The Federal Lands Highway Program — 2017 The Year in Review

From the desk of the Associate Administrator

Timothy G. Hess, P.E.

Associate Administrator for Federal Lands

Federal Highway Administration

Tim Hess

Tim (right) onsite at the Manning Crevice Bridge Replacement project presents Western 

Federal Lands Project Engineer, with a Federal Lands commemorative coin, for a job well done! 

— Salmon River Road, Idaho

This report celebrates another year of accomplishments by the Federal 

Highway Administration, Office of Federal Lands. During 2017, the Office of 

Federal Lands delivered a $1.4B program for our Federal Land Management 

Agency partners, Native American Tribal partners, State Departments 

of Transportation, and other partner agencies such as the Department 

of Defense and Department of Homeland Security. We were only able to 

accomplish this through fostering relationships and partnering with each of 

our stakeholders to deliver context sensitive solutions for highway projects. 

These projects ranged from expressways in urban areas to highways and 

bridges in remote areas with challenging terrain, unique habitats, and 

historical environments.

During the past year, our nation was impacted by several major natural 

disasters. The Office of Federal Lands supported our federal and state 

partners in responding to events ranging from hurricanes in the Caribbean to 

wildfires on the Pacific Coast. We worked closely with the Federal Emergency 

Management Agency to assist in emergency relief efforts that allowed local 

and state Departments of Transportation to quickly repair roads and bridges 

and restore service to the public. These efforts were instrumental in getting 

local communities back on their feet and on the road to recovery.

2017 was also a year where our nation turned its attention toward rebuilding 

our national infrastructure. Our elected officials are focused on addressing 

infrastructure needs on not only our nation’s highways operated by the State 

Departments of Transportation, but also on highways leading to and located 

on federal land. Almost a third of the United States is federally owned land 

and the transportation requirements are enormous. As the American public 

continues to enjoy and visit our national parks, forests, wildlife refuges, and 

other lands in record numbers, the Office of Federal Lands Highway and our 

Federal Land Management Agency partners are working in close partnership 

to meet these transportation requirements. We’re excited about the future 

and stand ready to do our part in rebuilding our nation’s infrastructure!

The projects we delivered in 2017 tell our story best. The next several pages 

showcase some of these projects. Please take a few minutes to see what we 

have accomplished! 
The Federal Lands Highway Program — 2017 The Year in Review

Our Role

The Federal Lands Programs 

The Tribal Transportation Program

Project Delivery Showcase

Emergency Relief for Federally Owned Roads 

Technical Assistance 

The Federal Lands Highway Program

2017

The Year in Review

Table of Contents

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................................................................................................... 38-43

Front Cover: Navajo Lake Road, Dixie National Forest, Utah

Back Cover: Defense Access Road, Wheatland County, Montana

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 — 2017 The Year in Review

Navajo Lake Road, Dixie National Forest, Utah

Vision

To be the partner of choice to Federal Land Management Agencies and Tribes. 

We will implement innovative transportation solutions that provide access

to and through public lands.

Mission

Improving transportation to and within Federal and Tribal Lands

by providing technical services to the highway/transportation community,

as well as building accessible and scenic roads that ensure the many national 

treasures, within our Federal Lands, can be enjoyed by all.
The Federal Lands Highway Program — 2017 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 three Federal Lands Highway Division Offices (FLHD): 

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 funds provided through the multi-year transportation 

authorization, currently the Fixing America’s Surface Transportation Act 

(FAST Act) which provides funds for FY 2016-2020. Under the FAST Act, 

program funds (i.e Tribal Transportation Program (TTP), Federal Lands 

Transportation Program (FLTP), Federal Lands Access Funds (FLAP)) are 

administered by the Office of Federal Lands. TTP funds are allocated to 

Federally Recognized Tribal Nations for capacity development and delivery 

of projects on tribal lands. The FLTP and FLAP funds are allocated to FHWA 

and the FLMAs for the planning, design, and construction of highway, road, 

bridge, and other transportation projects determined necessary by our FLMA 

partners. 

Project Delivery is the development of projects from preliminary design 

through final design and construction of a project. The Office of Federal 

Lands uses funds provided the FLTP and FLAP to develop and deliver 

projects for FLMAs. In addition, the Office of Federal Lands delivers projects 

for state and local Departments of Transportation, as well as other federal 

Our Role 

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, Mapping and Right of Way

• Hydraulics

• Geotechnical

• Traffic

• Safety

• Intelligent Transportation Systems

• Design Visualization

• Materials and Pavements

• 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.

agencies that need FHWA assistance in designing and constructing highways 

for their agency’s needs. 

Now in its 36th 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. 
2 The Federal Lands Highway Program — 2017 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) and continued under the Fixing America’s Surface 

Transportation Act (FAST Act) 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.

Federal Lands Access Program (FLAP)

The FLAP, authorized at $255 million in FY 2017, 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 high-use recreation 

sites and economic generators within Federal lands. 

Federal Lands Transportation Program (FLTP)

The FLTP, authorized at $345 million in FY 2017, 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. The program provides funding to the NPS, FS, FWS, BLM, 

BOR, USACE, and eligible independent federal agencies (IFA). To date, 

the Presidio Trust Corporation is the sole IFA to be included in the FLTP. 

The Presidio will begin receiving funds in 2017. Of the three programs that 

comprise the FLTTP, the FLTP incorporates performance based management 

principles outlined in MAP-21 and reinforced under the FAST Act. The 

FLTP places emphases on performance goals defined by the Secretary of 

Transportation and FLMA(s) and is intended to target funds toward multimodal transportation facilities that access high use recreation destinations 

and federal economic generators within the federal estate.

Tribal Transportation Program (TTP)

The TTP, authorized at $475 million in FY 2017, provides funding for safe 

and adequate transportation and public road access to and within Indian 

reservations, Indian lands, and Alaska Native Village communities.

Nationally Significant Federal Lands and Tribal Transportation Projects 

(NSFLTP)

The NSFLTP was created under the FAST and is intended to provide a 

reliable source of funding for major, high cost projects that typically cannot 

be funded with FLTTP resources. This program is funded through the 

General Fund at a maximum of $100 million per year, but did not received an 

appropriation in FY 2017. 

The Office of Federal Lands Highway and the US Forest Service signed an updated interagency 

agreement celebrating a partnership that dates back to the 1920s.
The Federal Lands Highway Program — 2017 The Year in Review 3

The Federal Lands Programs

FAST ACT FY 2017

PROGRAM FUNDING

$345 million FLTP

$255 million FLAP

$475 million TTP

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

PROGRAM DELIVERY SUCCESS

82%

Funds On The Ground

93.4%

of the FAST Act FY 2017 Programs

were expended

2025

Lane Miles (Completed Construction)

1282

Lane Miles (Awarded)

72

Bridges (Completed Construction)

100

Bridges (Awarded)

Program Funds Obligated by Executing Agent

2017 Funds Obligated

$1.43 Billion

FLH Tribal Program FLMAs State DOTs

Dollars in Millions

$3

$156

$853

$416

In 2017, $1.43 billion in Federal funds were obligated by Federal Lands and its partners. Of this amount, 

$853 million was obligated by the Office of Federal Lands (FLH) through the Federal Lands Highway 

Divisions. $416 million in Tribal Transportation Funds were jointly administered by FHWA and BIA 

and distributed to Federally Recognized Indian Tribes. The remaining $159 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.
4 The Federal Lands Highway Program — 2017 The Year in Review

Tribal Transportation Program (TTP)

The TTP in 2017

The TTP, authorized at $475 million in FY 2017, provides funds to 567 

federally recognized Tribes to improve the transportation systems located 

within, or that provide access to, Tribal lands. These roads, bridges, trails 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. Approximately 131 of 

the Tribal governments operate their TTP directly through Program Funding 

Agreements with FHWA.

Transportation Safety in Tribal Areas 

Each year under the FAST Act, 2% of the available TTP funds ($9 million) 

are set aside to address transportation safety issues on Tribal land. Awarded 

annually, projects are chosen whose outcomes will address the prevention 

and reduction of death or serious injuries in transportation related incidents, 

such as motor vehicle crashes. Transportation fatalities and injuries 

severely impact the quality of life in Indian country. FHWA advocates the 

development of strategic Transportation Safety Plans as a means for Tribes to 

determine how transportation safety needs will be addressed in and around 

tribal communities. Infrastructure improvements, crash data collection, 

sharing, and use improvements have been funded by Tribal Transportation 

Program Safety Funds (TTPSF). Transportation Safety Plans have been 

developed by over 60% of Tribes as a result of this funding. 

On April 10, 2017, FHWA awarded 74 Tribes a total of $9 million for 77 

projects. On September 21, 2017, the FHWA published the fifth annual 

notice to announce the availability of approximately $18 million and request 

grant applications for FY2017 and FY 2018. Additional information about the 

funding can be found at http://flh.fhwa.dot.gov/programs/ttp/safety. 

Some examples of successful safety infrastructure improvements funded by 

TTPSF:

• Separated Pathways for Pedestrian and Vehicular Safety

• Intersection Traffic Control

• Ice Road Safety Monitoring

Success in the Program

A separated pathway connects Citizen Potawatomi Nation to the city of Pawnee, Indiana.

Image courtesy of Tom Edwards, Cross Timbers Consulting

Cherokee Nation’s first traffic light project with the Oklahoma Department of Transportation 

at the intersection accessing the entrance to Sequoyah High School, Head Start, Cherokee 

Immersion Charter School and the Early Childhood Development Center.

Image courtesy of Michael Lynn, Cherokee Nation
The Federal Lands Highway Program — 2017 The Year in Review 5

Tribal Transportation Program (TTP)

Ice roads require constant monitoring to ensure safe travel during the winter months. All 

along the Kuskokwim River there are key individuals who monitor the river closely, throughout 

the year. They communicate back and forth on conditions in preparation for the neccessary 

planning and marking of safe winter transportation routes. 

All images courtesy of Mark Leary, Native Village of Napaimute

The social and economic benefits of having safe, maintained winter transportation routes in 

this region are immeasurable. Families from all over the Kuskokwim were able to attend a 

recent Regional Basketball Tournament at Kalskag High School.

A large volume of U.S. Mail is transported on the River by truck, in fact many government 

agencies and businesses benefit from the use and maintenance of the ice roads.

Without the financial support of the TTPSF for their winter transportation systems locals are 

forced to rely on trails like this one between Aniak & Chuathbaluk. Chuathbaluk is located on 

the north bank of the Kuskokwim River, 11 miles upriver from Aniak in the Kilbuk-Kuskokwim 

Mountains. It is 87 air miles northeast of Bethel and 310 miles west of Anchorage.
6 The Federal Lands Highway Program — 2017 The Year in Review

Tribal Transportation Program (TTP)

Successfully Completed Projects u

FHWA hosted the TTP Oklahoma/Eastern Region Tribal Workshop

FHWA delivered its annual three-day Tribal Workshop in Salamanca, NY for 

Tribes in the BIA Eastern and Eastern Oklahoma Regions. The Workshop 

provided technical assistance to Tribes, showcased successful transportation 

projects, and provided an opportunity for Tribes to share information. 

Topics were presented by the FHWA, BIA, Department of Interior, Seneca 

Nation, Chickasaw Nation, Citizen Potawatomi Nation, the New York LTAP, 

Eastern Band of Cherokee Nation, and the Osage Nation. Many from the 

FHWA and non-FHWA Agreement Tribes in the Oklahoma and Eastern BIA 

Regions also attended. 

Technical training included a variety of topics on planning, development, and 

construction of transportation projects, and transportation maintenance. 

The goal was not only to strengthen technical knowledge, but to build 

relationships with the Tribal communities served by the TTP Program.

Erin Kenley, FHWA Director 

of the Tribal Transportation 

Program presents during

the workshop.

Tribal Transportation Safety Reports to Congress

Motor vehicle crashes cause an average of 655 fatalities each year in Tribal 

areas. Transportation crashes in Tribal areas often go unreported and may 

not be shared via state and national databases. This puts Tribal areas at a 

disadvantage for accessing resources and programs designed to improve 

transportation safety. FHWA published a report to Congress this year 

identifying opportunities to improve transportation crash reporting in Tribal 

areas. 

Despite being under reported, motor vehicle crashes are a leading cause 

of unintentional injury for American Indians and Alaska Natives between 

the ages of 1 and 44. The Tribal Transportation Safety Management 

System Steering Committee researched five years of available fatality data, 

transportation safety plans developed by Tribes, and other data sources to 

identify topics to emphasize in a Tribal Transportation Strategic Safety Plan 

published in August 2017. The safety plan identifies some overall trends 

which may help to guide national technical assistance and be useful toward 

the planning efforts of Tribes and States. Topics of greatest concern in tribal 

areas are:

Decision Making Process – A successful safety program must have clear 

direction. This topic encourages Tribes to develop strategic safety plans and 

use those plans to manage a coordinated safety program.

Crash Data – As identified in a prior report to Congress, crash data 

improvements are needed in many Tribal areas. 

Occupant Protection/Child Passenger Seats – Over half of all fatalities 

were not using safety restraints in the studied Tribal areas. 

Roadway Departure – Errant drivers leaving the proper lane or roadway 

represent a large portion of fatal crashes in Tribal areas.

Impaired Driving – Statistics for impaired driving are estimated to be 

slightly higher in Tribal areas than elsewhere in the United States. 

Pedestrian Safety – Many Native American communities have citizens 

walking greater distances on a regular basis. Pedestrian safety is identified as 

a top priority in many Tribal safety plans. Most pedestrian accidents in Tribal 

areas occur at a location other than an intersection or marked crosswalk. 

Availability of Public Safety Services – The severity of an injury is often 

directly related to the speed with which proper medical attention can be 

provided. The time elapsed from EMS notification to arrival at a treatment 

facility is more than an hour in 44% of Tribal area fatalities compared to 23% 

of all fatal crashes nationwide. 

Additional resources and information, including a copy of the safety plan, can 

be obtained on the committee’s website, www.TribalSafety.org.

FHWA Southwest and Western Region Tribal Transportation Program 

Workshop

The objectives of these workshops were to provide an update on the TTP, 

facilitate networking, provide training, promote available programs and 

technologies, and share best practices in program delivery with Tribes in 

the Southwestern, Navajo, and Western Regions. This year, topics included 

FEMA, CDL Certification, Paving Best Practices, Safety Plans, ERFO, 

Construction Safety, and more. The workshop was held at the Navajo 

Division of Transportation Complex in Tse Bonito, New Mexico and drew 

an average of 75 participants each day. Participants represented various 

Tribal DOT’s, State DOT’s, Federal (FHWA, BIA, FEMA) agencies, Local 

Community Colleges, Asphalt Paving Industry partners, and several Public 

and Private agencies. 
The Federal Lands Highway Program — 2017 The Year in Review 7

Tribal Transportation Program (TTP)

under TTP

The newly restored bridge and marker, Images courtesy of Citizen Potawatomi Nation Public 

Information Office and Department of Transportation

Historic Rainbow Arch Bridge, Pottawatomie County, Oklahoma

The Citizen Potawatomi Nation repaired/restored and preserved a historic 

concrete bridge structure. Locally, the bridge is known as the Rainbow 

Arch Bridge, located in Pottawatomie County, Oklahoma. The structure 

was originally built in 1917. According to the Citizen Potawatomi Nation 

Public Information Office it is believed to be the oldest standing bridge in 

Pottawatomie County. The single span concrete arch bridge carries Rangeline 

Road across Squirrel Creek, the only one of its kind remaining in the state, it 

is on the National Register of Historic Places. Originally running along what 

was then-known as the Williams Highway linking the towns of Shawnee and 

Tecumseh, the road and bridge were constructed using labor from prisoners 

housed at the Oklahoma State Penitentiary located in McAlester.

As road and travel infrastructure developed in the county, the main artery 

between the two largest towns in Pottawatomie County became what was 

known as Beard Street, later named S. Gordon Cooper Drive. Despite this, 

the solid engineering and construction stood the test of time as the bridge 

remained drivable almost a century later. Finally, time and erosion took its 

toll and in 2013, the structure was closed to traffic. Two years later, through 

an agreement with the Pottawatomie County government, the Citizen 

Potawatomi Nation assumed ownership and maintenance responsibilities. 

The Federal Highway Administration provided more than $300,000 through 

the Tribal Transportation Program to the project to assist in repairing a piece 

of American history.

The original bridge
8 The Federal Lands Highway Program — 2017 The Year in Review

Tribal Transportation Program (TTP)

Dwight Mission/Sequoyah Landing Road and Sequoyah Bay Road, 

Sequoyah County, Oklahoma

Dwight Mission Road south from I-40 leads to the National Cherokee 

Nation Park in Sequoyah County, Oklahoma. The park is an “800-acre tribal 

property, open to the public, adjacent to Robert S. Kerr Reservoir, and part 

of the Arkansas River system. The Nation received the land from the Army 

Corps of Engineers in 1998 and designated it as a Cherokee Nation National 

Park in April 2016. The two-lane surface rehabilitation project starts at the 

park gateway and terminates north at I-40. Part of the project is Sequoyah 

Bay Road, which turns slightly northeast from the intersection of Dwight 

Mission Road toward Sallisaw Creek Public Use Area, which is also owned by 

the Nation. The project scope included full-depth patching, constructing an 

asphalt pavement including drives inside the camping area, and signing. The 

improved roadway provides access to residential and recreational areas.

Dwight Mission 

Road looking South

Ribbon cutting held October 16, 2017

courtesy Cherokee Nation

Sequoyah Bay Road looking east from Dwight Mission

Road intersection

Robert S. Kerr Reservoir

Start of Dwight Mission 

Road project, looking North
The Federal Lands Highway Program — 2017 The Year in Review 9

Tribal Transportation Program (TTP)

Ivar’s Bridge Replacement, Fort Yukon, Alaska

Ivar’s bridge was built by a Fort Yukon resident in 1959 and refurbished 

in 1981. The bridge provides access to subsistence hunting, fishing, berry 

picking and firewood gathering for the local population.

Ivar’s bridge consisted of multiple corrugated metal-pipe culverts, laid

side-by-side across the Sucker River, with concrete slabs placed on top of the 

culverts to create a narrow single lane bridge. The bridge was determined to 

be structurally deficient and obsolete and had been posted as “closed for all 

traffic” since 2013.

The Tribe contracted with FLH to design and construct the project on 

behalf of the Tribe. Funding for this bridge replacement contract included 

$430,250.00 in an Accelerated Innovation Deployment Demonstration grant, 

with a total award of $2,790,680.00. Ivar’s Bridge is the first Geosynthetic 

Reinforced Soil bridge in Alaska. The project was completed and celebrated 

with a ribbon cutting ceremony on October 17th, 2017.

Ribbon Cutting ceremony: [Right to Left] Nancy James, 1st Chief ; Frannie Hughs, Tribal

Council Member; Michele Vandyke, Tribal Council Member; Michael Peter, 2nd 

Chief; and Paul Rettinger, FHWA TTP Sr. Tribal Coordinator.

Aerial view of the completed bridge

Aerial views of the bridge 

under construction
10 The Federal Lands Highway Program — 2017 The Year in Review

Project Delivery

Project Showcase

Navajo Lake Road, Dixie National Forest, Utah

The road provides access to Navajo Lake, multiple campgrounds, and numerous recreational opportunities. It is a popular spot because of its proximity to 

Cedar City, Utah. The Forest Service also operates logging operations along the south side of the alignment. This project reduced dust hazards, improved 

visibility and enhanced overall safety. The completion of this project was highly anticipated by locals and visitors alike. 
The Federal Lands Highway Program — 2017 The Year in Review 11

Project Delivery

White Pond Road, Assabet River, National Wildlife Refuge, Massachusetts

Assabet River National Wildlife Refuge, a large wetland and forested area 

serves as an important feeding and breeding ground for migratory birds 

and other wildlife. White Pond Road, provides primary access to 15 miles 

of walking and biking trails as well as access to the Towns of Maynard and 

Stow, Massachusetts. This project allowed for careful reconstruction and 

preservation of historic hand-laid stone walls and historic stone boundary 

markers while improving pavement and drainage.

Boardwalk Installation 

at Inspiration Point, a 

viewpoint on the north 

rim of the Grand Canyon 

of the Yellowstone River, 

Yellowstone National 

Park, Wyoming

Grand Loop Road, Norris to Golden Gate, Phase 2, Yellowstone National 

Park, Wyoming

The project scope includes updating the existing surface of the roadway and 

implementing several large realignments of the roadway to reclaim wetland 

and historical areas along the project limits. There will also be rehabilitation 

of stone masonry and historical timber structures throughout the project. 

Additionally, several rehabilitation projects including lookouts and trails will 

occur in the Grand Canyon of Yellowstone area at Inspiration Point, Brink of 

Upper Falls, and Uncle Toms Trail.

White Pond Road, Assabet River National Wildlife Refuge, Massachusetts
12 The Federal Lands Highway Program — 2017 The Year in Review

Project Delivery

Lake Park Improvements, Lewisville, Texas

The City of Lewisville, Texas maintains Lake Park through a lease agreement 

with the U.S. Army Corps of Engineers. The project included reconstruction 

of 1.6 miles of roadway inside the park, reconstruction of nine parking lots, 

and addition of 2.25 miles of new recreational trails within park boundaries. 

The construction notice-to-proceed was issued on November 2, 2015 with a 

completion date of May 19, 2016. Three weeks later the project was flooded 

by an historic rain event and was completely underwater for almost four 

months. The contractor was able to start work on some of the higher project 

areas but was unable to work on the rest of the project until May 2016 due to 

saturated soil conditions. As a result of the flood, additional subexcavation 

and pipe work was required that was not in the original contract. Although 

this project experienced many setbacks, the City of Lewisville was a very 

supportive, understanding partner, and were very happy with the finished 

project.

Bridge Rehabilitation, New River Gorge National River, West Virginia

The New River in the Appalachian Mountains of southern West Virginia is a 

rugged, whitewater river that flows northward through deep and spectacular 

canyons. The Park is renowned for its premier recreational opportunities. 

FLH completed rehabilitation of five historic timber bridges within the park, 

including Mill Creek Bridge, Upper Glade Creek Bridge, Fayette Station 

Bridge, and Camp Brookside Access Bridge. The work included repair and 

replacement of timber rails, posts, curbs, decking, and running boards; 

cleaning and painting of steel bridge members; repair and repointing of stone 

masonry; and construction of a concrete retaining wall.

Fayette Station Bridge before and after.

Lake Park Access Road, Lewisville, Texas
The Federal Lands Highway Program — 2017 The Year in Review 13

Project Delivery

Looking north along the Parkway at Little Swan Creek Bridge.

Big and Little Swan Creek Bridges, Natchez Trace Parkway, Tennessee

Over the last 30 years Federal Lands has replaced numerous bridges along 

the Natchez Trace Parkway in Tennessee, Alabama and Mississippi because 

of alkali-silica reactivity (ASR). The rehabilitation of the Big Swan Bridge and 

replacement of the Little Swan Bridge are the most recent examples of this 

concrete condition. ASR is caused by a reaction between the hydroxyl ions 

in the cement with the silica in aggregates which forms a gel that expands 

and cracks the concrete. 50 to 75 years ago, most bridges along the Trace 

were built from locally available bank-run gravels that contained chert, an 

aggregate now well known for its reactivity. Construction of the bridges also 

included a spray-applied waterproofing membrane over the bridge deck 

prior to the final asphalt concrete to protect against water infiltration, reduce 

potential for corrosion, and prolong the service life of the bridge deck. The 

bridges were completed in May 2017.

North and South Abutment 

views show existing rock face and 

conserved stone used as erosion 

control.

Top Left: Application of prime coat; Right: Application of polymer membrane

Bottom: Application of top coat
14 The Federal Lands Highway Program — 2017 The Year in Review

Project Delivery

Middle Fork Snoqualmie Valley Road, Mt. Baker-Snoqualmie National Forest, Washington 

Only an hour away from Seattle, the Middle Fork Snoqualmie Valley provides a popular wild and natural escape from urban life. Visitors can enjoy hiking, 

biking, kayaking, horseback riding, and swimming. As the population continues to boom in and around Seattle, so does the wear and tear on this beautiful area. 

Prior to the Middle Fork Snoqualmie Valley Road project, visitors drove over numerous potholes, bikers choked on summer dust clouds, and the road suffered 

many emergency events because of poor drainage, among other problems. King County, the Forest Service, the Washington Department of Natural Resources 

and FLH came together with a solution — pave 9.7 miles of Forest Service Road 56. 

This new road added many benefits. It protects and enhances water quality in the valley, reduces sediment runoff into streams and wetlands, diminishes 

summer dust clouds and opens coastal cutthroat trout migration routes that have been blocked for decades. 

In addition to paving, new culverts, bridges and ditches were constructed as well as slope stability repairs. Of particular note was the construction of two LowWater Crossings (LWC). The concrete plank armored fords are located at stream crossings frequently experiencing debris flows and heavy sediment loads 

that would cover and erode the old road. The fords are configured and positioned to funnel normal stream flow and lighter debris loads across the debris fan. 

Heavier debris loads are trapped on and upstream of the LWC, focusing the maintenance effort. Riprap aprons protect the downstream road embankment from 

eroding. Concrete plank design reduced construction time and costs. The culvert vents convey normal daily stream flow and allow traffic access across a nonflooded LWC.

Middle Fork Snoqualmie Valley Road, Mt. Baker-Snoqualmie 

National Forest, Washington
The Federal Lands Highway Program — 2017 The Year in Review 15

Project Delivery

Foothills Parkway, Missing Link, Great Smoky Mountains National Park, Tennessee

As part of the Great Smoky Mountains National Park, the Foothills Parkway has been under construction since 1983. Sections 8E and F, 16.1 miles from Wear 

Valley to Walland, are some of the most difficult construction in terrain and environmental sensitivity that includes the 1.6-mile section at Caylor Gap called 

the “Missing Link.” Construction of the Missing Link alone has been under construction since 1999. Because of the NPS’ original desire to open the Parkway 

for the NPS Centennial Celebration in 2016, the final paving project was accelerated to ensure an essentially complete design despite an unidentified source 

of construction funding. With the grading and bridges under contract, the project team was asked to regenerate and design the final alignment, pavement 

structure, drainage and safety appurtenances over the full 16 miles and work long hours to ensure a PS&E ready to advertise once funding came. The project 

was awarded in April 2017, and this segment of Parkway will be opened finally after 35 years!

Foothills Parkway, Missing Link, Great Smoky Mountains National Park, Tennessee
16 The Federal Lands Highway Program — 2017 The Year in Review

Project Delivery

Portsmouth Ditch Road, Great Dismal Swamp National Wildlife Refuge, 

Virginia

The Great Dismal Swamp National Wildlife Refuge is the largest intact 

remnant of a vast habitat that once covered a million acres of southeastern 

Virginia and northeastern North Carolina, critical to the protection, 

preservation and perpetuation of a unique and outstanding ecosystem 

supporting a diversity of animal and plant life. The Portsmouth Ditch Road 

is an aggregate-surfaced road providing access to the northern part of the 

Refuge, as well as several adjacent private properties. In various areas the 

road was realigned to avoid encroachment on the private properties. As part 

of the work, two wooden pedestrian bridges in extremely poor condition were 

replaced over the Portsmouth Ditch, a canal running parallel to the road. To 

minimize preliminary engineering costs on the project, a risk-based practical 

design approach for the design of the two bridges was recommended. 

Consequently, no geotechnical investigation for the foundation design was 

conducted and the bearing capacity of the soil was estimated using available 

soil data to develop the abutment design. The design was further streamlined 

to use pre-fabricated fiber-reinforced polymer trusses. This practical design 

approach substantially reduced preliminary engineering costs.

Baker-Barry Tunnel Preservation, Marin Headlands, Golden Gate 

National Recreation Area, California

Baker-Barry Tunnel is a one-way, 2,362-foot long tunnel. The tunnel was 

originally constructed by the Army in 1917-1919 to provide access between 

Fort Baker and Fort Barry. Primary project goals included preservation of 

the existing tunnel liner to extend the service life, replacement of the existing 

high-pressure sodium lighting system to reduce maintenance and energy 

use and increase safety for vehicles and bicyclists, and replacement of the 

undersized waterline and deteriorated sewer line.

The preventative maintenance work within the tunnel included polyurethane 

resin injection, coring/pressure grouting, removal and replacement of the 

deteriorated lighting system, and removal and replacement of the existing 

wall mounted waterline and sewer line. Overall the project greatly reduces 

future maintenance and monthly utility costs. 
The Federal Lands Highway Program — 2017 The Year in Review 17

Project Delivery

George E. Tryon Bridge, South Fork Smith River Road, Six Rivers National Forest, California

The project replaced a structurally deficient, fracture-critical steel deck arch bridge in a high seismic zone. The project team utilized the CM/GC contracting 

method to engage industry expertise and encourage innovation. The project team developed an innovative construction approach to replace the bridge on the 

current alignment and maintain traffic throughout construction. The new concrete deck arch bridge was built in and around the existing structure with staged 

construction. The project was successfully completed 2 1⁄2 months ahead of schedule.
18 The Federal Lands Highway Program — 2017 The Year in Review

Project Delivery

Lahaina Bypass, Maui, Hawaii

The Lahaina Bypass Project was developed to mitigate traffic congestion along Honoapiilani Highway (State Route 30) through Lahaina Town in West Maui. The 

project will not only improve vehicular throughput, but will also provide an alternate route through the area. The new bypass will increase dependability and 

durability especially considering shoreline erosion and future sea level rise.
The Federal Lands Highway Program — 2017 The Year in Review 19

Project Delivery

Rim Rock Drive, Colorado National Monument, Colorado

Rim Rock Drive is a 23 mile stretch of road that runs along the top of 

the canyon rims in Colorado National Monument near Grand Junction, 

Colorado. Construction of Rim Rock Drive was completed in 1950 and 

the road was added to the National Registry of Historic Places in 1994. 

Rapid population growth in the area has led to numerous challenges 

with commuter, recreational, cycling and commercial traffic. The main 

thoroughfare for access to Glade Park, a small town southwest of the 

Monument, is the eastern-most four-mile section of Rim Rock Drive ending 

at the East Gate of the Monument. The project repaired the historic Guard 

Wall at Half Tunnel and consisted of a culvert repair including rock removal, 

placement of minor concrete, culvert pipes, reinforced concrete wall, and 

stone masonry at the culvert at mile marker 6.1 in the Colorado National 

Monument. The work was completed on a small cliff ledge with a 2,000-foot 

drop along the roadway. All work had to be completed from above, along the 

roadway and along the

small ledge.

Hatchery Entrance Road and Parking, Jordan River National Fish 

Hatchery, Michigan

Established in 1963, the Jordan River National Fish Hatchery is the primary 

hatchery stocking lake trout into Lakes Michigan and Huron. Located in 

Antrim County, the hatchery annually propagates nearly 2 million yearling 

lake trout. Numerous visitors come every year to enjoy fishery education and 

hatchery tours. Throughout the hatchery, the pavement and safety condition 

had become dangerous and rehabilitation of the Hatchery Entrance and 

other roadways, driveways, and parking areas became a necessity. The work 

included asphalt pavement removal, select full-depth pavement patching 

and widening, asphalt pavement reconstruction as well as new asphalt 

pavement construction, asphalt concrete pavement overlay, concrete curb 

and gutter replacement, drainage replacements and improvements, guardrail 

replacement, and other miscellaneous work.

Entrance Road and Parking, Jordan River National Fish Hatchery, Michigan

Culvert Installation, Rim Rock Drive, Colorado National Monument, Colorado
20 The Federal Lands Highway Program — 2017 The Year in Review

Project Delivery

Rocky Mountain National Park Pavement Preservation, Colorado

After 4 months and $2.6 million, pavement preservation has been completed on 23.4 miles of roadway throughout the Rocky Mountain National Park. The 

project applied a Type 3 Micro Seal to the mainline roadway and a type 2 Micro Seal in the parking areas. The Alpine Visitor Center parking lot at an elevation 

of 11,796 feet also received a type 2 Micro Seal. 

This treatment will prolong the life of this popular roadway providing access to numerous recreational areas throughout the Park and also serving the Colorado 

foothill communities and the Denver area.
The Federal Lands Highway Program — 2017 The Year in Review 21

Project Delivery

Daniel K. Inouye Highway, Hawaii

Daniel K. Inouye Highway (DKI, formerly Saddle Road) was opened with a dedication ceremony on Tuesday October 10, 2017. The completion of the East Side 

project is a significant milestone as it signals an end to the original vision of the late Senator Daniel K. Inouye by safely connecting the communities of East and 

West Hawaii. 

Originally constructed as a one-lane road by the U.S. Army in 1942 to connect military training facilities, the DKI Highway is the most direct cross-island route 

between east and west Hawaii for business travel, transport of goods and services, tourism, recreation, shopping, and daily commuting. Public use, prior to 

improvements, had been historically very low because of substandard and hazardous conditions. In addition to being a cross-island route, the DKI Highway 

provides the only paved access to the Army’s Pohakuloa Training Area, Mauna Kea State Park, and the Mauna Kea and Mauna Loa observatories. 

The East Side project encompassed nearly six miles of highway, reconstructing approximately three miles of the existing Daniel K. Inouye Highway, upgrading 

the roadway to modern design standards and including safety features such as eight-foot shoulders, straighter alignment, a climbing lane, and adding three miles 

of new road. The project increased the overall highway capacity and removed potential conflicts between military operations and public traffic. 

This project presented unique challenges such as varying subsurface conditions from a’a and pahoehoe lava, dense basalt, and volcanic ash and the need to 

address precautionary measures necessary for containment, treatment and placement of cleared timber to help prevent the spread of the Rapid Ohia Death 

fungus.

Phased construction of the route began in 2004, with funding leveraged through programs including Fed-Aid (STIP), Discretionary (TIGER, High Priority 

Projects), State of Hawaii, Ecosystem Management, and Defense Access Road funding for a total cost of $316.5M. The completion of the route (48 miles) 

exemplifies the virtues of a successful partnership between the FHWA, the Army, Hawaii DOT, and several local, state, and federal agencies, to successfully 

advance joint use (public/military) transportation improvement projects. 
22 The Federal Lands Highway Program — 2017 The Year in Review

Project Delivery

Scenic Loop Drive, Red Rock Canyon National Conservation Area (RRCNCA), Nevada 

Designated in 1982, the Red Rock Canyon National Conservation Area (RRCNCA) is a Bureau of Land Management (BLM) managed area comprised of 

198,000 acres of nationally significant geological, archaeological, ecological, cultural, scenic, scientific, wildlife, riparian, wilderness, endangered species, and 

recreation resources. Scenic Loop Drive, a 13 mile one-way scenic byway, provides the sole access to the recreational amenities in this portion of RRCNCA. 

Transportation safety improvements delivered by the project included two new bridges, a flood warning system, four parking area expansions, a comprehensive 

signage overhaul, and over 15 miles of road rehabilitation. The delivery of transportation safety improvements to this area was balanced against the sensitive 

environmental conditions — in this area of the Mojave Desert, where the annual precipitation can be less than five inches, a roadside yucca represents several 

decades of growth, and several centuries for a mature Joshua tree. 

The RRCNCA project utilized the streamlining of the EDC initiative by pairing BLM, FLH, and consultant environmental staff. The collaborative effort resulted 

in a streamlined review process in the design, NEPA, and permitting portions of the project. The core values of the area, including protecting the natural 

resources while providing an excellent visitor experience, were preserved while maintaining an accelerated project delivery schedule. Safety Edge was also 

implemented along the scenic byway. The byway was awarded 3rd place in Roads & Bridges Magazine, Top 10 Roads Projects for 2017. 
The Federal Lands Highway Program — 2017 The Year in Review 23

Project Delivery

Halona Street Bridge, Honolulu, Hawaii

Hawaii Governor David Ige was joined by FHWA and State officials in a 

traditional Hawaiian blessing ceremony on September 29, 2017 to celebrate 

the opening of the Halona Street Bridge in Honolulu. Delivered on behalf 

of Hawaii DOT, construction on the new bridge began January 2017 and 

was completed in nine months. Project highlights included replacing the 

bridge foundation, pavement and railings, as well as replacing the water and 

gaslines beneath the bridge, all of which improve the safety and reliability 

of the structure. The original bridge was built in 1938. Prefabricated bridge 

elements, Geosynthetic Reinforced Soil and contracting innovations where 

industry can compete on both price and contract time, were contributing 

elements to early project completion. The project cost to replace the 

structurally deficient bridge was $7.2 million, 80 percent of which was 

provided by Federal funding. 

Referring to the ongoing Memorandum of Agreement (MOA) among Hawaii 

DOT, FLH, and the Hawaii Division, Gov. David Ige said, “We are proud to 

be working with the FHWA on a dozen additional projects that will benefit 

Hawaii’s residents and visitors across the State”. The completion of the Halona 

Street bridge project was a significant milestone to the MOA partnership as it 

is the first of eleven bridges to be completed. 

Beach Drive, Rock Creek Park, Washington, DC 

Beach Drive provides a pleasant trip through the Rock Creek Park in 

Washington, DC for commuters, drivers, bicyclists and pedestrians. The 

condition of the pavement and safety had deteriorated to a point of extreme, 

requiring full reconstruction. The project also includes improvements to 

pedestrian and bicycle trails in collaboration with the District DOT, storm 

drain rehabilitation; raised pavement markers, centerline rumble strips, 

guardrails and road signs; parking area reconstruction; traffic signal and 

streetlight replacement; and the rehabilitation of six bridges. Work has also 

included construction of new sidewalk and guardrail within the adjacent 

Washington National Zoo Tunnel. The project will require 5 phases of 

construction to accommodate the very complicated and high-volume peak 

hour traffic.
24 The Federal Lands Highway Program — 2017 The Year in Review

Project Delivery

Big Fork-Athens Road, Ouachita National Forest, Arkansas

The Big Fork-Athens Road (County Road 64) provides access to the Shady 

Lake Recreation Area, a popular tourist destination in the Ouachita National 

Forest, Polk County, Arkansas. This project for the final grading and paving 

was the culmination of a 9-year effort to relocate and pave the road. Design 

began in 2008, and the work was constructed in a series of 4 projects between 

2013 and 2017. The relocation improved visitor access by reducing the 

distance from State Highway 246 to the recreation area, and by replacing the 

existing narrow, winding, unpaved road with a 2-lane all-weather facility. 

United States Marine Corps War Memorial (Iwo Jima Memorial) Access 

Improvements, Virginia

Over 1.5 million people visit this national monument each year. Funded by 

private donations specifically to restore the monument and surrounding 

parklands, the project includes reconstruction of the Iwo Jima Memorial 

Access Road and parking area, new curb and gutter, as well as sidewalk and 

trail resurfacing at the US Marine Corps War Memorial. Asphalt pavement is 

being replaced with concrete pavement which will require less maintenance 

and provide better support for the traffic volumes and heavy weight of the 

many tour buses which frequent the monument. The project team was able 

to expedite design and acquisition activities to advertise one month ahead of 

schedule to accommodate the project’s very narrow construction window. 

The collaboration continued through the procurement stage in developing 

pre-negotiation objectives and conducting successful negotiations with the 

8(a) contracting firm that led to contract award.
The Federal Lands Highway Program — 2017 The Year in Review 25

Project Delivery

Whitney Portal Road, Inyo National Forest, California

Whitney Portal Road is a two-lane paved major collector accessing Whitney 

Portal Trailhead in the Inyo National Forest and the Alabama Hills Recreation 

Area of the BLM. The project was a 3R-plus asphalt rehabilitation project, 

with 4R segments, that extends 11.2 miles westward from the town of 

Lone Pine, California to the Whitney Portal Recreational Area. The road is 

primarily on federal lands including BLM and Inyo National Forest and is 

maintained by Inyo County. The project crossed through a variety of terrains 

beginning at an elevation of 8,500 ft in steep and narrow mountainous 

terrain, stretching all the way to the comparatively barren Owens Valley at 

3,500 ft.

The challenge of the extreme terrain helped earn this dynamic project the 

2017 Roads & Bridges/Asphalt Recycling and Reclaiming Association (ARRA) 

Recycling Award in the Full-Depth Reclamation category.

Catwalk National Recreation Area Trail Reconstruction

Gila National Forest, New Mexico

The Catwalk National Recreation Area Trail was reopened to visitors during a 

ribbon cutting ceremony on May 28, 2016. The Catwalk National Recreation 

Area is a vitally important economic generator for the Forest Service and 

the surrounding communities as an internationally renowned destination 

for recreation by tens of thousands of visitors annually. The reopening of the 

reconstructed Catwalk Trail signals to many locals and longtime visitors the 

beginning of revitalization for the region following several forest fires and 

floods.

The project leveraged the innovation and ingenuity of a design-build contract 

to quickly restore the distinctive suspended walkways and pedestrian trail 

bridges. The final design allowed for replacement of the destroyed facilities 

in a context sensitive manner that respected the historic, aesthetic, and 

environmental aspects of the area while providing ADA access for future 

generations of visitors.

This dynamic project was the recipient of the 2017 ACG Alliant Build 

America Award in the Design Build Category.
26 The Federal Lands Highway Program — 2017 The Year in Review

Project Delivery

I-564 Intermodal Connector, Norfolk, Virginia

The I-564 Intermodal Connector project in Norfolk, VA is a collaborative 

transportation partnership between EFLHD, VDOT, and the U.S. Navy. 

The new high-speed roadway will connect the existing I-564 through two 

of the region’s economic powerhouses – Naval Station Norfolk (NSN), 

the largest naval base in the world and the area’s largest employer, and to 

Norfolk International Terminals (NIT), the Virginia Port Authority’s largest 

terminal in Hampton Roads. The project’s construction was accelerated 

to provide access to the NIT north gate by late December 2017. The 

acceleration included extensive ground improvement techniques to achieve 

rapid consolidation of the poor quality underlying soils and prevent future 

settlement of the nearly 300,000 cubic yards of embankment fill needed to 

construct the roadways. Four bridges are also being constructed, including a 

3-span flyover bridge over I-564. The roadway is expected to be open to all 

traffic by Fall 2018.

Veteran’s Drive, St. Thomas, U.S Virgin Islands 

The project consists of the reconstruction and widening of approximately 0.5 

miles of Veterans Drive (Route 30) from west of Hospital Gade to Long Bay 

Road in the Charlotte Amalie Harbor area on the island of St. Thomas, U.S. 

Virgin Islands (USVI). To improve mobility and access, the USVI Department 

of Public Works (DPW) proposed to widen Veterans Drive towards the 

bay to add two additional traffic lanes, medians, and a promenade, among 

other features. The work includes roadway excavation, embankment, 

aggregate base, asphalt pavement milling, hot asphalt concrete pavement, 

reinforced concrete pavement, concrete curb and gutter, concrete, brick, 

and cobblestone sidewalk, precast modular block retaining walls (seawalls), 

drainage, utility (water, telephone, sewer, power, and irrigation) adjustments 

and replacements, traffic signal and street lighting replacements, and other 

miscellaneous work. Benefits of the project include alleviating the existing 

traffic congestion, providing additional roadway capacity, improving safety for 

motorists and pedestrians, and enhancing the aesthetics of the waterfront and 

cultural and historical features.

The USVI government requested FLH to deliver the complex project, which 

included resolving questions during review of the contract developed by 

the DPW design consultant; coordinating approval of NEPA compliance, 

required permits, and all unique proprietary items to meet the unique 

cultural and historical streetscape elements that relieves congestion and 

creates a signature pedestrian-friendly environment. This project highlights 

Federal Lands ability to deliver complex projects and collaborating with 

multiple stakeholders and other Federal Agencies.

Project construction contract was awarded in September 2017, with 

construction anticipated to begin Spring 2018.
The Federal Lands Highway Program — 2017 The Year in Review 27

Project Delivery

Scoping Trip inspecting another railroad tunnel slated for an upcoming 

project, further along the Spruce Railroad Trail.

Spruce Railroad Trail, Olympic National Park, Washington

The Spruce Railroad Trail is a rail trail located on the shores of Lake Crescent about 20 miles west of Port Angeles, Washington. The trail follows the former 

Port Angeles Western Railroad. In 1918, the U.S. Army Signal Corp built the Spruce Railroad to haul Sitka Spruce to mills for the manufacture of airplanes. 

Railroad companies used the tracks as a common carrier line and to haul logs until 1951. Sometime in the early 1960’s, with the railroad defunct, workers 

blasted the McFee Tunnel closed. At the time they kept no documentation of the blasting. This lack of documentation challenged workers in late 2016 when 

work began to restore the tunnel as a hiking, biking, wheelchair accessible pathway.

After the rubble and debris were cleared shotcrete was applied to reinforce the tunnel structure. Project completion was celebrated with a ribbon cutting on

July 15, 2017, at the entrance of the McFee Tunnel to celebrate its grand reopening after over 50 years. 
28 The Federal Lands Highway Program — 2017 The Year in Review

Skagit River Bridge Rehabilitation, North Cascades National Park, Washington

The Skagit River Bridge provides access to the North Cascades National Park Visitor Center and Newhalem Campground. This project provided for much 

needed repairs on the bridge, including epoxy embedded aggregate deck resurfacing, as well as rock stabilization on the bridge approach.

Project Delivery
The Federal Lands Highway Program — 2017 The Year in Review 29

Pavement Preservation, Utah

Project Delivery

Bryce Point Access Road, Bryce Canyon National Park, Utah

Roadway and Parking Area, Island In The Sky,

Canyonlands National Park, Utah

Visitor Center Parking, Arches National Park, Utah
30 The Federal Lands Highway Program — 2017 The Year in Review

Historic Columbia River Highway State Trail, Oregon

The Historic Columbia River Highway State Trail Project shifted from a 

routine construction project to an emergency situation in September 2017, 

when the area was overcome by fire. The Eagle Creek Fire ravaged the 

Columbia River Gorge and shut down Interstate 84, a main east-west artery. 

Of particular concern was the area around Shellrock Mountain, the location 

of the state trail project. FLH staff worked with the Oregon DOT and Fire 

Control to clear timber within the project limits, install debris ditches and 

barriers, and facilitate a 4,000-foot long lane shift detour to re-open I-84. 

The fire was a significant event that closed I-84 for several weeks. The state 

trail project was in the middle of the closure and also in danger of being 

burned, and, the construction contract was at risk of significant delay or 

possible termination. Project staff worked very hard with the “Fire Control” 

team to assist and keep the project going. The project became part of the 

fire control and suppression plan, by clearing timber and thus removing 

fire fuel. The cleared timber was removed in record time. After the fire was 

over, burnt debris was falling down the slopes above the project and actually 

entering I-84 (which was still closed) and crossing the travel lanes. Crews 

installed debris catch ditches, protection barriers, and a lane shift (away 

from the slope). This allowed I-84 to open for the first time in weeks. FLH 

staff performed site reconnaissance to evaluate the hazards and worked with 

Oregon DOT, USFS, BPA, Fire Control, and other agencies to develop a 

prioritization and mitigation plan. That plan included removing burnt and 

dead trees high up on the slopes above the project and the interstate using a 

helicopter with a saw attachment. 

A total of 8,000 feet (4,000 feet for each lane) was moved to create a lane shift away from 

burnt hill sides.

Sand filled “Super Sacks” were used as debris barriers.

Project Delivery

Fire Control Team Helicopter lifts off with saw attachment.
The Federal Lands Highway Program — 2017 The Year in Review 31

Cold In-Place Recycling, Palmer Junction, Umatilla National Forest, Oregon

The Palmer Junction Roadway was rehabilitated using the Cold In-Place recycling (CIR) process. The top three inches of the existing surface are ground down 

and mixed with an emulsified asphalt recycling agent. Then the material is placed back down on the road using pavers. This process not only saves on material 

costs but also on fuel costs and traffic delays since new road material does not need to be hauled to the project site. 

Project Delivery
32 The Federal Lands Highway Program — 2017 The Year in Review

Horse Ranch Creek, Road and Bridge Rehabilitation, Minuteman Missile 

Base Roads, Montana

Old Highway 2 Rehabilitation and Bridge Replacement, Phillips County, 

Montana

Project Delivery
The Federal Lands Highway Program — 2017 The Year in Review 33

Project Delivery

Manning Crevice Bridge, Salmon River Road, Nez Perce National Forest, Idaho

Manning Crevice Bridge, built in 1934 by members of the Civilian Conservation Corps was part of Franklin D. Roosevelt’s efforts to create jobs during the 

Great Depression. The existing timber-towered suspension bridge over the Salmon River had width, height, and turning limitations, as well as load restrictions. 

Extremely sharp curves onto the bridge from both ends, required wheel rub rails to both direct wheels away from the support posts and to keep vehicles on the 

structure. The concrete anchor blocks showed extreme deterioration and cracking, and the timber support towers showed signs of serious decay.

The current project will correct all deficiencies by constructing a new bridge slightly upstream from the existing bridge. The decision to replace the bridge 

came after an inspection in 2016, when it was found out of compliance with current bridge standards. The new bridge will span over 300 feet, as a one-lane 

asymmetrical suspension bridge with a 75-foot tall steel tower on the north end. The CM/GC method was utilized and the project is expected to be complete in 

spring of 2018.
34 The Federal Lands Highway Program — 2017 The Year in Review

Emergency Relief for Federally Owned Roads (ERFO)

Damage caused by a 

landslide. NPS consulted 

with FLH and closed the 

roadway before a larger 

failure could occur. An 

emergency letter contract 

was awarded March 3, 

2017. The road reopened 

on May 1, 2017.

Big Oak Flat Road, Yosemite National Park, California Hurricanes Irma and Maria, Puerto Rico, US Virgin Islands

In response to a Mission Assignment from the Federal Emergency 

Management Agency (FEMA) issued in mid October, FLH provided direct 

support to Puerto Rico and the Virgin Islands in the aftermath of Hurricanes 

Irma and Maria. FLH staff made a field visit during the week of October 25 

through November 3 to establish initial contact with Puerto Rico Highways 

and Transportation Authority (PRHTA) staff in the different regions to assist 

in the location and prioritization of damage sites. During this visit the team 

was able to do market research among local contractors. The determination 

was made that Letter Contracts were the only feasible way to execute the 

work to reestablish critical access within the timeframe given.
The Federal Lands Highway Program — 2017 The Year in Review 35

Emergency Relief for Federally Owned Roads (ERFO)

Pilgrim Creek Road, Shasta-Trinity National Forest, California

Two steel plate culverts along Mud Creek in the Shasta-Trinity National 

Forest were damaged and plugged with mud flow debris in September 2014, 

after a portion of Konwakiton Glacier broke off Mount Shasta. The project 

goal was to replace the damaged culverts with structures that would pass 

future debris flow events, while providing safe access within the Forest. A 

bridge structure was proposed as part of a no-cost contract modification 

to the original plan for arched culvert structures. This solution will better 

handle future mud flow and runoff events without negative impact to the 

stream, replacement structures, or the roadway. 

Before

After

Emergency Slide Repair and Pavement Reconstruction, Monongahela 

National Forest, West Virginia

In June 2016, the Monongahela National Forest experienced a 1000-

year storm with 10 inches of rain falling in less than 24 hours. The event 

devastated this West Virginia National Forest Unit and surrounding 

communities. The Forest Service requested immediate assistance and 12 

FLH engineers of varying disciplines were dispatched to assess damage and 

document in Damage Survey Reports (DSRs) for the Forest. The inspection 

team was joined with Forest Service staff to guide them through the 

devastation.

The damage will result in multiple future projects. One project at Milepost 16 

on FS Route 86, Williams River Road was identified as an immediate priority 

to reestablish access to local residents and visitors. The project consisted 

of slide repair and pavement reconstruction. With an accelerated schedule, 

project inception to contract award took less than 4 months. FLH has 

identified and will deliver 8 projects totaling $20 Million in damage resulting 

from the storms.

A Forest Service Timber Technician accompanying the FLH inspection team prepares to clear a 

path of fallen trees with protective gear and chain saw.
36 The Federal Lands Highway Program — 2017 The Year in Review

Ouachita and Ozarks/St. Francis National Forests, Arkansas

The May 2017 flood in Arkansas affected both the Ouachita and Ozarks/St. Francis Units of the Forest Service. The extensive damage that had to be assessed 

on these forests took an entire week of less than smooth surfaced, unpaved roads in the middle of one of the largest forests in the east. On the final road of the 

final day, in the final Ranger District, Federal Lands and Forest Service personnel were treated to the rare sight of wild mustangs grazing in one of the Forest 

clearings. The Assessment Team agreed, the scene made all the bumps and dips worth it!

Emergency Road and Trail Repairs, Lake Shelbyville, Kaskaskia River, 

and Lake Carlyle, Illinois

FLH demonstrated commitment to accelerate the preliminary schedule for 

this emergency project from scoping to PS&E approval within 6 months 

from the time project funds were made available after scoping. The project 

consisted of emergency repair of gravel roads, parking areas, and sidewalks/

trails damaged by flooding from a storm in 2016. 

Emergency Relief for Federally Owned Roads (ERFO)
The Federal Lands Highway Program — 2017 The Year in Review 37

Emergency Relief for Federally Owned Roads (ERFO)

Tamarac Wildlife Refuge, Minnesota

In July 2016 the Northern plains of Minnesota were flooded. One of the 

casualties of the flood was Tamarac Wildlife Refuge just south of the White 

Earth Indian Reservation that specializes as a breeding ground for migratory 

birds. Thankfully the damage was minor considering the widespread nature 

of the storm. During the assessment visit, the ERFO Coordinator took a rare 

opportunity to capture one of the many dozens of hummingbirds in midflight! 

Seeing these amazing animals in a protected habit was a great way to cap a 

two-week tour of damage that eventually exceeded $20,000,000 affecting 3 

states and 7 partner units.

Black Bayou Lake National Wildlife Refuge, Louisiana 

The holiday storms of 2015 caused damage in 8 Southeastern states from 

Missouri through Louisiana all the way to the South Carolina coast. It has 

been the most extensive and widespread event in the history of the ERFO 

program. Even though the total cost of the combined damage was not a 

program record there were some very unique projects involved and many 

units that got their first taste of the devastation associated with these 

disasters. The Black Bayou Lake National Wildlife Refuge in Louisiana lost 

a vital piece of their infrastructure in their boardwalks that take visitors into 

the heart of these storied wetlands. FLH took the lead in the repair of these 

structures and has made a positive impression on this unit as they struggle 

with their first huge infrastructure loss.

Chequamegon-Nicolet National Forest, Wisconsin

A deluge of rainfall on July 11, 2016 led to extensive flooding and damage to 

roadway and bridge infrastructure of the Chequamegon-Nicolet National 

Forest, located in northern Wisconsin. This project aims to identify and 

repair all the damage from that storm, which stretches across hundreds of 

miles of roadway and trails and included over 55 original Disaster Survey 

Reports (DSR). The project team developed a comprehensive scoping 

report which described the damage in detail and estimated the repair cost 

for all sites. A feasible grouping of projects was developed that optimized 

the delivery schedule for all work and encompassed all 55 DSR sites 

including roadway and trail bridges, culvert repair and replacement and 

AOP determination, grading, and slide repair. The design team expended 

significant effort to develop detailed and quality preliminary estimates for 

each DSR site, which ultimately helped in deciding the appropriate delivery 

Chequamegon-Nicolet National Forest method for design, which includes both A&E and in-house work.
38 The Federal Lands Highway Program — 2017 The Year in Review

Technical Assistance

Bridge Inspection Program

With inspection teams now located in all three Federal Lands Divisions, the 

efficiency of the Bridge Inspection Program (BIP) continues to improve. 

Advantages include cost savings through reduction of travel time, performing 

a higher percentage of inspections with in-house resources, and furthering 

closer working relationships with our partner agencies in the various regions. 

This has allowed the divisions to become more familiar with bridges in their 

inventory, share more work, and function as one organization with the goal of 

delivering quality projects in a cost-effective and timely manner.

Because of the allocation of inspection work among the three Divisions, the 

Bridge Inspection Program has been able to reduce the average cost of an 

inspection by up to $500 per bridge.

Under Bridge Inspection, Lake Shasta Spillway Bridge, California

FLH Bridge Management Team reviewing process for bridge inspections with NPS staff during 

the annual Roads Working Group meeting, Gettysburg, PA

FLH Geotechnical Engineer consults with on-site staff on the construction of the new

George E. Tryon Bridge, South Fork Smith River Road, California
The Federal Lands Highway Program — 2017 The Year in Review 39

Technical Assistance

Buford Dam Road Feasibility Study

In cooperation with the US Army Corps of Engineers, FLH completed a 

feasibility study to relocate the Buford Dam Road for traffic and pedestrian 

safety and security at Lake Sydney Lanier in Forsythe and Gwinnet Counties, 

Georgia. Constructed by the Corps in the 1950’s, the multi-purpose lake 

provides for flood protection, power production, water supply, navigation, 

recreation, and fish and wildlife management. Initially designed to provide 

access for recreation and engineered structures associated with the dam, the 

route has turned into a major commuter thoroughfare carrying 350,000 cars 

per month. The narrow typical section creates a safety hazard for visitors 

and challenges associated with emergency response. The dam is rated in the 

top five security interests in the State. The study considered five alignment 

alternatives with roundabouts and various phases of construction, including 

an ultimate alternative to bypass the dam with a 1200 foot bridge structure 

over the Chattahoochee River. The Corps has requested FLH to begin design 

for at least the first phase of the project.

FLH conducts George Mason University Civil and Infrastructure 

Engineering (CEIE) 499-Highway Design Construction Course 

For the eighth time, the FLH conducted its George Mason University 

course for Fall 2017 to ten civil engineering students. This year the class 

was upgraded to a full 3-credit course. This laboratory course introduces 

senior-level students to the tools, techniques, and methods used by 

various civil engineering disciplines to design and construct roads and 

bridges. The laboratory uses short lectures, individual readings, equipment 

demonstrations, and hands-on exposure to the equipment and processes 

used by civil engineering staff. Sessions are held either in a classroom setting 

or on a local project. For most students, it is their first experience within a 

professional engineering office environment. The course runs 14 sessions for 

the full fall semester on Thursday mornings.

Buford Dam Road, Lake Sydney Lanier, Georgia Project Site Visit, Rock Creek Park, Washington, DC
40 The Federal Lands Highway Program — 2017 The Year in Review

Technical Assistance

Road Safety Audits and Safety Reviews

The FLH Safety Team provides technical services to our FLMA partners 

and to our own project development and construction staff. The Team 

seeks opportunities to incorporate safety measures in projects, balanced 

with resource preservation to reduce the number of fatal and injury crashes. 

The Safety Team conducts Road Safety Audits and other safety reviews, 

encourages the use of new technologies such as the latest crash-tested 

hardware, provides training, and continues to pursue the use of proven

safety countermeasures such as high-friction surface treatments and wider 

edge lines.

FLH Highway Safety 

Engineers collecting 

measurements of 

pavement edge slope and 

vehicle speed for project 

safety reviews.

U.S. DOT’s Small Business Innovation Research (SBIR) Program

Real-Time Solar-Powered Traffic Data Network

With the support of the SBIR program, the FLH and NPS contracted to 

develop, test and deploy a low-profile Traffic Monitoring System developed 

by small business, Intelligent Automation.

The Unobtrusive Traffic Monitoring System (UTMS) consists of a Doppler 

microwave radar and Wi-Fi/Bluetooth sensors that can be installed either 

on the back of NPS traffic signs along roadways, or mounted on bridge piers 

or lighting poles. The sensors collect vehicle volume, speed, travel time, and 

vehicle type classification data.

Advanced prototype UTMS systems are currently being tested at six locations 

on the George Washington Memorial Parkway (GWMP) in Northern Virginia 

under Phase II of SBIR funding. The next steps for moving the technology 

toward deployment include long-term testing and validation of the system on 

the GWMP.

Plans are in place to further improve and ruggedize sensor hardware and 

software, as well as deploy the system at other NPS parkway locations.
The Federal Lands Highway Program — 2017 The Year in Review 41

Technical Assistance

SHRP 2 R07 Performance Specifications for Rapid Renewal – Furthering 

the Use of Performance Specifications

FLH has been working with FHWA Turner-Fairbanks Highway Research 

Center (TFHRC) to refine the development of performance-based 

specifications for hot mix asphalt materials through the SHRP2 R07 — 

Performance Specifications for Rapid Renewal effort. FLH is one of the first 

agencies to actively pursue a performance type specification for hot mix 

asphalt. The intent is to further advance the quality and application of the 

agency’s asphalt mixtures and extend the service life of its pavements.

Being able to determine quality-adjusted pay factors that realistically reflect 

pavement performance is a material and construction related challenge faced 

by all public agencies that design, construct, or manage asphalt concrete 

pavements. Research has led to the development of relationships that predict 

pavement performance based on the volumetric properties measured in 

present-day construction practice. When combined with proven laboratory 

test methods that measure pavement performance, these performance 

predictive relationships can be further enhanced to provide a more accurate 

determination of the expected pavement life. These predictive relationships 

and advanced testing provide a valuable piece of information that can be used 

to: optimize and improve pavement performance; determine how volumetric 

property variations affect pavement life; and provide information needed 

to determine performance-based pay factors that reflect the as-constructed 

pavement life. Studies are underway on past projects with the goal of 

developing a performance specification for hot mix asphalt and determining 

appropriate pay factors for the as-constructed project.

Asphalt Mixture Performance Tester — 

testing machine used in pavement structural 

design and mixture design specifically 

designed to measure asphalt mixture 

engineering properties

Internally Cured Concrete (ICC)

FLH is working on Internally Cured Concrete (ICC) technology deployment 

under the Coordinated Technology Implementation Program (CTIP). ICC 

provides more durable concrete by reducing the early age cracking potential 

for critical structural elements. This occurs by providing internal curing of 

the concrete by substituting highly absorptive lightweight fine aggregate for 

a portion of the normal fine aggregate utilized in the concrete mix design. 

The highly absorptive light-weight fine aggregate releases the water during 

concrete hydration and aids in reducing autogenous shrinkage. 

Three separate bridge replacement projects are using this technology. 

The Fort Pulaski Bridge in Georgia has currently placed the bridge deck 

concrete. The Shoup and Manning Crevice bridges in Idaho will finish the 

concrete deck placement in the upcoming months. Laboratory testing of the 

concrete materials and monitoring of the structures will occur to validate the 

technology deployment.

Fort Pulaski Bridge, Georgia

Manning Crevice Bridge, Idaho
42 The Federal Lands Highway Program — 2017 The Year in Review

Technical Assistance

FLMA’s Utilize New Unstable Slope Management Program to Inform 

Planning through Project Delivery in Denali National Park

The 92-mile Denali National Park Road has a long history of landslides 

causing substantial disruptions to transportation, access restrictions for 

private inholders, and concerns for public safety. The most dramatic example 

occurred in July 2016 when a large debris flow triggered by intense rains 

blocked and closed the road to normal traffic for 10 days, emphasizing the 

need to reduce risk and make the area more resilient to unstable slope events.

The first step was to implement the new asset management program, 

Unstable Slope Management Program for Federal Land Management 

Agencies (USMP for FLMAs). This program was developed for NPS, Forest 

Service, and BLM to systematically identify the location and condition of 

the relative unstable slope hazards and risks along the park road. The results 

of the initial USMP work was used to evaluate 141 unstable slopes. In 2017, 

Denali National Park completed a Long Range Transportation Plan (LRTP) 

and Risk Assessment (RA) Workshop where a broad, multidisciplinary group 

identified unstable slopes as the greatest risk to the park road. 

Since completing the LRTP and the RA Workshop utilizing the new USMP 

for FLMA program and processes, three highly rated unstable slopes along 

the Park Road have been programmed for risk reduction implementation. In 

2018, FHWA is scheduled to assist the Park with a benefit cost analysis for the 

highly rated unstable slopes in the USMP for the park road to help develop a 

reprioritized list for programming based on the greatest benefit to the users 

to provide decision support for prioritizing facility needs in the out-years. 

Denali National Park, in conjunction with FHWA, hopes the USMP asset 

management system, teamed with other useful geologic hazard and risk 

susceptibility work in the Park, will arm decision makers with the data they 

need to make transparent, prioritized programming decisions to reduce risk 

from unstable slopes and increase resiliency of the park road well into

the future. 

Eagle’s Nest Debris Flow in July 

2016, looking down to the Denali 

Park Road

U.S. Agency for International Development, Office of Inspector General 

Millennium Challenge Corporation (OIG-MCC)

FLH Pavement Engineers traveled to Dakar, Senegal to provide engineering 

assistance to support mission critical audits on roadway projects pertaining 

to pavement management, maintenance, stewardship and oversight, and 

sustainability processes. With the lack of in-house engineering expertise 

within OIG-MCC, FLH was in the unique position to provide this assistance 

while simultaneously using the opportunity to promote FHWA as the agencyof-choice for transportation engineering services at an international level. 

Work included providing project level pavement investigations, analyses, 

recommendations, and construction support for pavement work ranging 

from preservation, rehabilitation and maintenance, and reconstruction. 
The Federal Lands Highway Program — 2017 The Year in Review 43

Federal Lands project staff on scoping trip in Tazlina, Alaska

Technical Assistance

Working outdoors has its lows...

 Recorded Temperature -40 degrees below zero!

Federal Lands Bridge Inspection Team, Furnace Creek Visitor Center, Death Valley National Park, California

Recorded Temperature 129 degrees fahrenheit!!

and its HIGHS!
flh.fhwa.dot.gov

Defense Access Road, Wheatland County, Montana