and Old Faithful in Yellowstone National Park replacing a historic timber 

log stringer bridge. In an effort to match the historic look of the previous 

structure several aesthetic features were added, including: 29” diameter halfround fascia logs attached to the outside faces of the concrete slabs, simulated 

timber cast in place concrete rail posts and pier cap extensions, and 14” 

diameter round log bridge rails.

The 70-year-old Isa Lake Bridge is located atop Craig Pass at an elevation of 

8,262 feet. Isa Lake, which actually is more pond than lake, sits within Craig 

Pass, and is famous because it drains to two different oceans. This is a special 

location as spring runoff empties into Isa Lake, the waters swell and overflow 

its tiny borders. When this happens, the Lake does something extraordinary. 

Not only does it empty into two oceans, but it does it backwards! The east 

drainage flows into the Pacific, while the west drainage makes the long trek to 

the Gulf of Mexico.

A previous inspection found the bridge to be in poor condition and 

replacement was recommended. An environmental assessment of the bridge 

reconstruction project resulted in a Finding of No Significant Impact, 

allowing the existing Isa Lake Bridge to be removed and a bridge of similar 

appearance to be built on the existing alignment. The main objective of the 

replacement was to reestablish a historic structure within the Park.

The new bridge was designed and constructed to replicate the historic one 

with modern means, methods and materials. It was constructed using steel 

pipe piles, concrete piers with simulated log caps, precast, pre-stressed 

concrete slab beams, a concrete deck covered with hot asphalt concrete 

pavement, simulated log safety post (concrete), timber safety rails and large 

timber fascia logs to cover the sides of the concrete curb, deck and beams.

Painting the concrete (simulated wood) 

pier caps

Installing the first fascia

logs to the bridge deck
10 The Federal Lands Highway Program — 2015 The Year in Review

Project Delivery

Cattle Point Road

San Juan Island National Historical Park, Washington

Cattle Point Road, part of the San Juan Islands Scenic Byway provides sole access to residents who live on the southeast tip of San Juan Islands and also 

accommodates more than 250,000 visitors annually to the San Juan Island National Historical Park, Cattle Point Lighthouse and the Interpretative Center for 

Washington State Department of Natural Resources. That number includes hikers, bicyclists, beach walkers and site-seers. Years of coastal erosion at the base of 

the bluff that supports Cattle Point Road threatened collapse of about 500 feet of the roadway, jeopardizing the adjacent telecommunication and power utilities. 

The persistent erosion and threat of potential road collapse prompted San Juan County officials to begin planning for relocation of the stretch of roadway back 

in 2001. The project was selected through a competitive application process for Fiscal Year 2013 to receive about $4 million in FLAP funding combined with 

about $1 million of local match to deliver the project.

In partnership with the NPS San Juan Island National Historical Park, Washington State Department of Natural Resources, and San Juan County, FLH designed 

a project to realign a 4,950-foot section of the road and make improvements to the two scenic vistas located at each end of the project along with the Mount 

Finlayson’s eastern trailhead. The realignment is expected to prolong the life of the roadway by more than 70 years and also allow for upgrade of the many 

utilities that lie within the road corridor, serving the south end of the island.

At its south end, Cattle Point Road connects the neighborhoods of Cape San Juan and Cattle Point Estates to other areas of the island, and provides access to a 

historic lighthouse and a popular viewpoint overlooking Cattle Pass and the Olympic Mountain Range beyond. Cattle Point Road essentially provides the only 

roadway leading to and from the south. The realignment moved the road 300 feet uphill, the scar of its original location will soon be barely visible with the 

regrowth of native vegetation. In celebration of the completion of the Project, a ribbon cutting ceremony, was held on Thursday, October 15, 2015. 

Views of the realignment, the original road location will soon be filled in with native vegetation leaving the scar barely visible
The Federal Lands Highway Program — 2015 The Year in Review 11

Project Delivery

Blue Ridge Parkway, Ice Rock and Alligator Back

Alleghany County, North Carolina

Chosen as the first CM/GC contract for EFL, this project is within the oldest and most historic section of the Parkway. The Ice Rock and Alligator Back curves 

are high-accident locations because of the water and ice on the roadway emitting from the rock cut slopes. The project called for slide stabilization utilizing 

soil nails and Geosynthetic Reinforced Soils (GRS), reconstruction of settled and deteriorated stone masonry retaining walls, and the construction of new 

concrete corewall. The NPS requirement to maintain the appearance and character of the existing historic walls along the Blue Ridge Parkway was critical. The 

historic stone walls, contributing elements to the historical significance of the Parkway, are comprised of large native boulders and had to be salvaged for reuse in the replacement walls. One of the deliverables from the CM/GC firm was a constructability report to identify cost, schedule risk elements, and evaluate 

innovative approaches to deliver the project. The CM/GC participated in a Value Analysis workshop, and provided input into advantages/disadvantages of 

several alternatives. As a result, the government determined that the best and most cost-effective retaining wall reconstruction alternative would reuse existing 

historical stone in combination with GRS construction. The goal of maintaining the visual and historic character of the walls was met.

Though not as prevalent in other federal land units, stone paved 

waterways are common drainage features along the Parkway 

Views of the stone masonry walls
12 The Federal Lands Highway Program — 2015 The Year in Review

Project Delivery

Steinwehr Avenue Improvements — Road Diet

Gettysburg, Pennsylvania

Steinwehr Avenue is an historic battle roadway through the Borough of Gettysburg, surrounded by visitor service-oriented businesses and the neighboring 

Gettysburg National Military Park Visitor Center. When the original Park Visitor Center was moved further away, businesses along Steinwehr Avenue suffered 

significant loss in revenue and tourist traffic. In alliance, the Borough, the Business Improvement District, the NPS, pedestrian groups and Pennsylvania DOT 

partnered to develop a revitalization plan to refresh the Steinwehr corridor. This project applied the principles of a “road diet” to complete the second and final 

phase of Steinwehr from Baltimore Avenue to the Park Entrance near Long Lane. Several key improvements were recommended to retain and improve

on-street parking, streetscape furniture and landscaping, pedestrian sidewalks, and separated bicycle lanes. The road diet, a safety-focused EDC initiative, 

is a low-cost strategy that reallocates a roadway cross-section to safely accommodate all users, increase mobility and access, reduce crashes and improve a 

community’s quality of life.

View of bike lanes looking north toward Baltimore Avenue (after)

View of widened brick-paved sidewalks and landscaping looking north across from Park

Looking south toward Park Entrance (on left) note drainage improvements

Looking north 

toward Baltimore 

Avenue (before)
The Federal Lands Highway Program — 2015 The Year in Review 13

Project Delivery

Tuolumne Grove Trailhead and Parking Area Enhancements

Tioga Road Corridor Improvements

Yosemite National Park, California 

This project, located near the Tuolumne Grove of Giant Sequoias, provided 

improved traffic flow and general access improvements, new interpretive 

signs, additional parking, improved restrooms, and an enhanced picnic area.

Devil’s Courthouse Tunnel Rehabilitation

Blue Ridge Parkway, North Carolina

Devil’s Courthouse Tunnel was originally constructed in 1941. This project 

made repairs to the aging drainage system and concrete lining inside the 

tunnel requiring a full road closure, in the interest of visitor safety the tunnel 

was sealed and inaccessible to any traffic during this project 

The Blue Ridge Parkway is recognized internationally as an example of 

landscape design achievement and Parkway tunnels are a significant design 

feature along the historic route. Twenty-five of the twenty-six tunnels along 

the Parkway are in North Carolina, with all Parkway tunnels representing 

36% of the entire NPS tunnel inventory. Tunnels along the Parkway were 

often constructed to reduce excessive scarring that open cuts would entail, 

enabling the Parkway to cross through ridges in the interest of maintaining 

the most desirable route location. The distinctive stone masonry portals on 

most Parkway tunnels were generally not part of the original construction, 

but added later in the 1950s and 1960s.

Devil’s Courthouse Tunnel 

stone portal entrance and 

inside look at the new 

concrete lining

Views of roadway, parking 

and facility improvements
14 The Federal Lands Highway Program — 2015 The Year in Review

Project Delivery

Picture Rocks and Sandario Roads

Saguaro National Park, Arizona

Recognized by the National Park Service Traffic Safety Coalition as the 

recipient of the 2015 Safety Engineering of the Year Award

The Saguaro National Park project implemented recommendations from a 

Road Safety Assessment conducted in 2012. At that time, and for the past five 

years a total of nine fatal crashes occurred, of which five occurred in 2012. 

Picture Rocks Road has more than ten times the daily traffic volume of other 

park interior roads and is open year round. The 35 mph and 40 mph speed 

limits were often exceeded by an average of 10 mph. The roadway alignment 

had never been engineered for motor vehicle traffic as it had once been a 

winding stock trail. Conversely, Sandario Road is wide and straight with sight 

distance issues in many areas. The assessment recommendations included 

improving site distance, striping width, road edge fill and warning signs; 

raising pavement markers, installing rumble strips along curves and trail 

crossing areas.

As a result of a $1.4 million traffic safety improvement plan, state of the 

art traffic signs, radar speed limit signs and several other road engineering 

features were constructed and installed on park roadways. The improvements 

brought an approximate 80% reduction in overall collisions and an 

approximate 89% reduction in injury and fatal collisions.

Traffic collisions are now relatively rare on Picture Rocks and Sandario Roads 

garnering the appreciation of local citizens and community members.

This project has resulted in greatly improved traffic safety for all road users, 

park visitors, park employees, and thousands of daily commuters. And has

also greatly reduced the natural resource damage associated with “offroadway” crashes. 

Improvements near the Park Visitor Center

The completed roadway, trail and pulloff

Motor Nature Trail Bridge Replacement

Great Smoky Mountains National Park, Tennessee

The Roaring Fork Motor Nature Trail invites you to slow down and enjoy 

the forest, this project replaced the eight bridges along the route. The 5.5 

mile long, one-way, loop road is a very popular route that allows for views 

of rushing mountain streams, old-growth forest, and a number of wellpreserved log cabins, grist mills, and other historic buildings from the 

comfort of a vehicle. The motor trail also leads to several popular hiking trails 

and foot paths.

Views of the replacement 

bridges along one of the 

most narrow roads in 

Great Smoky Mountains 

National Park
The Federal Lands Highway Program — 2015 The Year in Review 15

Project Delivery

Province Lands Bicycle Trail Bridge Replacement

Cape Cod National Seashore, Massachusetts

The Province Lands Bike Trails original underpasses were arch constructions 

with low vertical clearances. The low clearance presented a safety hazard for 

cyclists passing through the concrete portals. To eliminate the safety hazard, 

NPS requested assistance with replacement of the existing arches with larger 

structures providing more adequate clearance. 

The best solution to suit the needs for the project was GRS-IBS construction. 

This method for replacement cost effectively eliminated the safety hazard, 

accelerated construction during the peak visitation season, and minimized 

ground disturbance to the wetland area. Overall, this method provided the 

best solution for the NPS.

Before

After

Mooney Road

Lassen Volcanic National Park, California

Recipient of the 2015 Roads & Bridges Asphalt Recycling and Reclaiming 

Association (ARRA) Award

By the beginning of 2014, Mooney Road through California’s Sierra Nevada 

Mountains was showing considerable wear and rutting. The road gets lots 

of heavy truck traffic for logging, plus lots of snow and ice build-up in the 

winter. In addition to logging traffic, Mooney Road serves as a cutoff between 

Highways 36 and 44, carrying vacationers through Lassen Volcanic National 

Park to Lake Almanor in the summer.

The road had deteriorated to the point where an overlay was not going to 

be sufficient. Cold in-place recycling (CIR) had been used successfully on 

another portion of Mooney Road, so the design team opted to try it again. 

This time around, the result was chosen as a 2015 Roads & Bridges/ARRA 

Recycling Award winner.

While fairly remote, Mooney Road generates enough traffic that the 

project team had to keep the connector open throughout the duration of 

construction. In the end, any concerns about the short project window were 

unfounded, the project was wrapped up by early September, a full six weeks 

ahead of schedule!

Recycling and revitalizing the existing pavement also saved the project team 

from having to haul materials in and out of the jobsite — a perk considering 

the site’s remote, mountainous location. When the elimination of cost to 

remove and replace the existing pavement was factored in, it was calculated 

that a total of $785,000 was saved by using CIR.

One of two cold mills

tackling the 7-mile stretch

of Mooney Road

The completed roadway
16 The Federal Lands Highway Program — 2015 The Year in Review

Project Delivery

Mount Vernon Trail Bridge

Potomac Heritage National Scenic Trail

George Washington Memorial Parkway, Virginia

This project replaced a 278 foot long, 10 foot wide pedestrian/bicyclist timber bridge located on the Mount Vernon Trail, a part of the Potomac Heritage Trail, 

of the George Washington Memorial Parkway. The trail is an 18-mile long multi-use trail located next to the George Washington Memorial Parkway. Helical 

piles were placed at the exact location of the existing timber piles, so there would be minimal disturbance to the existing wetlands. For additional environmental 

protection construction access was limited to the footprint of the existing bridge and the contractor used timber matting over separation geotextile to 

protect the existing ground and vegetation. The acquisition documents included pass/fail selection criteria for experience with helical piles and timber bridge 

construction, ensuring selection of a capable contractor. The Park was extremely satisfied with the contractor’s ability and the finished project. Construction of 

the project took just three months to complete.

Views of the completed trail bridge emphasize the care taken to minimize impact on 

the environment
The Federal Lands Highway Program — 2015 The Year in Review 17

Project Delivery

Guanella Pass Road

Denver, Colorado

This project included approximately 9 miles of reconstruction and was the 

3rd and final construction phase for Guanella Pass Road (Forest Road 80). 

Guanella Pass Road consisted of over 23 miles of full reconstruction and 

realignment major grading, drainage, aggregate base, superpave asphalt 

pavement, form liner concrete retaining walls, mechanically stabilized earth 

walls, rockery walls, and bridge construction totaling nearly $80 million in 

total construction costs.

Guanella Pass Road provides critical connectivity between the I-70 corridor 

and US-285 and maintains access to many year-round recreational activities. 

The surrounding area provides habitat for many forest species. The 

inception of the project, in the late 1980s, resulted in a multi-agency effort in 

cooperation with Clear Creek County, Park County, the City of Georgetown, 

the Pike National Forest, and the State of Colorado to complete one of the 

most challenging projects the CFL has delivered. 

This project was developed across environmental boundaries, technical 

engineering challenges, and multiple highway bills, resulting in long lasting 

positive partnerships. It is a profound testament to our commitment to 

program delivery and providing valuable context sensitive solutions to our 

stake holders and the public. This concludes one of the great Forest Highway 

Legacy Routes and is the culmination of nearly 30 years of development 

activities that provided critical safety upgrades to one of Colorado’s most 

popular high mountain passes.

Views of the completed roadway and the surrounding scenery
18 The Federal Lands Highway Program — 2015 The Year in Review

Project Delivery

Convict Lake Road and Trail Improvements

Inyo National Forest, California

Nature trail reconstructed and rehabilitated to improve accessibility provides easy access to the east side of Convict lake at the base of Mt. Morrison

Roadway rehabilitation and widening 

to improve safety and provide for 

shared vehicular, pedestrian, and 

bicycle use along the corridor
The Federal Lands Highway Program — 2015 The Year in Review 19

Project Delivery

Sevenmile-Gooseberry Road

Fishlake National Forest, Utah

This project completes full reconstruction of almost 10 miles of roadway to 

improve the alignment, grade, and width of the road to current standards. 

At the south end of the project, over 1 mile of the roadway was completely 

realigned and shifted to the opposite side of Sevenmile Creek to avoid 

continued impacts due to the proximity of the road to the waterway, which 

resulted in bank erosion and roadway sediment polluting the creek. To 

mitigate for unavoidable impacts, a 6.2 acre wetland mitigation site was 

constructed to create a palustrine emergent marsh, scrub/shrub, and 

forested wetland habitat. This final phase of the project transformed a rough 

gravel road, not wide enough along much of its length for two vehicles to 

safely pass, into a roadway that meets modern design and safety standards. 

The completed project has created better highway continuity and greatly 

improved access to one of the most beautiful areas of Fishlake National 

Forest, benefitting local economies, reducing dust and erosion impacts, 

addressing the negative effects the original roadway had on the environment.

Completed roadway 

view toward Johnson 

Reservoir

Wetland mitigation area, with 

new plantings

Completed roadway view looking north of the Sevenmile Valley

View of the completed roadway facing Fishlake Mountains and Fishlake National Forest
20 The Federal Lands Highway Program — 2015 The Year in Review

Project Delivery

Wallops Island Causeway Bridge, Access to Wallops Flight Facility

Chincoteague, Virginia

Recognized by the Baltimore-Washington DC Chapter of the 

International Concrete Repair Institute (ICRI BWDC) 2015 Outstanding 

Repair Project Award — 3rd place

The Wallops Island Causeway Bridge rehabilitation was Federal Lands first 

large scale project using Fiber Reinforced Polymer (FRP). This method proved 

best to deal with section loss and the load demand that NASA requires 

to transport its space launch equipment to the Flight Facility. The bridge 

required a solution that would restore the girders back to their original load 

carrying capacity as well as protect the internal steel pre-stressing strands 

from further corrosion.

Carbon Fiber Wrap being installed after repair of 

beam surface

Close-up of beams after repairs were completed

and the finish coat was applied

Causeway Bridge

I-95 South Ramp at Fort Belvoir North

Springfield, Virginia

The Fort Belvoir North Defense Access Road Project provides new access to 

I-95 South via this High Occupancy Vehicle/High Occupancy Traffic (HOV/

HOT) Ramp. The ramp is a one-lane reversible access road that initially will 

provide PM access from Fort Belvoir North to I-95 southbound HOV/HOT 

lanes and I-95 northbound general purpose lanes, but is configured to allow 

for AM access to Fort Belvoir North from the northbound HOV/HOT lanes 

in the future. The ramp tied in perpendicular to an existing flyover structure 

which required the use of a unique joint to allow for horizontal and vertical 

movement.

New ramp providing access to I-95 South HOV/HOT lanes and I-95 North general purpose 

lanes from the National Geospatial-Intelligence Agency Parking Lots, Fort Belvoir North, 

Springfield, Virginia
The Federal Lands Highway Program — 2015 The Year in Review 21

Project Delivery

Visitor Center Access Road and Parking

Browns Park National Wildlife Refuge, Colorado

The Browns Park National Wildlife Refuge is located along the Green River in 

northwest Colorado. The 12,150 acre valley provides sanctuary for migratory 

birds, and endangered and threatened species. The existing entrance and 

headquarters roads were gravel and in poor condition due to heavy rain 

events and erosion. The roads to the Visitor Center required frequent 

maintenance in order to maintain safe driving conditions and prevent 

flooding.

The purpose of the project was to improve overall public access within the 

Refuge and reduce maintenance. The project provided a 0.45 mile paved 

driving surface, paved parking area, and improved ditch capacity and drainage 

culverts throughout the entrance and headquarters roads. Construction 

began in mid-August 2015 and was complete in less than 30 working days! 

The Browns Park Wildlife Refuge is very thankful and pleased with the 

project, the upgraded facility will make for improved visitor experience.

J to H Spillway Bridge Replacement

Seney National Wildlife Refuge, Michigan

This project consisted of the replacement of the J to H spillway bridge on 

Fishing Access Road within the Seney National Wildlife Refuge. The work 

included removal of the existing one lane, ten span timber bridge, abutments, 

and piers, followed with construction of a one lane, three span, prestressed 

concrete box girder bridge, and reconstruction of the aggregate roadway. The 

most important point being that this Accelerating Bridge Construction (ABC) 

with. Prefabricated Bridge Elements & Systems (PBES) project was fully 

constructed during the winter months in Michigan!

before and after

before and after
22 The Federal Lands Highway Program — 2015 The Year in Review

Project Delivery

Frenchman’s Bay Road Widening and Reconstruction Project

St. Thomas, US Virgin Islands

The Frenchman’s Bay Road corridor is the first impression visitors arriving via 

cruise ship have of St. Thomas. This road links one of the world’s top cruise 

destinations to one of the best shopping districts (Charlotte Amalie) in the US 

Virgin Islands. The Virgin Islands Department of Public Works recognized 

this and, in cooperation with EFL, initiated the planning, design and 

construction improvements of Frenchman’s Bay Road. In addition to roadway 

reconstruction and widening, the project included utility upgrades, sidewalk 

construction, traffic signals, and landscaping. 

Heli Pad Construction 

Swain & Graham Counties, North Carolina

A ribbon-cutting ceremony was held on Friday, October 30, 2015, in 

celebration of the completion of a new helipad near Tsali Recreation Area, 

a perfect example of the flexibility of the FLAP. This helipad will improve 

emergency response access and provides the Mountain Area Medical Airlift 

with a safe area to land and take-off when transporting accident victims, 

or patients in emergency situations to nearby medical facilities. With the 

completion of this helipad both Swain and Graham County’s EMS can 

provide quick emergency response to areas like the Nantahala National 

Forest, Tsali Recreation Area, and Nantahala Gorge. Just five and a half hours 

after the ribbon cutting, the new landing site was put to use in response to a 

medical emergency.

Helipad is quickly put to use in an emergency just hours after the ribbon cutting

Views of reconstructed 

and widened roadway 

that now allows for 

safer pedestrian 

passage from cruise 

ship docks
The Federal Lands Highway Program — 2015 The Year in Review 23

Project Delivery

Butte Creek Bridge Replacement

West Branch Feather River Bridge Rehabilitation

Butte County, California

On April 3, 2015, CFL celebrated completion of this BLM project with 

a ribbon cutting. The original bridges, constructed in the 1930s, had 

deteriorated and their load ratings had been reduced to three tons because 

of safety concerns. The Butte Creek Bridge now meets federal highway 

load standards, and the rehabilitated West Branch Feather River Bridge, is 

now rated to carry 17 tons. Access to the area is vastly improved to include 

crucial access for firefighting equipment and providing residents with an 

upgraded wildfire escape route. The bridges not only provide access into the 

BLM’s Forks of Butte Recreation Area, which are popular for camping and 

gold panning, but also provide access for many homes in the area. The road 

improvements also greatly benefitted local fish habitats by reducing

the amount of sediment flowing into Butte Creek and the West Branch 

Feather River.

Butte Creek

Bridge Before 

Butte Creek Bridge After

West Branch Feather

River Bridge Before 

West Branch Feather River Bridge After

West Side Truck Escape Ramp

Daniel K. Inouye Highway (Saddle Road), Hawaii

Improvements along the Daniel K. Inouye Highway included roadside 

drainage, the construction of a parallel truck escape ramp, and the installation 

of intersection lighting as the highway approaches the State Route 190 

(Mamalahoa Highway) intersection.
24 The Federal Lands Highway Program — 2015 The Year in Review

Project Delivery

Ketchum-Challis Highway 

Sawtooth National Recreation Area, Idaho

The Ketchum-Challis Highway runs along the Salmon River in the Sawtooth National Recreation Area. Western was tasked to reconstruct a 1 mile section 

where the highway is pinched between the Salmon River and a steep mountainside. The section of highway was plagued with instability and continuous rockfall. 

There were multiple visual quality objectives (VQOs) for the area that had to be achieved during design. The major project features that were affected by the 

VQOs included the retaining walls and the rockfall mitigation elements.

Scaling, rock bolting, rock doweling, draped contoured mesh, and attenuator fences were used to mitigate the rockfall hazard. A context sensitive innovation 

used in the design included the “contoured” mesh, whereby rock pins were used to pull the mesh tight against the slope to prevent an unsightly waterfall effect. 

In addition, all of the steel materials used in the rockfall mitigation elements were galvanized for corrosion protection but treated with a product that provided 

a weathered appearance on the surface of the galvanization so that the steel materials visually disappear into the native scenery. A rock stain was also applied to 

the limits of the original cut slope to provide a natural patina to the rock so it would blend with the native rock outcroppings above. 

The retaining walls achieved the widening needed for guardrail installation and to stabilize the outside roadway shoulder. The walls were broken up as much 

as possible through the corridor to prevent continuous linear features viewable from the river. Sculpted and stained shotcrete facing was used so that the walls 

would blend with the rock in the cut above the road.

View of the stained shotcrete facing above the roadway

Stained stone retaining walls and guardrails Contoured mesh and rock pins barely visible on the slopes
The Federal Lands Highway Program — 2015 The Year in Review 25

Project Delivery

Milner Loop Road Reconstruction

Milner Historic Recreation Area, Idaho

The purpose of the project was to improve safety and address storm water 

drainage. Work included realignment of two sections; one constructed a new 

intersection with Trout Point Road to improve sight distance and the second 

addressed safe passage of larger vehicles under the railroad trestle. The 

project also included reconstruction of a railroad grade crossing, installation 

of approximately five-hundred feet of new culverts, new cattle guards, placing 

new aggregate base and paving the roadway and the site center parking area.

Before

After, from both directions

Before

After
26 The Federal Lands Highway Program — 2015 The Year in Review

Emergency Relief for Federally Owned Roads (ERFO)

In May of 2015, heavy rains inundated several facilities in five states 

(Arkansas, Kansas, Montana, Oklahoma, Texas) resulting in an estimated 

$30 million in damage. The event reached across 2 Federal Lands Highway 

Divisions and affected 4 FLMAs: FS; NPS; USACE; FWS. All Federal Lands 

ERFO personnel responded to this disaster and arranged an emergency 

training session in Dallas, Texas that involved the entire USACE South 

Western District as well as personnel from the NPS. Dozens of damage sites 

were identified and documented. In addition to this consolidated rain event 

there were also several other emergency situations within our Federal lands 

this year.

View of washout at Shawnee Creek, State Highway 91, Texas

3	
   View of flood damage at Hugo Lake, Oklahoma

2	
  

1	
   1	
  

3	
  

2	
   2	
  

3	
  

4	
  

2	
  

3	
  

1	
  

0	
  

1	
  

2	
  

3	
  

4	
  

5	
  

Arkansas	
   Kansas	
   Kentucky	
   North	
  

Carolina	
  

Oklahoma	
   Oregon	
   South	
  

Carolina	
  

South	
  Dakota	
   Texas	
   Virginia	
   Washington	
   West	
  Virginia	
  

2015	
  ERFO	
  Events	
  by	
  State	
  

11	
  

4	
  

3	
  

4	
   4	
  

1	
  

0	
  

2	
  

4	
  

6	
  

8	
  

10	
  

12	
  

Forest	
  Service	
   Fish	
  and	
  Wildlife	
  Service	
   Na:onal	
  Park	
  Service	
   U.S.	
  Army	
  Corps	
  of	
  Engineers	
   Bureau	
  of	
  Indian	
  Affairs	
   Bureau	
  of	
  Land	
  Management	
  

2015	
  ERFO	
  Events	
  by	
  FLMA	
  
The Federal Lands Highway Program — 2015 The Year in Review 27

Emergency Relief for Federally Owned Roads (ERFO)

Completed Flood Repairs, Galinas Canyon Forest Road, Santa Fe National Forest, New Mexico 

Jamaica Bay Wildlife Refuge

North Channel East and West Parking Areas

Gateway National Recreation Area, New York

The two parking areas were damaged during Hurricane Sandy and restored 

in July of 2015. The work involved removing damaged portions of the 

existing parking areas to reduce the overall dimensions of the lots, and 

stabilizing the embankment to prevent further undermining of the parking 

areas. The project location is a favorite nesting spot for horseshoe crabs 

so straw bales were used to prevent them from entering the site during 

construction. The slope protection was constructed of a layer of riprap and a 

layer of landscape stone which were then choked with sand.

Drainage Repairs (Before & After), Figueroa Road, Los Padres National Forest, California

Examples of damaged parking areas

Stabilization

View of the completed project
28 The Federal Lands Highway Program — 2015 The Year in Review

Emergency Evacuation Access Route

Pahoa, Hawaii

When lava began flowing from Kilauea Volcano’s Pu’u O’o vent towards the 

community of Pahoa, on the Big Island of Hawaii officials were concerned the 

area would be cut off from all access. Based on the flow location, direction 

and advancement, it was expected to cross State Highway 130, where 

approximately 10,000 cars traveling through Pāhoa daily on the way to school 

or work have only makeshift, one-lane gravel and dirt road access in the lava 

flow’s probable path. Once access is blocked, the residents in the southeast 

corner of the Island would not have a viable route over land to connect them 

with the rest of the island. In response to the impending need, the Hawaii 

Volcanoes National Park authorized construction of an emergency evacuation 

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

lava flow. The route would connect to the southern section of State Route 130 

and maintain emergency evacuation access. 

The long standing partnership between the NPS and FLH, in cooperation with 

the FHWA Hawaii Division office, resulted in the NPS requesting assistance to 

provide technical support to the County of Hawaii during construction of the 

evacuation route. CFL staff quickly mobilized on-site to perform geophysics 

investigations 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, to ensure the best interests of 

the stakeholders were met. 

Ground breaking of the 7.7 mile emergency project within the Park began 

October 24, 2014, the same day the Governor of Hawaii requested a 

Presidential Disaster Declaration. Construction was completed April 9, 2015.

Emergency Relief for Federally Owned Roads (ERFO)

Lava flows in the 1980’s closed the 

Chain of Craters Road

Extreme care was taken to minimize the disturbance and complement the 

adjacent lava features and surrounding environment

Bulldozer as it begins to cut through the lava for the new roadway alignment 

The new alignment will remain closed, but ready to 

serve as an emergency evacuation route 
The Federal Lands Highway Program — 2015 The Year in Review 29

Fire Island Lighthouse Dock

Fire Island, New York

The Fire Island Lighthouse ferry/water taxi dock was completely destroyed during Hurricane Sandy eliminating a key entry point into the Seashore. Somewhat 

different than traditional FLH projects, the site was almost entirely in-water construction with demolition and pile driving work requiring the use of 

construction barges.

Emergency Relief for Federally Owned Roads (ERFO)

Lighthouse dock after Hurricane Sandy Pile driving from construction barge Reconstructing water taxi dock

Views of the completed dock
30 The Federal Lands Highway Program — 2015 The Year in Review

Transportation Asset Management

Pavement Preservation Program

National Park Service Southeast Region (NPS SER)

Pavement preservation involves applying a series of low-cost treatments 

every few years to a road segment, that is at a minimum in good condition, 

to halt further deterioration. If the pavement surface and substrate have not 

significantly deteriorated, relatively inexpensive treatments can keep water 

out of the pavement, prevent oxidation of the asphalt, and maintain good skid 

resistance. In addition, the road surface can also be kept looking attractive. All 

of which are important factors for national park roads.

A more efficient and cost-effective approach is needed to maintain park roads 

and meet expectations for safety, ride quality, and optimum traffic flow, while 

protecting investments made in the park transportation networks.

The NPS SER program covers all SER Parks Paved Roads (not including roads 

within the Blue Ridge Parkway, Great Smoky Mountains National Park, or 

Natchez Trace Parkway) and establishes a strategic plan to place a seal coat 

or other asphalt surface treatments on paved roads and parking areas in the 

SER on a seven to ten-year cycle. In order to achieve maximum efficiency, the 

SER Parks are split into seven sub-districts, and each sub-district’s parks will 

be bundled into a single contract each year. The single contract will provide 

the project size necessary to maximize the cost-effectiveness of the pavement 

preservation treatments (i.e., to gain economy of scale). Only one district 

will be treated per year, so the Highway Pavement Management Application 

(HPMA) was used to develop the order in which the sub-districts would be 

treated to maximize the life-cycle benefits to the region overall. The first

FY 16 project was recently advertised.

Road Safety Audit (RSA) Program

USDA Forest Service (FS) Transportation Safety Program

In support of the USDA Forest Service Transportation Safety Program, 

FLH is conducting a series of Road Safety Audits (RSAs) in all nine regions 

of the FS. Eastern, serving as program manager and project coordinator 

will select one high priority FS unit in each region based on crash data, 

traffic volumes, roadway alignment and anecdotal information. Work is 

progressing to evaluate existing infrastructure and operational conditions of 

selected high priority need locations. RSAs are presently being conducted 

and a comprehensive report will be developed with safety improvement 

suggestions. This effort is a significant accomplishment to meet MAP-21 

national goals and performance management measures for safety.

View of a stretch of roadway condition showing visible cracks, a condition suitable for 

pavement preservation treatment as a low cost alternative to extend the life of the pavement 

at Canaveral National Seashore, Florida Road Safety Audits in process 
The Federal Lands Highway Program — 2015 The Year in Review 31

Transportation Asset Management

FLH Road Inventory Program Coordinator shares information 

on the use of an IPad software program for road data 

collection to representatives from the BLM at a trip to 

Nestucca River, Oregon. This software is under development 

for use in FWS, BLM and BOR road data collection and is 

intended to streamline the field process and provide immediate 

updates to each partner’s maintenance management system. 

The FLH NPS Paved Road Inventory Program Team gathers data both manually and with the use of the Data Collection 

Vehicle at Fort Vancouver National Historic Site before moving on to Mount Ranier National Park. The team also assembled 

for an annual training meeting for procedural review, and discussion on NPS data collection needs for the remainder of 

Cycle 6 (current NPS cycle starting in 2014). 

Road Inventory Program Data Collection Methods
32 The Federal Lands Highway Program — 2015 The Year in Review

Two key components needed to support a performance-based FLTP include defining one’s official Federal Lands Transportation inventory followed by 

collecting condition data on roads and bridges to establish baselines. Most FLTP partners possess condition data. A notable project led by FLH with partners, 

was an assessment of partners’ existing methodologies for collecting and reporting road condition data. One objective of the assessment was to ascertain if a 

single method could be identified and cross-walked with partners current practices to promote consistency in performance reporting. The Road Condition 

Crosswalk Assessment took place this year, with ground verification exercises in Nevada and New Mexico. The field assessments were an important step in 

developing standard reporting metrics for paved, native and gravel roads. At least one field assessment was attended by representatives from the NPS, FWS, 

BLM, FS, USACE, and the BIA. Following the conclusion of the effort, it was determined that a crosswalk approach from multiple methodologies to one 

approach was too difficult and resource intensive. The assessment did unveil opportunities to reduce the current list of methodologies to two, namely the use of 

the Pavement Surface Evaluation and Rating (PASER) tool for asphalt, native and gravel roads and Pavement Condition Rating (PCR). Moving multiple partners 

to a common set of road condition data collection methodologies will take time. This effort was instrumental in providing the long-term vision to support a 

performance-based program.

Field assessment involving representatives from various FLMAs — New Mexico

Transportation Asset Management
The Federal Lands Highway Program — 2015 The Year in Review 33

Collecting condition data

Discussing data collection

methods and findings

Transportation Asset Management
34 The Federal Lands Highway Program — 2015 The Year in Review

Transportation Asset Management

FLH Bridge Inspection Program

The Bridge Inspection Program is responsible for the safety inspection and structural rating of approximately 2,700 structures owned by various FLMAs in 

accordance with the National Bridge Inspection Standards (NBIS). 

The scope of the program includes risk-based condition assessments for safety and structural adequacy, evaluations for serviceability and functional 

obsolescence, and calculation of safe load capacities. The program goals are accomplished through a data-driven performance management approach as 

outlined under MAP-21, and by utilizing tools such as Under Bridge Inspection Vehicle (UBIV) equipment, rigging and climbing inspection techniques, and 

underwater inspections. Other aspects of the program scope include emergency damage inspections, overload permit evaluations, bridge deck studies, and 

Non-Destructive Evaluation (NDE) of structures. 

In the past year, the Bridge Inspection Program has reduced costs by implementing inspection trips of two-week duration, thus minimizing travel costs while 

prioritizing available resources. In addition, the percentage of inspections performed by in-house personnel has increased substantially in recent years, from 

21% in 2011 to 54% in 2015. The office continues to meet or exceed the required 120 day turnaround time goal for delivery of inspection reports to the NPS. 

With expenditures of approximately $2.9 million for 2015, the office completed inspections for 31 parks, and delivered 100% of the inspection reports within the 

120 day period. 

In order to meet requirements outlined in the recent NBIS compliance review, the program has made significant strides in updating load rating calculations, 

with load ratings for several hundred structures currently in progress. Other ongoing action items include the refinement of Fracture Critical member 

inspection plans, updating the Bridge Inspection Manual to fully address NBIS requirements, and measures to ensure full compliance with Scour Critical 

response metrics.

The office has also been engaged in the re-evaluation of load ratings for the Minuteman transportation network of the U.S. Air Force Global Strike (OMAD) 

Program. This effort has required substantial research, as well as coordination with several State DOTs .

To meet the requirements of the new National Tunnel Inspection Standards (NTIS), the Bridge Inspection Program has expanded the structure database. In 

addition, the tunnel inventory data has been submitted in accordance with the NTIS, and office personnel have received the necessary training.

Bridge Inspection staff conducting routine inspection of concrete 

box girder at Smithsonian National Zoo, Washington, DC

Under Bridge Inspection Vehicle (UBIV), Foothills 

Parkway, Tennessee

Bridge Inspection staff drilling concrete test core samples 

from bridge abutment for in-depth investigation at 

Pentagon Reservation, Arlington, Virginia
The Federal Lands Highway Program — 2015 The Year in Review 35

Transportation Asset Management

National Bridge Inspection Standards (NBIS) Compliance

The FLH Office of Bridges and Structures (FLH Bridge) was delegated to provide oversight of the 19 Federal bridge inspection programs nationwide to ensure 

public safety is provided on all federally owned bridges. The oversight is conducted at the Intermediate level through a FHWA risk-based, data driven approach. 

This approach assesses an agency’s National Bridge Inspection Program (NBIP) level of compliance in 23 metrics defined in 5 categories: Bridge Inspection 

Organization; Qualifications of Personnel; Inspection Frequency; Inspection Procedures; and Inventory.

As part of the assessment, development of an FHWA approved Plan of Corrective Action (PCA) is required for improvement if any deficiencies are identified. 

FLH Bridge also conducts annual assessments at the Minimum level to follow up on PCA implementation progress.

Within three years, the FLH Bridge Office has successfully completed the Intermediate level assessment of all 19 Federal bridge inspection programs, two years 

ahead of schedule! Assessment of the program was based on a statistically-based random sampling. Items reviewed included: bridge files, National Bridge 

Inventory (NBI) submittal data, agency’s inspection policy, procedures and guidance, inspection manuals, Bridge QA\QC Checklist, protocols, and other 

inspection related documents. Additional steps included in the review were interviews with inspection personnel, qualification review, and bridge site visits. 

As a result of the assessments, follow-ups and the assistance of FLH Bridge, all 19 Federal bridge inspection programs significantly improved. As an example 

of this success, the FS developed PCAs, which were approved by FLH Bridge, that resulted in having 74% of the 23 Metrics for the NBIP either “satisfactory 

or substantially compliant” status within a 3 year cycle. Next summer, FLH will initiate an additional “Intermediate Review” to identify any additional areas of 

improvement. As all other federal agencies are also working with FLH Bridge to improve their Bridge Inspection Programs, their level of compliance is tracked 

annually. Measured data is showing that all agencies have improved in their Bridge Inspection Programs. The assessments not only provide guidance to Federal 

bridge owners on achieving and maintaining compliance with NBIS regulations, but also present the opportunity for the FLH Bridge to ensure that public safety 

is provided on all federally owned bridges. 

View of the Great Smoky Mountains from the deck of Bridge 2, Foothills Parkway, Tennessee
36 The Federal Lands Highway Program — 2015 The Year in Review

Technical Assistance

NPS Northeast Region Forensic Pavement Investigation

Flight 93 National Memorial Ring Road, Pennsylvania

At the request of the NPS, FLH was asked to evaluate and recommend 

solutions to apparent pavement distress (shoving, potholes, settlement and 

rutting) along the newly constructed Ring Road providing access to the 

Flight 93 Memorial. Pavement corings, soil borings, material samples and 

Falling Weight Deflectometer (non-destructive) tests were taken to evaluate 

subgrade support. Both short and long term recommendations were offered. 

The NPS praised the team for their responsiveness, detailed reporting and 

sound recommendations.

Sean O’Brien, FLH Pavement Engineer 

capturing field measurements of 

asphalt pavement rut depth

Flight 93 National Memorial Ring 

Road, Pennsylvania

Intelligent Compaction (IC) Data Management Workshop

Beckwourth-Genesee Road Project, California

FLH hosted a workshop on May 27, 2015, for one of the most diverse 

turnouts yet for this workshop. This is an indication of the growing interest 

in the EDC Initiative — Intelligent Compaction. The following government 

agencies were represented: CalTrans, Forest Service, Plumas County, 

and Lassen County. In addition, 11 companies sent representatives to the 

workshop. The objectives of the workshop included familiarizing attendees 

with IC technologies and software; informing attendees of the advantages 

and pitfalls of analyzing and interpreting IC data; and providing hands-on 

software training.

American Samoa Peer-to-Peer Materials Laboratory Training

At the request of the FHWA Hawaii Division, the CFL Materials Laboratory 

provided three days of training to the American Samoa Department of 

Public Works Laboratory Manager from May 20 to 22, 2015. Hands-on 

training was provided in the asphalt mixtures area related to: ignition 

furnace burn-offs for asphalt content and gradation; ignition furnace asphalt 

content and aggregate corrections; field core density; maximum theoretical 

density; aggregate bulk specific gravity; moisture induced damage; and 

sand equivalent. American Samoa is in the final stages of fully equipping its 

Laboratory to independently perform construction materials testing.

Cold-in-Place Recycling (CIR) & Cold Central Plant Recycling (CCPR)

Information Transfer with China

FLH hosted two contractor representatives from Bejing Saint Ground 

Highway Tech Company and two representatives from MeadWestVaco 

Corporation (China Holding) on May 19, 2015, for a 90 minute roundtable 

discussion. Their primary interest was cold in-place recycling (CIR) and 

cold central plant recycling (CCPR). The delegation wanted to learn our 

perspective and hear success stories with CIR and CCPR. FLH was one of 

four public agencies that they chose to visit. The delegation also planned to 

visit Colorado DOT, Utah DOT, and the city/county of Los Angeles.

FLH Hosts Research Scholar

Kanghyun “Kang” Seo, an engineer from the Korean Expressway 

Corporation in South Korea was chosen to come to the US to learn about 

Asset Management. Kang spent six months at DOT Headquarters and the 

remaining year in FLH shadowing several colleagues in different disciplines, 

as well as our partners in the NPS, FS and USFWS. The main objective of 

his US visit was to research the Highway Performance Monitoring System 

(HPMS) and to gain understanding of procedures for collecting, analyzing, 

maintaining, and reporting pavement data. 
The Federal Lands Highway Program — 2015 The Year in Review 37

Technical Assistance

GRS-IBS CalTrans Meeting

FLH engineers met with CalTrans engineers and policy makers in April 

2015 to discuss the EDC initiative, GRS-IBS. The meeting also included 

National Forest and County engineers from nearby regions. The purpose 

of the meeting was specifically to provide CalTrans with a fundamental 

understanding of the GRS-IBS and allow their engineers to have technical 

one-on-one discussions with FLH engineers and also for FLH engineers to 

better understand the basis behind the seismic design guidelines required by 

CalTrans for implementation on the FLAP projects in California.

Several topics were discussed in detail including scour/drainage, abutment 

geometry, construction specifications and procedures, short- and longterm settlement, maintenance requirements, guard rails and barriers 

considerations, and heavy traffic loading effects for GRS-IBS bridges. 

Differences between Mechanically Stabilizes Earth (MSE) Walls and GRS 

abutments and a comparison of the design methodology for each method 

were also discussed in detail. Seismic performance including; lateral restraint, 

shear keys, backwall break, and GRS abutment stiffness were discussed in 

details. An example calculation was provided to CalTrans for their review and 

comments to assure full understanding of the procedures and limitations used 

by CalTrans on this type of bridge.

The meeting was exceptionally interactive and informative. Both parties 

benefited from the discussions and CalTrans agreed to implement a small 

GRS-IBS bridge within their right of way and use it to develop new guidelines 

specifically for GRS Bridges.

Puerto Rico Highway & Transportation Authority (PRHTA)

Design and PS&E Development Workshop

At the request of the Puerto Rico Division, three FLH engineers developed, 

tailored, and presented in Spanish a “Design and PS&E Development 

Workshop” specialized to the needs of the Puerto Rico Highway & 

Transportation Authority (PRHTA). Their presentation far exceeded the 

expectations of the Division and PRHTA. Their work demonstrated and 

reflected a strong focus for their partner, a passion for their own work, an 

appreciation to share what they have learned, and to represent all of FHWA. 

As a result of the workshop the PRHTA Director immediately implemented 

several recommendations to improve the efficiency and quality of PS&Es.

Puerto Rico Highway & Transportation Authority Course Participants and Instructors

Course instructors left to right: 

Katerina Roman-Gonzalez, 

Highway Design Engineer; Josue 

Pluguez-Figueroa, Highway Design 

Engineer; and Isbel Ramos-Reyes, 

Highway Safety Engineer
flh.fhwa.dot.gov