Roadway Design 

Guidelines

U.S. Fish & Wildlife Service

Cover: A Great Blue Heron flies off with 

its catch at William L. Finley NWR

in Oregon. Roadways on National 

Wildlife Refuges provide opportunities

for wildlife viewing and photography, 

two of the Big Six activities supported 

by the National Wildlife Refuge System. 

Photo: George Gentry, USFWS

Prepared By

FWS Pacific Region, NWRS Branch of Transportation

Portland, Oregon

Alex Schwartz, PLA 

Landscape Architect

Alex_Schwartz@fws.gov 

503/736 4723 

Contributors 

Jeff Holm - Chief, R1 Branch of Transportation, Refuge Roads Coordinator R1 & R8

Mike Marxen - Chief, R1 Branch of Visitor Services and Communication 

Peter Field - Western Federal Lands, Federal Highway Administration

Special Thanks

Steve Suder - National Coordinator, Refuge Transportation Program, FWS

Charles Houghten - Chief, R1 Division of Planning, Visitor Services and Transportation

Doug Staller - Refuge Manager, Necedah NWR, FWS, R3

Sandra Jacobson - Wildlife Biologist, Pacific Southwest Research Station, U.S. Forest Service

Florian Schulz and Emil Herrera - Florian Schulz Photography (visionsofthewild.com)

Patrick Stark - Visual Information Assistant, R1 Visitor Services and Communications

Consultant Team

SvR Design Company 

 Tom von Schrader, PE

 Nate Cormier, RLA

 Justin Martin, ASLA

Quatrefoil, Inc. 

 Brian Bainnson, ASLA

Roadway Design Guidelines

U.S. Fish & Wildlife Service

Purpose

The U.S. Fish & Wildlife Service 

(FWS) is the world’s premier 

conservation agency, managing over 

150 million acres of wildlife habitat 

on National Wildlife Refuges alone. 

FWS is in a unique position to 

demonstrate the land ethic so deeply 

interwoven in the rich fabric of our 

national heritage. 

This guide highlights state of the 

art ecological, planning, design 

and engineering considerations 

for roadway projects that heed 

both the significant benefits and 

impacts these projects present. 

Roadway projects on FWS 

managed lands should conform to 

planning and design criteria that 

have been established to support 

the FWS mission. This document 

provides such criteria in the form 

of guidelines. These guidelines are 

summarized in a table of contents 

that serves as a project checklist. 

The Roadway Design Guidelines 

are a wayfinding tool intended to 

facilitate dialog and decision making 

among project teams. The guidelines 

have been crafted to support the 

interdisciplinary team typically 

involved with decision making 

regarding a roadway project: 

Brian Bainnson Eva Paredes/USFWS

Project Leaders, Project Managers, 

and technical experts from various 

disciplines. 

This document includes 31 individual 

project planning and design 

guidelines, organized around 6 major 

themes. The project checklist serves 

as an overview of these guidelines, 

and has been provided as a tool to 

assist in project planning, design and 

implementation.

In the pages that follow you will find 

information and resources that will 

be useful in your work on roadway 

projects. Using these guidelines 

is not an end in itself. Rather, the 

guidelines are a starting point 

from which to explore solutions to 

implement a roadway project of the 

highest standard. Every guideline 

begins with a brief discussion of the 

intent for presenting a particular 

topic, followed by supporting 

principles central to honoring the 

guideline, as well as associated 

metrics. Selected resources 

are provided to gain a deeper 

understanding of the topic. 

More Than Just A Road

A ‘roadway’ as referred to in these guidelines encompasses not only 

the suite of typical improvements associated with a vehicle-focused 

transportation project, but also related facilities such as parking, 

overlooks and the zone of ecological impacts from a road. These can be 

summarized as follows:

 Typical transportation improvements extend from the centerline 

of an existing or proposed road outward and include associated 

infrastructure components, such as paving, utilities, grading, drainage 

and planting. 

 Other facilities and infrastructure commonly associated with 

vehicular transportation, include parking, visitor contact facilities, and 

pullouts. 

 Ecological connections and impacts beyond the edge of the 

physical road or right of way, such as habitat fragmentation, habitat 

disturbance, pollution and aquatic and terrestrial species conflicts. 

Visitor contact facilities are often 

located in close proximity to 

roadways like this one at McNary 

National Wildlife Refuge (NWR) 

(top). Bison herd as viewed from 

roadway at the National Bison 

Range (bottom).

Transportation Legislation: Fixing 

America’s Surface Transportation 

Act (FAST Act) and Moving Ahead for 

Progress in the 21st Century (MAP-21) 

The previous Refuge Roads Program 

was re-named and expanded into the 

FWS Transportation Program within 

the new Federal Lands Transportation 

Program (FLTP) in MAP-21 (enacted 

October 1, 2012).

The current transportation legislation, 

the FAST Act (enacted December 

4, 2015), continues the FLTP. These 

guidelines are generally applicable to 

all FWS transportation infrastructure. 

They apply to future improvements or 

new construction performed on this 

system of facilities and assets.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Steve Hillebrand/USFWS

Dalton Highway river crossing at 

Kanuti NWR

The mission of the U.S. Fish & Wildlife Service 

is working with others to conserve, protect and 

enhance fish, wildlife, plants and their 

habitats for the continuing benefit of the 

American People.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Project Checklist

Project Checklist Project Checklist

LE – Landscape Ecology

LE-1 Improve habitat connectivity

LE-2 Reduce impacts to wildlife and habitat

LE-3 Understand hydrologic processes of regional landscape

LE-4 Respond to intrinsic qualities of regional landscape

LE-5 Improve resiliency to flooding and other extreme weather

PC – Planning Context

PC-1 Review relevant planning, policy and regulatory information

PC-2 Define level of service for the project

PC-3 Evaluate multiple siting and alignment alternatives

PC-4 Assess full costs and impacts of transportation system

PC-5 Communicate with team and stakeholders

PC-6 Consider Cultural and Historic Resources

DE – Design and Engineering

DE-1 Preserve and restore native vegetation and other natural resources

DE-2 Consider and plan for invasive species management

DE-3 Minimize cut and fill to fit with existing landscape

DE-4 Consider road geometries for lower speeds, safety and alertness 

DE-5 Consider construction impacts and best practices

DE-6 Consider range and sources of materials for sustainable construction

DE-7 Consider maintenance

OP – Organism Passage

OP-1 Develop your corridor plan for crossing

OP-2 Provide and enhance aquatic organism crossings

OP-3 Provide and enhance terrestrial wildlife crossings

OP-4 Evaluate the need for wildlife fencing and other guiding features

OP-5 Consider warning and safety systems for drivers

SM – Stormwater Management

SM-1 Buffer habitat from polluted runoff

SM-2 Protect habitat from erosive flows and flooding

SM-3 Monitor and maintain stormwater facilities

SM-4 Promote stewardship of aquatic resources

VE – Visitor Experience

VE-1 Preserve and highlight scenic value

VE-2 Promote and facilitate multiple modes of transportation

VE-3 Comply with accessibility standards and guidelines

VE-4 Facilitate compatible wildlife dependent recreation and education

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Patrick J. Hendrickson/Highcamera.com

Roadway through Chincoteague NWR 

provides visitors with access to the Refuge 

and beach.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.

Landscape

Ecology

Roadway Design Guidelines

U.S. Fish & Wildlife Service
David Pitkin/USFWS
Landscape Ecology

Overview

Pattern and Process

Roads and ecological function are 

intrinsically intertwined. Roadways 

on FWS managed lands in particular 

are frequently located in areas of high 

ecological importance.

This section, Landscape Ecology, is 

intended to help you consider the 

broad-scale environmental impacts of 

your decisions regarding roadways 

and transportation infrastructure. It 

addresses a range of issues, providing 

you with a set of tools for decisionmaking.

Any new roadway construction or 

improvements to existing roadways 

on FWS managed lands requires 

unique treatment, consistent with the 

mission of the Service and supported 

by a detailed understanding of refuge 

management goals. Improvements 

need to be made in a manner 

consistent with applicable laws 

such as the Migratory Bird Treaty 

Act (MBTA), Fish and Wildlife 

Coordination Act (FWCA), Bald 

and Golden Eagle Protection Act 

(BGEPA) and Endangered Species 

Act (ESA). While the guidelines in 

this section cover principles which are, 

in general, applicable across a broad 

range of environments, take time 

to consider the guidelines and their 

specific implications within the unique 

bioregional context in which your 

projects will occur.

Research in the field of road ecology 

demonstrates that the multitude 

of adverse impacts of roads on 

landscapes, and the healthy function of 

the natural systems they traverse, are 

reduced by designing for slower travel 

speeds and lower traffic volume. 

A significant component of a roadway 

project may be to remove roads from 

ecologically sensitive areas and restore 

those areas.

Landscape Ecology 101

Landscape ecology is the study of the relationship between spatial 

pattern and ecological processes on a wide variety of landscape scales and 

organizational levels. Some key landscape ecology concepts are:

Patch - Distinct area of a particular habitat or landscape type. Key 

considerations include size, number, location, and composition/contents. 

Small patches have a higher edge-to-interior ratio; some species thrive 

on edges, while others strictly prefer the qualities of a patch interior.

Edge - The shape, width, straightness, and other qualities of habitat or 

patch edges affects their performance and utility for various species.

Connectivity - This depends on distance, as well as other factors that 

may promote or inhibit movement between patches. A roadway may 

seem relatively narrow, but constitute a greater barrier than a broad 

field for some species.

Mosaic - The bigger picture that includes the various patches and 

the matrix that contains them (e.g. areas of remnant woodland and 

wetlands, within a matrix of agricultural fields). Key elements include 

scale, grain (coarseness), patch diversity, and degree of fragmentation.

Roads form a network, which may be viewed as a matrix that contains a 

variety of habitat patches. They significantly affect connectivity, creating 

abrupt and harsh edge conditions, whose effects (such as light, noise, air 

quality, temperature, hydrology) can extend well into the adjacent habitat 

patches.

Landscape Ecology | Overview

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Landscape Ecology | LE-1

LE-1 Improve Habitat Connectivity

Principles

 Identify and prioritize habitat 

restoration and connectivity 

opportunities at the landscape 

scale

 Review state habitat connectivity 

plans as well as applicable 

recovery plans for listed species

 Consider impacts and footprint of 

the entire roadway as defined in 

these guidelines

 Develop partnerships among land 

management agencies and the 

local FWS Ecological Services (ES) 

office

 Partner with neighbors

 Identify opportunities for 

individual projects to minimize 

impacts to wildlife and restore 

habitat connectivity

Metrics

 Trends in species mortality, 

avoidance, low population 

survival, sensitive or endangered 

species populations

 Decreased wildlife-vehicle collisions 

and/or roadway avoidance

 Distance between habitat patches

 Distribution of species/population 

along and across roadway

Resources

Overview of road ecology and 

guidelines for ecological road 

planning and design.

Patricia White/Flickr.com

Forman, Richard, et al. 2003. Road 

Ecology: Science and Solutions. 

Graphic explanations of landscape 

ecology principles.

Dramstad, Olson, and Forman. 1996. 

Landscape Ecology Principles in 

Landscape Architecture and LandUse Planning.

Discussion of positive and negative 

impacts of roadways on adjacent 

vegetation.

Forman, Richard. 2002. “Roadsides 

and Vegetation.” In Proceedings 

of the International Conference 

on Ecology and Transportation, 

Keystone, CO, September 24-28, 2001. 

Roadway design guidelines from 

applied ecology and experiential 

perspective.

Jones, Grant R., et al. 2007. Applying 

Visual Resource Assessment for 

Highway Planning (pp.130-139) and 

Road Alignment (pp.330-341). In 

Landscape Architecture Graphic 

Standards.

Effects of roadways on wildlife 

(see also entire February 2000 

Conservation Biology issue).

Trombulak, Stephen and 

Christopher Frissell. 2000. 

Review of Ecological Effects of 

Roads on Terrestrial and Aquatic 

Communities.

Wildlife conservation and planning 

efforts among the western states.

Western Governors’ Wildlife Council. 

http://www.westgov.org/. Resources 

include the Wildlife Corridors 

Initiative Report (2008) and Wildlife 

Sensitivity Maps.

Terrestrial under-crossing 

facilitates wildlife movement 

across a landscape fragmented by 

a highway in Banff NP, Canada

Habitat connectivity is disrupted 

along any road corridor

Intent

Roadways should be examined for their potential to impact habitat 

connectivity. Wherever possible such impacts should be minimized and/

or mitigated. When a contiguous habitat area is bisected by a roadway, 

abrupt edge conditions are created. Such habitat fragmentation is generally 

undesirable. Hydrologic and soil community connectivity are also affected. 

Native plantings and other restoration activities associated with roadway 

improvements can be designed to support multiple habitat objectives, 

including buffering patch interiors and mitigating roadway impacts. In rare 

instances, roadway corridors may also serve as habitat connectors, linking 

otherwise fragmented communities.

Habitat Connectivity

Habitat connectivity is a term 

commonly used in landscape 

ecology to describe the degree 

of connection between nearby or 

adjacent habitat areas. Distinct 

habitat areas are frequently 

referred to as ‘habitat patches’. 

If the connection between 

these patches is not good, the 

resultant fragmentation can 

lead to loss of diversity within a 

given population of a species and 

potentially local extinction of that 

species from one or both patches. 

Even for fairly mobile species, a 

roadway can present a significant 

barrier to movement between 

patches.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
LE-2 Reduce Impacts to Wildlife and Habitat

Principles

 Identify and limit the ‘road-effect 

zone’ and determine the potential 

exposure of ESA listed species 

and critical habitat to road effects 

within that zone. Minimize 

adverse effects to ESA listed 

species and critical habitat, and 

ensure any such effects are 

addressed through the ESA 

section 7 compliance process, as 

appropriate.

 Design for lower speeds, in order 

to minimize disturbance

 Consider management techniques 

to minimize disturbance to 

wildlife on auto tour routes

 Examine how road alters wildlife 

use patterns

 Examine how future effects on 

wildlife could make a project 

compatible (or not) with 

management goals

 Consider effects of noise, light 

and chemical pollution on 

habitats and wildlife

Metrics

 Reduction of wildlife-vehicle 

collisions

 Health of wildlife populations 

with habitats fragmented by or in 

proximity to roadways

 Road density (landscape ecology 

metric, see Definitions)

 Mesh size (landscape ecology 

metric, see Definitions)

Florian Schulz Mac Danzig Photography

Resources

Overview of road ecology, guidelines 

for ecological road planning and 

design. See especially discussion of 

road-effect zones, pp. 306-16.

Forman, Richard, et al. 2003. Road 

Ecology: Science and Solutions.

Latest information on road 

ecology as it relates to mitigating 

interactions between roads and 

wildlife.

Beckmann, J. P., et al. 2010. Safe 

Passages.

Identifying & prioritizing habitat 

connectivity zones, and guidelines 

for design solutions.

FHWA. 2008. Best Practices Manual, 

Wildlife Vehicle Collision Reduction 

Study (Report to Congress).

Effects of roadways on wildlife 

(see also entire February 2000 

Conservation Biology issue).

Trombulak, Stephen and 

Christopher Frissell. 2000. 

Review of Ecological Effects of 

Roads on Terrestrial and Aquatic 

Communities.

Buffer design guidelines.

Bentrup, G. 2008. Conservation 

buffers: design guidelines for 

buffers, corridors, and greenways. 

Access at: http://www.unl.edu/nac/

bufferguidelines/

See also: 

Section OP - Organism Passage

Roadways have significant 

impacts on both individuals 

and populations.

Impacts to wildlife and habitat 

extend outward from the 

roadway in various degrees, 

creating the ‘road-effect zone’.

Landscape Ecology | LE-2

Intent

Roads have a significant impact on wildlife populations and habitat. Roads 

can directly impact wildlife through mortality (e.g. wildlife-vehicle collisions), 

roadway avoidance, habitat loss and habitat fragmentation. Wildlife-vehicle 

collisions are a safety concern for motorists. Traffic volume and roadway 

type directly relate to the severity of wildlife impacts. Roadkill data alone 

is not an accurate indicator of roadway impacts to wildlife, due to avoidance 

behavior and other issues. Mortality and avoidance are two speciesdependent outcomes that may result from the barrier effect a roadway has 

on wildlife. In addition, maintenance practices, in combination with abundant 

edge habitat, can attract certain species of wildlife to a roadway, increasing 

the potential for conflict. 

Consider roadway alignment, design, construction, and future maintenance 

methods that create the least detrimental impact to wildlife and habitats. 

Section OP (Organism Passage) discusses terrestrial and aquatic organism 

passage in more detail. 

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Consider how road design may 

protect hydrologic processes 

 Consider how to adapt an 

existing roadway for greater 

permeability

 Consider what effects the 

roadway might have on 

subsurface flows, water tables, 

and nearby aquifers, as well 

as how these elements affect 

construction options and 

feasibility

 Consider balance between 

restoring to pre-development 

conditions and maintaining 

historic alterations to hydrology

 Consider how development 

and roadway work will support 

current hydrologic and habitat 

management goals

Metrics

 Hydrologic modeling showing 

potential changes from roadways

 Stream flow data

 Changes in species composition 

(invasives vs. natives)

LE-3 Understand Hydrologic Processes of Regional LandscapeLeon Reed/Flickr.com Eva Paredes/USFWS

Resources

General reference on road ecology. 

See in particular overview of 

roadway effects on hydrology in 

Chapter 7.

Forman, Richard, et al. 2003. Road 

Ecology: Science and Solutions. 

Island Press. Washington D.C.

Guidelines that address hydrology 

impacts of roadways.

Smith, Stacy (Idaho Technology 

Transfer Center, Univ. of Idaho). 

2005. BMP Handbook: Best 

Management Practices for Idaho 

Rural Road Maintenance. 

Design guidelines for low-use roads, 

focusing largely on hydrology.

Weaver, William and Danny 

Hagans. 1994. Handbook for Forest 

and Ranch Roads: A Guide for 

Planning, Designing, Constructing, 

Reconstructing, Maintaining and 

Closing Wildland Roads. 

Roadway design guidance for lower 

impact to hydrology.

Dashiell and Lancaster. Undated. 

Road Design Guidelines for Low 

Impact to Hydrology. Five Counties 

Salmonid Conservation Program. 

Weaverville, CA. 

Guidebook on design and best 

practices for providing aquatic 

organism passage.

USDA Forest Service. 2008. 

Stream Simulation: An Ecological 

Approach to Providing Passage for 

Aquatic Organisms at Road-Stream 

Crossings.

See also:

Section SM - Stormwater 

Management

Roads both affect and are affected by 

hydrology. Floodwaters wash out a 

road at Flint Hills NWR (top); levee 

road at Blackwater NWR (bottom).

Roadways disrupt 

natural hydrology.

Landscape Ecology | LE-3

Intent

Roadways can have dramatic impacts on hydrology at local, regional, and 

watershed scales. Disturbance to local hydrology is one negative impact to 

habitat caused by roadways. Impervious surfaces have a cumulative effect 

across a watershed, altering its hydrology and often creating detrimental 

consequences for wildlife. In some cases, the effects of a roadway on 

hydrology may be desired as part of a field station’s approach to habitat 

management. Project teams should consider carefully how a roadway will 

impact local hydrology, or conversely how hydrologic processes can inform 

design decisions. Roadway improvements might support FWS management 

goals by addressing known issues and/or restoring historic hydrologic 

processes.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Eva Paredes/USFWS

LE-4 Respond to Intrinsic Qualities of Regional Landscapes

Principles

 Consider Context Sensitive 

Solutions (CSS) for general 

design guidelines and engage a 

landscape architect

 Develop benchmarking tools for 

ecological performance

 Consider what local land use 

traditions are consistent with 

FWS goals and management 

activities

 Respond to visual appearance of 

regional landforms, vegetation, 

and other natural features

 Review historic land use patterns 

and cultural practices

 Consider visitor experience 

and potential educational and 

interpretive benefits of road and 

visitor facility designs

Metrics

 Visitor satisfaction

 Ecological literacy of visitors

 Documentation of visual analysis 

(visual resource assessment) 

process (see Resources below)

Resources

Context-sensitive highway planning 

and design case study.

Kentucky Transportation Center. 

Undated. Context-Sensitive Design 

Case Study No. 1: Paris Pike - 

Kentucky. 

Performance metrics for CSS 

design.

TransTech Mgmt., Oldham 

Historic Properties Inc., and 

Parsons Brinckerhoff Quade & 

Douglas for National Cooperative 

Highway Research Program. 2004. 

Performance Measures for Context 

Sensitive Solutions - A Guidebook 

for State DOT’s.

Items to address or consider.

ODOT. 2006. Roadside Development 

Design Manual - Guidelines for 

Visual Resource Management, 

Landscaping, and Hardscaping 

(DRAFT).

Roadway design guidelines from 

applied ecology and experiential 

perspective.

Jones, Grant R., et al. 2007. Applying 

Visual Resource Assessment for 

Highway Planning (pp.130-139), 

and Road Alignment (pp.330-341). 

In Landscape Architecture Graphic 

Standards. Available at: http://

www.jonesandjones.com/news/

publications.html.

Guidelines for visual and context 

considerations for roadway design.

USDA Forest Service. 2002. Scenic 

Byways: A Design Guide for 

Roadside Improvements.

Transportation Research Board 

of The National Academies. 

2002. A Guide to Best Practices 

for Achieving Context Sensitive 

Solutions (NCHRP Report 480).

Regional design guidelines.

New Mexico Department of 

Transportation. 2006. Architectural 

and Visual Quality Design Guidelines 

for Context Sensitive Design and 

Context Sensitive Solutions. 

Nevada Department of 

Transportation. 2002. Pattern and 

Palette of Place: A Landscape 

and Aesthetic Master Plan for the 

Nevada State Highway System.

Leota Butte overlook at Ouray NWR 

provides an excellent landscape view.

Historic land use patterns 

and natural features can 

help drive design.

Context Sensitive Solutions

The term Context Sensitive 

Solutions (CSS) refers to a 

decision-making process used 

by roadway designers and 

transportation engineers that 

accounts for many factors of a 

site’s context—from topography 

and geology to cultural history 

and the intended users—during 

the planning, design, and 

maintenance of transportation 

facilities. Landscape architects 

played a leading role in 

developing this concept and are 

valuable team members for their 

expertise in determining how a 

project can appropriately respond 

to its context. Fundamental 

landscape architecture 

capabilities include identifying 

and expressing in built form the 

intrinsic qualities of a project’s 

regional landscape.

Landscape Ecology | LE-4

Intent

Every landscape has a rich natural and cultural history, a distinct 

composition of flora and fauna, unique weather, drainage patterns and 

views. Such intrinsic qualities contribute to each location’s “sense of place,” 

or context, which should be a guiding factor in work there. A contextual 

approach should be taken when planning and designing all roadways on 

FWS lands, and should be used for such decisions as road alignment and 

location of visitor facilities. Consider local vernacular architecture and 

land management traditions (e.g. local historic and sustainable agricultural 

practices), aesthetic issues such as viewsheds and practical issues such as 

seasonal access to recreational opportunities.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
LE-5 Improve Resiliency to Flooding and Other 

Extreme Weather

Principles

 Provide alternative modes 

and means of access to FWS 

managed lands in the event that 

one access facility is rendered 

impassable

 Consider potential risk of 

exposure to natural disasters or 

extreme weather when making 

decisions on location, scale and 

design life of infrastructure 

investments

 Consider construction materials 

and methods that are more 

resilient to extreme heat, 

flooding, seismic activity, etc. 

Metrics

 Regional trends in weatherrelated damage and maintenance 

needs

 Consistency with FWS and 

Department of the Interior 

policies on vertical flood elevation 

and corresponding horizontal 

floodplain

 Reports and data from the 

Emergency Relief for Federally 

Owned Roads (ERFO) program

Resources

Information, resources and 

organizations relating to 

sustainable transportation systems.

Green Highways Partnership. http://

www.greenhighwayspartnership.org. 

Assistance with emergencies and 

data on federally owned roads.

Emergency Relief for Federally 

Owned Roads (ERFO). http://flh.

fhwa.dot.gov/programs/erfo/.

Methods to Reduce Asset 

Vulnerability.

ICF International. 2017. 

Safeguarding FWS Infrastructure 

from Extreme Weather and Other 

Hazards. 

Road damage due to flooding at 

Arrowwood NWR (top); washed out 

bridge at Flint Hills NWR (bottom).

Landscape Ecology | LE-5

Intent

Improving resiliency to natural disasters and extreme weather is a growing 

imperative for land managers and natural resource professionals, as well 

as the transportation and infrastructure sectors. Roadways on FWS 

managed lands are particularly vulnerable because many are often in or 

near tidal zones, wetlands and floodplains. Factors to consider include 

how might roadways and visitor facilities be planned to avoid high risk 

areas; how will the roadways likely be impacted by extreme weather and 

hydrologic patterns; and how might roadways be designed in a resilient and 

multifunctional manner that serves not only transportation, but perhaps 

other purposes such as protecting valuable facilities or habitat.

Eva Paredes/USFWS Eva Paredes/USFWS

Roadway Design Guidelines

U.S. Fish & Wildlife Service

FWS managed lands and facilities are 

subject to impacts from extreme 

weather events. Vulnerabilities can 

impact both visitor experience and the 

ability of field managers to 

accomplish the mission of FWS
David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.

Planning 

Context

Roadway Design Guidelines

U.S. Fish & Wildlife Service
David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.
Planning the Process

Guidelines in this section are intended to help you consider a roadway project in 

a broad context before advancing to the specifics of site design and engineering 

presented in sections DE, OP, SM and VE of these guidelines. It is important to 

consider how a particular project fits into the region’s infrastructure, 

management and public access priorities, and how it might be most compatible 

with the conservation of listed species, the recovery function of critical habitat, 

and/or the conservation of FWS trust resources. Consider how the access a 

roadway enables and the impacts a roadway creates will fit into the management 

goals for the FWS managed lands it serves. The planning process can also help 

ensure that all applicable laws (e.g., FWCA, ESA, etc.) are appropriately 

addressed.

This section will help guide you to resources that will aid with or inform the 

planning process, as well as relevant documents that should be reviewed. It also 

serves as a reminder for project elements that are sometimes overlooked, such 

as developing a communications plan that addresses both internal and external 

communications about the project. Information regarding project prioritization, 

selection, and delivery is discussed in the Region’s Long Range Transportation 

Plan (LRTP). Contact your Refuge Roads/FWS Transportation Coordinator for 

more information.

Planning Context

Overview

Planning Context | Overview

Selected project phases where the Roadway Design Guidelines

are used by the project team

 Project identification and establishment

 Project scoping meeting(s)

 Establishing goals for the project

 Establishing scope, schedule, and budget for the project

 Establishing roles and responsibilities for the project

 Preliminary / schematic design phase

 Completed project assessment and monitoring

* Contact your Refuge Roads/FWS Transportation Coordinator

for more information regarding how projects are planned and

delivered in the region.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
PC-1 Review Relevant Planning, Policy and Regulatory 

Information

Principles

 Review local, regional and 

state transportation plans to 

determine how efforts by other 

agencies may inform your project 

planning and design

 Contact GIS staff to initiate data 

gathering and discuss mapping 

and analysis needs

 Review your Comprehensive 

Conservation Plan (CCP) and 

step down plan sections on 

transportation planning

 Conduct survey work and 

geotechnical investigations

 Review the Regional Long Range 

Transportation Plan (LRTP)

 Review existing asset 

management data and any asset 

management plans

 Review requirements of NEPA 

and the National Historic 

Preservation Act (NHPA) as well 

as other applicable state and local 

regulations

 Address ESA requirements as 

applicable

 Ensure consistency with 

applicable environmental laws 

such the FWCA, MBTA, and 

BGEPA.

Metrics

 List of related documents or case 

studies reviewed

 Concurrence from project team 

and stakeholders that relevant 

information has been reviewed 

and is ready to be applied to 

future phases of work

Brian Bainnson USFWS

Documents are shared and 

discussed during a project kickoff 

meeting at Umatilla NWR (top); 

a multidisciplinary team reviews 

resource documents

during a project meeting in the 

Regional Office (bottom).

Use in-house and online 

resources to find relevant 

case studies and up-to-date 

regulatory requirements.

Resources

Overview of various systems of 

performance metrics. 

AASHTO. 2008. Guidelines For 

Environmental Performance 

Measures. NCHRP 25-25, Task 

23. Prepared by Cambridge

Systematics, Inc. Cambridge, MA.

NEPA information for EPA Region 

10 (Pacific NW).

http://yosemite.epa.gov/R10/

ECOCOMM.NSF/webpage/national

+environmental+policy+act.

Guidelines for developing projects 

that work for local communities.

WSDOT. 2003. Building Projects 

that Build Communities: 

Recommended Best Practices.

Planning Context | PC-1

Intent

Take advantage of lessons learned and research in relevant fields. Reviewing 

relevant background information ensures your project team is considering 

the most advanced and applicable contextual information related to a specific 

project. Consider what applicable legal and FWS policy requirements your 

project must respond to in order to be successful.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
PC-2 Define Level of Service for the Project

Principles

 Develop performance based, 

rather than prescriptive, goals 

and objectives

 Avoid unnecessarily overdesigning facilities

 Consider utilizing partnerships 

and alternative transportation 

to accommodate special events 

that generate traffic or atypical 

demands on roadways

 Determine jurisdiction

 Decide whether roadways should 

enable more direct access to 

facilities or amenities

 Balance needs with resources 

and intended capacity and vehicle 

or user types

 Decide if and how it may be 

appropriate to promote lower 

design speeds

 Consider seasonal and multimodal issues

 Examine case studies for other 

similar facilities in order to “right 

size” your facility for current and 

anticipated demands

 Consider Intelligent 

Transportation Systems (ITS) or 

other means of sharing traveler 

information to distribute traffic, 

inform visitors of seasonal 

closures and provide more trip 

planning

 Consider how the roadway can 

serve as a link to communities – 

gateways, access, etc.

USFWS

Wide gravel shoulder allows 

visitors to pull off of a 2-lane 

highway to view wildlife.

Determine the intended vehicles and 

traffic volumes for the roadway.

Metrics

 Visitor use statistics (vehicle and 

trailhead)

 Visitor satisfaction

 Traffic and parking violations

 Traffic or congestion statistics

 Existing parking and roadway 

capacity

Resources

Design recommendations for 

various road types. 

National Park Service. 1984. Park 

Road Standards.

Design recommendations for 

various road types.

USDA Forest Service. 2002. Scenic 

Byways: A Design Guide for 

Roadside Improvements.

Regional guidelines for roadside 

development.

ODOT. 2006. Roadside Development 

Design Manual - Guidelines for 

Visual Resource Management, 

Landscaping, and Hardscaping 

(DRAFT).

Public involvement may help clarify 

visitor needs.

Peaks, Harold E. and Sandra Hayes. 

1999. “Building Roads in Sync With 

Community Values.” In Public Roads 

(Mar./Apr. 1999).

Level of Service

The term Level of Service 

(LOS) is commonly used among 

transportation planners to refer 

to the number of vehicles served. 

However users of these guidelines 

should also consider the term 

to include other elements, such 

as types of users, seasonality of 

use and modes of transportation 

that a particular roadway serves. 

Multimodal access refers to the 

ability of a transportation facility 

to provide access via a variety 

of modes, such as car, bicycle, 

public transit or walking. In 

keeping with the FWS mission, 

consider where it is possible 

and appropriate to provide 

multimodal access to FWS 

facilities, and whether the scale 

and type of roadway is in line with 

local management objectives.

Planning Context | PC-2

Intent

Your project team should identify what level of service (LOS) will be 

provided by roadways. This will help to adequately size facilities and ensure 

facility compatibility with current and anticipated demand. Designing for 

an appropriate LOS helps avoid over-building facilities, which can be costly. 

Plan to balance roadway improvements with wildlife conservation and 

habitat maintenance goals. Good phasing plans and cost estimates should be 

developed, keeping in mind that these may change over time, in response to 

changing visitor patterns, management priorities, or adjacent land use.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
SvR Design

PC-3 Evaluate Multiple Siting and Alignment Alternatives

Principles

 Determine if a roadway or road 

improvement is necessary

 Consider whether the roadway is 

in the right place

 Consider physical elements (e.g. 

hydrology), ecological effects 

(e.g. habitat fragmentation) 

as well as experiential factors 

(e.g. views, openness, arrival 

experience)

 Consider appropriateness of 

existing alignments versus 

potential alternatives

 Consider benefits or drawbacks 

of decommissioning existing 

facilities

 Determine how and when 

vehicles and people will move 

through the FWS managed lands

 Consider alternative modes of 

travel and potential for facility 

conversion, such as road to trail, 

trail in lieu of road, etc.

 Determine whether funding is 

tied to existing facilities

Explore and assess the 

effects of alternative road 

alignments.

Planning Context | PC-3

Intent

Project teams should explore multiple design alternatives for roadway 

projects. A systematic alternatives evaluation process can be effectively used 

to arrive at a preferred alternative for further development. Alternatives 

development can reveal opportunities for projects to enhance visitor 

experience, protect wildlife, reduce ecological impacts to landscapes, 

minimize habitat fragmentation and provide alternative transportation 

methods. Reviewing a suite of alternatives will ensure that roadway 

decisions are compatible with the Service’s mission and are made using the 

best possible information. The evaluation of alternatives will also support 

your NEPA process.

Evaluate Alternatives

Conceptual site planning at Conboy Lake NWR evaluated three different alternatives for roadways on the site.

A decommissioned roadway is 

restored with native vegetation.

Metrics

 Comparison of road density for 

options considered

 Analysis of potential habitat 

fragmentation (e.g. vegetation 

or habitat mapping, wildlife 

tracking)

Resources

Case Studies.

Conboy Lake NWR, Visitor 

Experience Site Plan. Evaluated 

multiple vehicular and pedestrian 

circulation routes at HQ site. 

Contact Alex Schwartz, Project 

Manager (503/736 4723) for more 

information.

Umatilla NWR, McCormack Unit, 

Quarters Area Site Plan. Evaluated 

multiple roadway realignment 

concepts in conjunction with a new 

bunk house and residence. Contact 

Alex Schwartz, Project Manager.

Roadway design guidelines using 

applied ecology and experience.

Jones, Grant R., et al. 2007. Applying 

Visual Resource Assessment for 

Highway Planning (pp.130-139) and 

Road Alignment (pp.330-341). 

Roadway Design Guidelines

U.S. Fish & Wildlife Service
PC-4 Assess Full Costs and Impacts of Transportation System

Principles

 Environmental impacts should be 

considered

 Evaluate the embodied energy of 

materials used

 Minimize externalization of 

environmental impacts through 

emissions and materials used

 Include comparison of costs of 

facilities for alternative modes of 

transportation in analysis

 Consider projected maintenance 

costs (often 65% of life cycle cost 

of an asset)

Metrics

 Carbon footprint (or ecological 

footprint)

 Vehicle miles traveled

 Long-term maintenance costs

 Life of pavement and other 

materials

 Greenroads rating system

 Life cycle costing (of total costs 

for construction and maintenance 

of a proposed transportation 

alternative)

USFWS

Resources

Overview of various systems of 

performance metrics.

AASHTO. 2008. Guidelines For 

Environmental Performance 

Measures. NCHRP 25-25, Task 23. 

Performance metrics for CSS.

TransTech Mgmt., et al. 2004. 

Performance Measures for Context 

Sensitive Solutions - A Guidebook 

for State DOT’s.

Info & data on sustainable material.

Calkins, Meg. 2009. Materials for 

Sustainable Sites.

Sustainability metrics.

University of Washington and 

CH2MHill. 2009. Greenroads Rating 

System, v1.0. http://www.greenroads.

us/.

Example of triple bottom line 

assessment of infrastructure.

Stratus Consulting. 2009. A Triple 

Bottom Line Assessment of 

Traditional and Green Infrastructure 

... in Philadelphia’s Watersheds.

Road construction at 

Flint Hills NWR. 

Examine the characteristics 

of materials used in a project, 

including embodied energy and 

recyclability.

Planning Context | PC-4

Triple Bottom Line in Transportation Management

The triple bottom line concept 

originates in business and 

accounting practices. It stipulates 

three key areas or ‘resources’ that 

should be addressed in measuring 

sustainability:

 Society (human capital) 

 Environment (natural capital)

 Economy (financial capital)

This concept, also known as 

“people, planet, profit,” offers an 

expanded spectrum of values and 

criteria for measuring a project 

or organization’s success. Using 

this perspective in transportation 

management means that you 

would not only consider the longterm economic costs and benefits 

of a project, but also account for 

potential environmental and social 

costs and benefits over time.

Intent

Examine the full suite of costs associated with a roadway project in addition 

to the traditional design and construction costs. Consider the environmental 

impacts of the construction process and materials used, as well as future 

maintenance needs and costs. Projects that make sense in the near-term 

may not be environmentally beneficial or economically tractable in the longterm. Consider both environmental and monetary costs. Check resources for 

assigning monetary value to environmental costs.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
PC-5 Communicate With Team and Stakeholders

Principles

 Address both internal and 

external communication needs in 

your project management plan

 Define clear roles and 

responsibilities for members of 

the project team

 Designate key agency contact(s) 

for all agencies/organizations 

involved

 Create a cross-functional (multidisciplinary) team

 Develop design visualization 

and communication tools, such 

as graphics, plans, models, 

newsletters, web pages

 Identify the audience and develop 

solutions for communicating with 

people who don’t read plans or 

technical documents

 Coordinate with transportation 

planning partners

 Contact Transportation 

Biologists in Ecological Services 

(ES) State Field Office to ensure 

project delivery is consistent 

with the mission of the Service

 Schedule project team meetings 

at regular intervals

Metrics

 Character and amount of public 

feedback on project

 Level of support and 

understanding of project within 

the organization

 Achievement of project goals

USFWS

Resources

Guidelines for community and 

interdisciplinary planning process.

Lennertz, Bill, and Aarin 

Lutzenhiser. 2006. The Charrette 

Handbook. American Planning 

Association. 

Case studies in collaborative 

management of wetlands and 

wildlife areas.

Porter, Douglas, and David Salvesen, 

eds. 1995. Collaborative Planning for 

Wetlands and Wildlife: Issues and 

Examples.

Public involvement for CSS.

Myerson, Deborah L., AICP, 1999. 

Getting It Right in the Right-of-Way: 

Citizen Participation in ContextSensitive Highway Design. Scenic 

America. Available at: http://www.

scenic.org/.

Public involvement for 

transportation projects.

Florida Department of 

Transportation. 2003. Public 

Involvement Handbook. Available at: 

http://www.dot.state.fl.us/EMO/pubs/

public_involvement/pubinvolve.htm. 

Project staff and stakeholders 

meet in the field at Pelican 

Island NWR (right).

Develop a communications 

strategy and network.

Planning Context | PC-5

Intent

Craft and document your approach for communications among your 

project team and with stakeholders. Ensure that roles and responsibilities 

are clearly defined in a project management plan. Carefully coordinate 

communications to help ensure consideration of a broad range of solutions in 

support of the best possible design outcome. Interdisciplinary project teams 

are the modern standard to ensure that work products are comprehensive 

and meet multiple objectives. Ensure that various elements of design are 

not overlooked and that there is organizational and public buy-in. Provide 

appropriate opportunities for involvement and review among your project 

team and stakeholders. 

Members of Your Team

There are many professionals 

and stakeholder groups that 

you may want to include as part 

of your project team. Some 

possibilities include:

 Professional Engineers (PE)

 Landscape Architects (RLA)

 Transportation and Natural 

Resource Planners

 Field Biologists

 Project Leaders and Refuge 

Managers

 Refuge Roads Coordinators

 ES Transportation Biologists

 Regional Historic Preservation 

Officers

 Representatives of other 

jurisdictions and agencies 

with local involvement

Roadway Design Guidelines

U.S. Fish & Wildlife Service
PC-6 Consider Cultural and Historic Resources

Principles

 Identify and limit the Area of 

Potential Effect and determine 

the potential impact to any 

archaeological, historic, or 

sacred resources within that 

zone. Minimize adverse effects 

to identified resources, and 

ensure any such effects are 

addressed through the NHPA 

section 106 compliance process, 

as appropriate

 Consult with Regional Historic 

Preservation Officers (RHPOs), 

who serve as the Service subject 

matter expert for cultural 

resources and compliance with 

section 106 of the NHPA

 Consult with pertinent State and 

Tribal partners with respect to 

section 106 of the NHPA

Metrics

 Review any pertinent information 

on archaeological surveys 

available for the project area

 Review the appropriate 

Comprehensive Conservation 

Plan (CCP) for any pertinent 

cultural resources information

Resources

Service Cultural Resources Policy 

(614 FW 1-6).

Available at: https://www.fws.gov/

policy/614fw1.html.

USFWS

Monitoring of Vibrations for the 

Protection of Architectural Heritage

Andrea Enrico Del Grosso, 

Paolo Basso. 2014. 7th European 

Workshop on Structural Health 

Monitoring. Available at: https://hal.

archives-ouvertes.fr/hal-01020409/

document.

A Handbook for Integrating NEPA 

and Section 106.

Advisory Council on Historic 

Preservation and Council on 

Environmental Quality. 2013. NEPA 

and NHPA. Available at: http://

www.achp.gov/docs/NEPA_NHPA_

Section_106_Handbook_Mar2013.

pdf.

Current Practices To Address 

Construction Vibration And 

Potential Effects To Historic 

Buildings Adjacent To 

Transportation Projects.

Wilson, Ihrig & Associates, Inc., 

ICF International, and Simpson, 

Gumpertz & Heger, Inc. 2012.

Non-Destructive Testing of Historic 

Structures to Establish Vibration 

Criteria.

Mohamad Sharif PE. Charles 

Jaworski Vibra-Tech Engineers, Inc. 

Considering Cultural Resources.

U.S. Fish and Widllife Service. 

Available at: https://www.

fws.gov/historicpreservation/

employeeTraining/pdfs/

culturalResourcesOverview.pdf.

A horse barn at Sheldon NWR is 

one example of a historic structure 

on a Refuge that would require 

mitigation should it fall within 

the area of potential affect for a 

transportation project (top);

Restoration of the Historic DuVall 

Bridge on Patuxent Research 

Refuge met both transportation and 

historic preservation requirements 

(bottom). 

Identify and mitigate potential 

impact to cultural and historic 

resources.

Planning Context | PC-6

Intent

Roadways projects should carefully consider their potential to impact 

important archaeological sites, historic buildings and structures, and 

sacred areas. Project teams working closely with Regional and State 

Historic Preservation Officers have the opportunity to insure that 

cultural resources are preserved for future generations. Consideration of 

cultural and historic resources during project scoping can help avoid the 

potentially deleterious effects that roads and other transportation facilities/

assets can have a on them. For instance, an incomplete identification of 

buried archaeological sites could result in damage from either new road 

construction or maintenance to an existing roadway. Similarly, construction 

and maintenance activities could adversely affect historic buildings and/

or structures through vibration and/or excessive dust/debris production, 

especially if the activity is in close proximity to the building/structure.

Transportation projects should make every attempt to avoid such situations 

through consideration of these resources during the environmental review of 

the project.

USFWS

Roadway Design Guidelines

U.S. Fish & Wildlife Service

David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.

Design and

Engineering

Roadway Design Guidelines

U.S. Fish & Wildlife Service
David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.
From Concept to Construction

This section recognizes that 

embedded in the technical aspects of 

a roadway project is the ability to 

directly support the mission of the 

Service. This section will guide you 

though a suite of considerations 

regarding the nuts and bolts of a 

roadway project, such as earthwork, 

alignment, safety, materials 

selections, vegetation preservation 

and management, construction 

practices and maintenance 

considerations.

Designing a complete roadway 

project includes using methods and 

materials that minimize the 

environmental impacts of the 

roadway and associated construction 

work. It also involves developing a 

design that leads the roadway to 

function more often as a restorative 

system, helping to heal previously 

impacted or damaged natural 

environments. Working with an 

interdisciplinary team can greatly 

facilitate a holistic design and 

engineering process. Early 

coordination through the FWCA, 

and the ESA can provide valuable 

insight and expedite permit 

processes. A roadway design process 

can be approached methodically, 

beginning with a broad vision and 

narrowing down to the technical 

details and ultimately construction 

activities to make it happen. In the end, 

the project should be implemented in 

a manner consistent with FWS 

goals, applicable laws, and ideally, 

such that there is a benefit to the 

conservation of listed species and 

other FWS trust resources.

Design and Engineering

Overview

Design and Engineering | Overview

Process - Design to Construction

Planning

Site 

Analysis

Schematic 

Design

Construction 

Documents

Maintenance

Design 

Development

& Permitting

Construction

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Explore ways to integrate 

restoration opportunities into 

project

 Consider how road surface 

conditions will affect nearby 

vegetation (e.g. dust, heat, other 

pollutants generated)

 Consider what types of 

vegetation and habitat along 

roadways will be compatible with 

management goals

 Use site prep and construction 

methods that protect and 

conserve existing native 

vegetation and natural resources

 Protect or stockpile and re-use 

healthy existing/native soils on 

site

 Protect heritage and other 

significant trees during and 

after construction (e.g. provide 

fencing, do not dig in or store 

material on top of root zones)

 Consider irrigation needs for 

establishing roadway vegetation

 Consider how invasive species 

will be managed during native 

vegetation establishment periods

DE-1 Preserve and Restore Native Vegetation and Other 

Natural Resources

Alex Schwartz/USFWS Brian Bainnson

Metrics

 Amount of post-construction 

restoration planned

 Vegetation surveys

 Reduced invasive species control 

needs

Resources

Regional guidelines for roadside 

development.

ODOT. 2006. Roadside Development 

Design Manual - Guidelines for 

Visual Resource Management, 

Landscaping, and Hardscaping 

(DRAFT).

Comprehensive guidebook on 

roadside revegetation.

FHWA. 2007. Roadside 

Revegetation: An Integrated 

Approach to Establishing Native 

Plants.

New technology to minimize piledriving construction impacts to 

aquatic organisms.

Reyff, James. 2009. Reducing 

Underwater Sounds with Air Bubble 

Curtains.

Road alignment at 

Nestucca Bay NWR preserves 

upland vegetation and forest.

Restored vegetation along 

road corridor can help support 

management goals.

Design and Engineering | DE-1

Intent

Roadway projects present opportunities to protect and restore native 

vegetation. Roadways commonly represent a barrier to wildlife and 

fragment habitat. However, roadway projects can represent an opportunity 

to heal historic wounds to a landscape and to ensure no further damage is 

done. Select roadway sites and alignments that avoid impacts to significant 

stands of existing vegetation. Look for restoration opportunities and 

consider what types of vegetation along roadway corridors are compatible 

with management goals.

This roadway project at Steigerwald 

NWR required integration of native 

vegetation restoration (right). 

The planting plan was 

prepared by a registered landscape 

architect. The plants were installed 

by a licensed landscape contractor. 

Work included a temporary 

irrigation system and a 1-year 

maintenance and warranty period.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Ryan Hagerty/USFWS

DE-2 Consider and Plan for Invasive Species Management

Principles

 Inventory invasive species in the 

region that are already present 

and what steps have been taken 

to combat their spread

 Ensure that planting 

plans feature plant species 

and densities, as well as 

establishment techniques to limit 

future invasive establishment

 Consider latest tools and 

techniques available to combat 

spread of invasive species

 Examine relevant state and 

regional lists of invasive species 

threats

 Search for and consider lessons 

from other relevant projects, 

based on similar ecosystems and/

or similar project types

 Develop pre-project baselines 

to measure success of future 

management goals

 Address and plan for invasive 

species management during 

construction and general use 

 Create an invasive species 

management plan following local 

Best Management Practices 

(BMPs), addressing both 

roadside and adjoining habitats

 Minimize disturbance and project 

footprint, including mobilization 

and staging areas

Metrics

 Invasive species survey data

 Staff time dedicated to invasive 

species management (and how 

that changes over time)

Resources

Invasive species along roadways 

from the perspective of road and 

landscape ecology (see Chapter 4, pp. 

75-111).

Forman, Richard, et al. 2003. Road 

Ecology: Science and Solutions.

Establishment and maintenance of 

native plants along roadways.

Harper-Lore, Bonnie and Maggie 

Wilson, editors. 2000. Roadside 

Use of Native Plants. Available 

online at: http://www.fhwa.dot.gov/

environment/rdsduse/index.htm.

FHWA. 2007. Roadside 

Revegetation: An Integrated 

Approach to Establishing Native 

Plants.

Guidance on roadside weed 

management.

Ferguson, Leslie, C. L. Duncan and 

K. Snodgrass. 2003. Backcountry

Road Maintenance and Weed

Management.

Comprehensive list of roadside 

vegetation management resources.

Center for Environmental 

Excellence by AASHTO - Invasive 

Species/Vegetation Management, 

Reseach, Documents & Reports 

web page. See: http://environment.

transportation.org/environmental_

issues/invasive_species/

docs_reports.aspx.

List of many resources on 

controlling invasive species, from 

construction best practices to 

ongoing maintenance.

Wisconsin Department of 

Transportation (WisDOT). 2003. 

Best Practices for Control of 

Invasive Plant Species. 

Controlling invasive species after 

their spread can be labor-intensive; 

spraying melaluka in FL (right).

Invasive species often spread 

outward from roadways.

Selected Steps for Invasive 

Species Management

 Post-construction 

maintenance plan

 Minimize disturbance

 Retain shade to the extent 

possible

 Know the quality of topsoil 

and mulch; avoid importing 

contaminated topsoils

 Know the quality of seed 

sources

 Clean equipment that has had 

contact with weed sources

 Over-sow disturbed areas 

with native seeds

 Avoid nitrogen fertilizers in 

the first year

List adapted from FHWA 

Roadside Revegetation Manual. 

See section 5.8 in manual.

Design and Engineering | DE-2

Intent

Invasive species are a major issue for habitat restoration and wildlife 

management efforts. Roadways often serve as a significant vector for the 

spread of invasive species. Thus, particular attention must be paid to this 

issue in the planning, design and maintenance of road corridors and road 

networks.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Consider roadway alignments 

that will minimize and balance 

cut and fill volumes

 Consider alternative structures 

to reduce fill volumes (e.g. bridge 

vs. culvert, etc.)

 Use roadways to highlight 

Refuge habitats as they follow 

existing terrain

 Look for continued opportunities 

to minimize and improve 

“aesthetic wounds”

Metrics

 Earthwork volumes per mile 

(compare to similar projects)

 Balanced cut and fill volumes

 Visual resources assessment

Resources

See cut and fill guideline on page 83.

USDA Forest Service. 2002. Scenic 

Byways: A Design Guide for 

Roadside Improvements.

Case study on context sensitive 

solutions (CSS) for scenic highway.

Kentucky Transportation Center. 

Undated. Context-Sensitive Design 

Case Study No. 1: Paris Pike - 

Kentucky. College of Engineering, 

University of Kentucky. Lexington, 

KY.

DE-3 Minimize Cut and Fill to Fit With Existing Landscape

Fort Photo/Flickr.com

Guidelines on appropriate lowerimpact road alignment.

Jones, Grant R., et al. 2007. Applying 

Visual Resource Assessment for 

Highway Planning (pp.130-139) and 

Road Alignment (pp.330-341). In 

Landscape Architecture Graphic 

Standards. Hoboken, New Jersey: 

John Wiley & Sons. Available at: 

http://www.jonesandjones.com/news/

publications.html.

Road design guidelines.

FHWA. Undated. Flexibility in 

Highway Design. FHWA Pub. No. 

FHWA-PD-97-062. Found at: http://

www.fhwa.dot.gov/environment/flex/

index.htm.

Common standard on roadway 

design.

AASHTO. 2004. AASHTO 

A Policy on Geometric Design of 

Highways and Streets, 5th Edition 

(aka ‘Green Book). Washington, D.C.

Guidelines for design of very low 

volume roadways.

AASHTO. 2001. Guidelines for 

Geometric Design of Very LowVolume Local Roads (ADT <_ 400), 

1st Edition. Washington, D.C.

Gravel roads maintenance and 

design.

Skorseth and Selim. 2000. Gravel 

Roads Maintenance and Design 

Manual. South Dakota Local 

Transportation Assistance Program 

(USDOT - FHWA).

Roadway terraced along hillside 

at Hart Mountain NWR 

responds to opportunities and 

constraints of the topography

Fitting in with existing topography 

is key to minimizing impacts.

Design and Engineering | DE-3

Intent

Roadways can be designed to fit with natural topography and seamlessly 

integrate with the landscape character. By studying the natural topography, 

designers can attempt to select a road alignment that will take advantage of 

views, while also minimizing the visual impact of the road itself. Conforming 

to the natural topography can minimize interruptions to the natural 

hydrology, and may help to preserve other important natural features, 

vegetation and habitat. 

Elevated structures are often preferable for wildlife and habitat 

connectivity, and should be considered where possible. If that results in a 

cut/fill imbalance then seek innovative ways to use fill material. Examples 

include using excess fill material to construct pullouts, scenic viewpoints, 

and trailheads. Earthwork considerations discussed in this guideline 

are appropriate for both new construction projects and alterations or 

improvements to existing roadways.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
DE-4 Consider Road Geometries for Lower Speeds, Safety 

and Alertness

Principles

 Road alignments may include 

continuous curves, spiral curves, 

curving alignment, etc. in order 

to support safety and alertness

 Consider how curvilinear road 

geometries achieve multiple 

objectives and can specifically 

support habitat and wildlife 

management goals

 Consider the effect of road 

surface on travel speeds

 Determine and design around a 

roadway ‘design speed’ so that 

people will want to drive slower

 Consider safety and engineering 

standards that are applicable to 

the roadway’s context

Metrics

 Road speed and volume study

 Accident reports

 Visual resources assessment

 Balanced cut and fill volumes

 Protection of vegetation and 

habitat

 FHWA Road Safety Audit

Alex Schwartz/USFWS USFWS

Resources

Design guidance based on human 

behavior patterns.

Transportation Research Board 

of The National Academies. 2008. 

Human Factors Guidelines for Road 

Systems.

Guidelines on appropriate lowerimpact road alignment.

Jones, Grant R., et al. 2007. Applying 

Visual Resource Assessment for 

Highway Planning (pp.130-139) and 

Road Alignment (pp.330-341). In 

Landscape Architecture Graphic 

Standards. Hoboken, New Jersey: 

John Wiley & Sons. Available at: 

http://www.jonesandjones.com/news/

publications.html.

Road design guidelines.

FHWA. Undated. Flexibility in 

Highway Design. Access at: http://

www.fhwa.dot.gov/environment/flex/

index.htm.

Standards for roadway design.

AASHTO. 2004. AASHTO 

A Policy on Geometric Design of 

Highways and Streets, 5th Edition 

(aka ‘Green Book).

Handbook with design guidance on 

appropriate construction techniques 

for low traffic volume roads.

Weaver, William and Danny 

Hagans. 1994. Handbook for Forest 

and Ranch Roads: A Guide for 

Planning, Designing, Constructing, 

Reconstructing, Maintaining and 

Closing Wildland Roads. 

Curving roadway at

Nestucca Bay NWR highlights 

scenery and discourages 

high speeds (top); emergency 

personnel respond to an accident 

at Ridgefield NWR (bottom).

Curving roads with varying 

views can promote alertness 

and lower speeds.

Design and Engineering | DE-4

Intent

Low speeds can help protect wildlife, increase the value of roadside habitat 

and provide a greater degree of safety for all roadway users. In addition 

to improved safety for wildlife and roadway users, low travel speeds are 

compatible with the Big Six public uses. Low road speeds help to encourage 

alternative modes of transportation, including walking and bicycling. Lower 

actual speeds are achieved through deliberate roadway geometry and 

design, not simply signage.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Standard practices such as using 

silt fencing help reduce construction 

impacts to adjacent habitat.

Principles

 Consider appropriate season for 

construction

 Minimize construction impacts to 

terrestrial and aquatic organisms

 Implement construction best 

practices, such as dust and 

erosion control

 Look for staging opportunities 

that use existing developed sites 

and minimize impact to adjacent 

habitat areas

 Consider impacts of construction 

needs, such as water, on the 

surrounding environment

 Consider how construction 

elements, such as water wells, 

could be used for staff and visitor 

services in the future

Metrics

 Changes in population counts or 

behavior (e.g. breeding) of local 

organisms

 Visible signs of disturbance 

beyond limits of work

 Compliance with erosion control 

plan elements

DE-5 Consider Construction Impacts and Best Practices

Resources

Handbook with design guidance on 

appropriate construction techniques 

for low traffic volume roads.

Weaver, William and Danny 

Hagans. 1994. Handbook for Forest 

and Ranch Roads: A Guide for 

Planning, Designing, Constructing, 

Reconstructing, Maintaining and 

Closing Wildland Roads. 

Good checklist for items to address 

or consider.

ODOT. 2006. Roadside Development 

Design Manual - Guidelines for 

Visual Resource Management, 

Landscaping, and Hardscaping 

(DRAFT).

Guidelines with resources 

on environmentally-friendly 

construction practices.

University of Washington and 

CH2MHill. 2009. Greenroads Rating 

System, v1.0. http://www.greenroads.

us/.

New technology to minimize piledriving construction impacts to 

aquatic organisms.

Reyff, James. 2009. Reducing 

Underwater Sounds with Air Bubble 

Curtains.

Design and Engineering | DE-5

Intent

Roadway construction can have major impacts to terrestrial and aquatic 

organisms, as well as to environmental quality. Appropriate project planning, 

project management and construction management should be applied 

to ensure that impacts from construction activities are minimized and 

acceptable. The overall project footprint should be minimized as much as 

possible, especially with regard to construction activities such as staging 

materials and equipment.

FHWA

Construction on an entry road, 

parking lot, and trailhead 

project at Steigerwald NWR, in 

partnership with FHWA’s Federal 

Lands Highways program. 

Project required extensive 

multidisciplinary planning, design, 

and construction expertise to ensure 

implementation of best construction 

practices and minimization of 

habitat and scenic area disturbance.

BMPs: Best Management Practices

Best management practices are 

methods that have been determined 

to be the most effective and 

practical means of preventing or 

reducing a project’s short- and longterm environmental impacts. BMPs 

focus on prescriptive measures, 

typically in the construction and 

maintenance phases of a project. 

Design Guidelines are more general 

and require interpretation and 

adaptation.

BMPs available for roadway 

construction projects include:

 Erosion control

 Equipment and operation

 Noise and emissions

 Spill and Pollution Prevention

 Safety

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Identify range of materials that 

would be suitable or possible to 

use in a given project

 Consider various qualities of 

material options, including 

environmental performance, 

longevity, maintenance needs and 

aesthetic fit

 Study past performance and 

success of materials in other sites 

(case studies)

 Consider using materials that are 

certified for sustainability

 Consider paying more for a more 

durable material that may save 

money (through performance 

and maintenance) in the long run

 Source materials locally where 

possible

Metrics

 Embodied energy calculations

 Runoff discharge rates

DE-6 Consider Range and Sources of Materials for 

Sustainable Construction

Resources

See materials listed in Greenroads 

Guidelines.

University of Washington and 

CH2MHill. 2009. Greenroads Rating 

System, v1.0. http://www.greenroads.

us/.

Check on embodied energy of 

proposed materials at University 

of Bath’s Inventory of Carbon & 

Energy (ICE) Wiki.

See: http://wiki.bath.ac.uk/display/

ICE/Home+Page.

The Sustainable Sites Initiative 

(SSI) provides resources and 

guidelines for materials and site 

development.

See: http://www.sustainablesites.

org/.

For sites that include buildings, 

calculate the project’s carbon 

footprint at BuildCarbonNeutral.

See: http://buildcarbonneutral.org.

Information and data on 

sustainable materials.

Calkins, Meg. 2009. Materials for 

Sustainable Sites.

Materials may vary for travel 

lanes, parking stalls and 

pedestrian pathways.

Design and Engineering | DE-6

Intent

There are numerous options available for materials that have sustainable 

characteristics. Consider selecting materials with lower embodied energy 

and carbon footprints, recycled content, high durability, and which have a 

high level of environmental performance. Using sustainable materials can 

achieve compliance with the Service’s environmental and performance goals, 

as well as save money in the long term. Even existing roadway materials can 

be effectively recycled into a new project, including asphalt, aggregates and 

fill material.

Steve Clay/USFWS Brain Bainnson

Embodied Energy and Carbon Footprints

Embodied energy is generally 

defined as the energy (commercial 

and industrial) that was used to 

make a product. It generally 

includes the energy used to 

deliver the product to its point of 

use or consumption, and may also 

include any energy needed for the 

deconstruction and disposal of the 

product. It is commonly measured 

in megajoules of energy per 

kilogram of product (MJ/kg). 

A carbon footprint is a similar 

metric, which measures the 

total amount of greenhouse gas 

emissions caused by a product. It 

is often expressed in terms of tons 

of CO2

 produced per kilogram of 

product (tCO2/kg).

A parking lot at Tualatin River

NWR used warm mix asphalt for

main travel ways, pervious 

pavers in parking stalls and 

features a bioswale with amended 

soils and native plants to cleanse 

stormwater in order to protect

 habitat (top); local and sustainable

 materials were used to construct an 

Auto Tour pullout / wildlife viewing

area at Modoc NWR (bottom).

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Examine current maintenance 

budgets, responsibilities and 

staff availability in concert with 

partners

 Estimate increase or reduction 

of maintenance needs for new 

facilities

 Consider current skills of 

maintenance staff and what types 

of training may be needed

 Consider whether contractors 

would be required to complete 

maintenance activities

 Be aware of concerns about 

adopting new practices, and 

be prepared to understand 

and address the concerns of 

operations and maintenance staff

 Provide achievable and 

responsive BMPs

 Discuss early in project who 

is responsible for repairs and 

maintenance to wildlife-specific 

facilities such as fencing

 Consider maintenance 

partnerships with State and 

County Transportation Dept’s 

to leverage their transportation 

resources and expertise

 Consider the impacts of 

chemicals or other products that 

are used in roadway maintenance

Metrics

 Historic vs. current maintenance 

costs

 Road closure data

 BMPs correctly applied in field

DE-7 Consider Maintenance

Resources

Handbook with design guidance 

on construction and maintenance 

techniques for low traffic volume 

roads.

Weaver, William and Danny 

Hagans. 1994. Handbook for Forest 

and Ranch Roads: A Guide for 

Planning, Designing, Constructing, 

Reconstructing, Maintaining and 

Closing Wildland Roads. 

Good checklist for items to address 

or consider.

ODOT. 2006. Roadside Development 

Design Manual - Guidelines for 

Visual Resource Management, 

Landscaping, and Hardscaping 

(DRAFT).

Gravel roads maintenance & design.

Skorseth and Selim. 2000. Gravel 

Roads Maintenance and Design 

Manual. South Dakota Local 

Transportation Assistance Program 

(USDOT - FHWA).

BMPs for rural road maintenance.

Smith, Stacy (Idaho Technology 

Transfer Center, Univ. of Idaho). 

2005. BMP Handbook: Best 

Management Practices for Idaho 

Rural Road Maintenance. 

Roadside vegetation management.

WSDOT. 1997. Integrated Vegetation 

Management for Roadsides.

Maintenance guidelines for 

sensitive areas.

Crane, Bill. 2006. Road Maintenance 

with Threatened, Endangered, or 

Sensitive Plants: Finding Solutions. 

Maintenance guidelines.

Ruiz, Leo. 2005. Guidelines for Road 

Maintenance Levels.

Consider trade-offs 

between longevity and 

maintenance needs.

Design and Engineering | DE-7

Intent

When planning a new roadway or retrofits to existing facilities, it is 

important to anticipate both short- and long-term maintenance needs. 

During the design phase, consider whether anticipated maintenance of 

potential designs is realistic, given existing or likely future budgets, staff 

training and skills, and other related factors. To be successful in their 

purpose, new types of materials (e.g. pervious paving) or facilities (e.g. 

wildlife underpasses or signals) may have new maintenance needs requiring 

staff training. Consider also that regular maintenance practices can extend 

the life of a facility. Weigh the pros and cons of potentially higher first costs 

with the benefit of lower life cycle maintenance costs for durable projects.

USFWS

Fire being used for 

maintenance of roadside 

vegetation

Roadway Design Guidelines

U.S. Fish & Wildlife Service
David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.

Organism 

Passage

Roadway Design Guidelines

U.S. Fish & Wildlife Service
David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.
Terrestrial and Aquatic Passage

The conservation of fish, wildlife, 

plants and their habitats is the 

primary FWS mission. Roadways 

have major impacts on terrestrial 

and aquatic organisms. Roadways 

create barriers to wildlife movement 

and fragment habitat. Ensuring that 

organisms are able to safely move 

across (either over or under) roadways 

to meet basic life requisites is 

imperative to meeting the Service’s 

mission.

This section is intended to help 

direct you to guidance and resources 

for improving terrestrial and aquatic 

organism passage. The guidelines in 

this section reflect the growing body 

of science that documents the need 

for wildlife-sensitive planning, design, 

engineering, and construction of 

roadways. Recognizing the highly 

site- and species-specific nature of 

aquatic and terrestrial passage issues, 

you are particularly encouraged to 

seek out resources on regionallyappropriate techniques to facilitate 

passage of terrestrial and aquatic 

organisms. In areas where ESA 

listed species or critical habitat may 

benefit from a passage improvement, 

additional conservation measures 

may be warranted during both the 

design and construction phases.

Addressing organism passage issues 

on FWS managed lands is an 

emerging priority for the Service 

which these guidelines are intended 

to support. At present, addressing 

organism passage issues on FWS 

lands is most realistic in conjunction 

with high priority infrastructure 

projects such as bridge replacements. 

A future possibility is that projects 

intended to specifically address 

organism passage will be eligible for 

Refuge Roads funding.

Organism Passage

Overview

Organism Passage | Overview

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Develop organizational 

partnerships

 Solicit expert review and input; 

wildlife crossing structures 

require expert design and review

 Monitor to locate roadkill 

hotspots but consider how roads 

change animal movements 

(avoidance)

 Identify target species based on 

management objectives

 Consider how crossing needs 

align with other transportation 

priorities and budgets

 Consider species’ home range 

size and seasonal movements 

to determine extent of passage 

needed

 Consider how current or future 

roadway design speed and traffic 

volumes may impact wildlife

Metrics

 Safety (animal/vehicle collision 

reductions)

 Species population health

 Dispersal capability

 Daily/seasonal movement 

necessary to meet life requisites

Resources

Latest information on road 

ecology as it relates to mitigating 

interactions between roads and 

wildlife.

Beckmann, J. P., A. P. Clevenger, M. 

P. Huijser, and J. A. Hilty. 2010. Safe 

Passages.

OP-1 Develop Your Corridor Plan for Crossing

Robert Henke et al.

Coordinating aquatic and 

terrestrial passage opportunities.

Jacobson et al. 2007. Combining 

Aquatic and Terrestrial Passage 

Design into a Continuous Discipline. 

Effectiveness of various wildlife 

crossing facilities.

Transportation Research Board 

of The National Academies. 2008. 

Evaluation and the Use and 

Effectiveness of Wildlife Crossings 

(NCHRP Report 615). 

Best practices for reduction of WVC.

FHWA. 2008. Wildlife-Vehicle 

Collision Reduction Study, Best 

Practices Manual. Access at http://

www.fhwa.dot.gov/environment/

hconnect/wvc/index.htm.

Guidance on reduction of WVC.

FHWA. 2008. Wildlife-Vehicle 

Collision Reduction Study, Report 

to Congress. Access at http://www.

fhwa.dot.gov/publications/research/

safety/08034/index.cfm.

Effects of roadways on wildlife (see 

entire Conservation Biology issue).

Trombulak, Stephen and C. Frissell. 

2000. Review of Ecological Effects 

of Roads on Terrestrial and Aquatic 

Communities.

Background research on roadway 

impacts to wildlife.

Mader, Sharon. 2006. Comparing 

the Ecological Effects of Linear 

Developments on Terrestrial 

Mammals.

See list of crossing issues by state, 

by FWS national Refuge Roads 

Coordinator (unpublished).

Wildlife Crossing and Aquatic 

Organism Passage Issues by State.

Examine the roadway corridor for 

locations where organisms would 

prefer to cross in the absence of 

a roadway. Study topography, 

vegetation patterns and hydrology 

along the corridor.

Organism Passage | OP-1

Intent

It is important to develop a comprehensive plan to address aquatic and 

terrestrial connectivity along a roadway. Corridor level plans are necessary 

to document habitat fragmentation, lack of stream continuity, population 

level roadway avoidance effects and wildlife-vehicle collisions (WVC). 

In addition to identifying the ecological impacts a roadway is having on 

organisms, plans should identify funding opportunities and partnerships 

in support of recommended mitigation measures. Successful plans identify 

target species and crossing “hot spots”. Prioritize your specific individual 

crossing projects and include conceptual design documentation for crossing 

structures and supporting mitigation measures.

A corridor management and 

wildlife crossing plan is a critical 

tool to plan and fund projects; map 

showing monitoring locations for 

crossing plan study (below).

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Consider and design for longrange traffic volume projections 

for road

 Consider seasonality of wildlife 

movement and stream flows

 Develop list of target species for 

aquatic organism passage and 

focus planning and design efforts 

on supporting overall ecosystem 

health

 Consider range of stream 

crossing solutions and techniques

 Culverts or bridges that 

mimic the slope, structure and 

dimensions of the natural stream 

bed can allow aquatic species to 

freely move under roadways

 Plan for appropriate postconstruction riparian and 

streambed restoration work

 Consider maintenance needs for 

various stream crossing designs

 Plan for appropriate in-water 

work windows

 Consider how to best complete 

road maintenance activities at or 

near stream crossings in order to 

avoid impacts to water quality

Metrics

 Surveys to show healthy passage 

of aquatic organisms

 Water quality measurements 

(upstream vs. downstream)

 Re-colonization of upstream 

habitat by aquatic organisms (in 

cases of improving/upgrading 

existing crossings)

OP-2 Provide and Enhance Aquatic Organism Crossings

John Sauer/USFWS Florian Schulz

Resources

Analysis & costs of culvert design 

and aquatic organism passage.

MN Dept. of Transportation. 2009. 

Cost Analysis of Alternative Culvert 

Installation Practices in Minnesota.

Design guidelines and best practices 

for aquatic organism passage.

USDA Forest Service. 2008. 

Stream Simulation: An Ecological 

Approach to Providing Passage for 

Aquatic Organisms at Road-Stream 

Crossings.

Bridge construction guidance.

AZ Game and Fish Dept., Habitat 

Branch. 2008. Guidelines for Bridge 

Construction or Maintenance to 

Accommodate Fish & Wildlife 

Movement and Passage.

Riparian restoration guidance.

USDA Forest Service. 2002. 

Management Techniques for 

Riparian Restorations (Roads Field 

Guide, Volume II).

Design guidelines for stream 

crossings and proper road drainage.

William Weaver and Danny 

Hagans. 1994. Handbook for Forest 

and Ranch Roads: A Guide for 

Planning, Designing, Constructing, 

Reconstructing, Maintaining and 

Closing Wildland Roads.

See list of crossing issues by state, 

by FWS national Refuge Roads 

Coordinator (unpublished).

Wildlife Crossing and Aquatic 

Organism Passage Issues by State.

See aquatic organism passage in:

Proceedings of International 

Conference on Ecology and 

Transportation (ICOET). Access 

online at: http://www.icoet.net/.

Locate aquatic crossings to 

minimize interruption to normal 

stream flow and channel migration.

Organism Passage | OP-2

Intent

Roads, streams and rivers are similar systems in that they all transport 

material and organisms across the landscape in a linear fashion. Stream and 

river functions, such as the movement of woody debris, sediment transport 

and fish and wildlife passage have historically been impeded by engineering 

solutions intended to minimize disruptions to roadway infrastructure. 

Recognizing the importance of aquatic resources on FWS managed lands, 

an ecosystem-based approach to aquatic organism passage focuses on 

maintaining the continuity of a stream or river’s characteristics where that 

system intersects a roadway.

Site visit 

to a new aquatic crossing structure 

during a Refuge Roads coordination 

meeting at Kenai NWR (top); 

viability for many aquatic 

species, such as salmon, depend on 

their ability to move through river 

and stream ecosystems (bottom).

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Identify design species and their 

crossing structure needs; design 

crossings that work for as many 

species as possible

 Consider and design for longrange traffic volume projections 

for roadway

 Consider visual quality and 

aesthetic impact of structures

 Improve nearby habitat for 

wildlife, especially areas leading 

to or connecting with crossings

 Maximize opportunity for 

restoration project links to 

crossing/connectivity sites

 Consider “right crossing, right 

place” when locating crossings

 Review the corridor management 

or crossing plan

 Bridge replacements are the 

best opportunity in a 50-70 year 

time frame to create movement 

opportunities and should be 

taken advantage of even if no 

other projects are in the area

Metrics

 Evidence of unmet need to cross

 Improved wildlife counts in 

adjacent areas after crossing 

implementation

 Improved wildlife dispersal rates

 Reduction in WVC

OP-3 Provide and Enhance Terrestrial Wildlife Crossings

Florian Schulz Brian Bainnson

Resources

Bridge construction guidance.

AZ Game and Fish Dept., Habitat 

Branch. 2008. Guidelines for Bridge 

Construction or Maintenance to 

Accommodate Fish & Wildlife 

Movement and Passage.

Wildlife crossing structures and 

fencing effectiveness evaluation.

Hardy et al, Western Transportation 

Institute. 2007. Evaluation of 

Wildlife Crossing Structures and 

Fencing US Hwy 93 Evaro to Polson.

Effectiveness of various wildlife 

crossing types.

Transportation Research Board 

of The National Academies. 2008. 

Evaluation and the Use and 

Effectiveness of Wildlife Crossings. 

Best practices for WVC reduction.

FHWA. 2008. Wildlife-Vehicle 

Collision Reduction Study, Best 

Practices Manual.

Guidance on reduction of WVC.

FHWA. 2008. Wildlife-Vehicle 

Collision Reduction Study, Report to 

Congress. 

See FWS Refuge Roads Coordinator 

list of crossing issues by state 

(unpublished).

Wildlife Crossing and Aquatic 

Organism Passage Issues by State.

See crossing structure design in:

Proceedings of International 

Conference on Ecology and 

Transportation (ICOET). Access 

online at: http://www.icoet.net/.

Bridge replacements are excellent 

opportunities to enhance 

terrestrial crossing opportunities 

(top); a wildlife overcrossing 

in Banff NP, Canada has 

successfully improved both safety 

and wildlife movement (bottom).

Terrestrial wildlife crossings 

provide safer crossings 

for wildlife and connect 

fragmented habitat patches.

Organism Passage | OP-3

Intent

Roadways are a significant barrier and danger for terrestrial organisms. 

When terrestrial organisms attempt to cross roadways in order to meet life 

requisites, fatalities and injuries can result for both wildlife and humans. If 

wildlife-vehicle collisions (WVC) regularly take place along a roadway, this 

is a good indicator of the need for mitigation. Another less visible effect of 

habitat fragmentation caused by roadways is avoidance behaviors that can 

have significant effects on populations.

The most effective mitigation measure to reduce WVC and to enhance 

terrestrial organism passage across roadways is to design and construct 

suitable crossing structures, in combination with barrier and diversion 

fencing, where appropriate. It is important to remember that every species 

is impacted by roadways in different ways. Terrestrial crossing projects can 

seek to meet multiple ecosystem connectivity objectives simultaneously.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Study WVC or other interactions 

along the corridor

 Recognize that fencing is a 

last resort option, and that the 

outcomes can be deadly for 

wildlife inadvertently trapped on 

a roadway

 Design fencing treatments based 

on species and environmental 

conditions

 Include escape structures in 

the design; jumpouts are more 

effective than the commonly used 

one-way gates

 To avoid “end run” WVC, end 

fencing beyond prime habitat 

areas or at locations with good 

visibility

 Boulder piles can act as a 

maintenance-free fence for 

ungulates

 Consider how best to 

accommodate multiple species

 Consider the aesthetic impacts of 

wildlife fencing

 Consider how to handle fencing 

at access roads

Metrics

 WVC counts

 Reduction in wildlife mortality 

due to WVC

OP-4 Evaluate Need for Wildlife Fencing and Other Guiding 

Features

Resources

BMPs for reduction of WVC.

FHWA. 2008. Best Practices 

Manual, Wildlife Vehicle Collision 

Reduction Study (Report to 

Congress). Found at http://www.

fhwa.dot.gov/environment/hconnect/

wvc/index.htm.

Wildlife crossing structures and 

fencing effectiveness evaluation.

Hardy et al, Western Transportation 

Institute. 2007. Evaluation of 

Wildlife Crossing Structures and 

Fencing on US Hwy 93 Evaro to 

Polson.

Effectiveness of various wildlife 

crossing types.

Transportation Research Board 

of The National Academies. 2008. 

Evaluation and the Use and 

Effectiveness of Wildlife Crossings 

(NCHRP Report 615). 

Website with additional guidelines 

and case studies of construction and 

maintenance practices to benefit 

wildlife along roadways.

FHWA - Keeping It Simple: Easy 

Ways to Help Wildlife Along Roads. 

See: http://www.fhwa.dot.gov/

environment/wildlifeprotection/

index.cfm.

Fencing can help guide wildlife to 

safer crossing areas.

Organism Passage | OP-4

Intent

Wildlife-vehicle collisions (WVC) can be reduced through the use of barrier 

and diversion fencing or other features that help guide wildlife to crossing 

structures, including overpasses or underpasses. Effective wildlife barrier 

and diversion fencing forces animals off the road and into a crossing 

structure. In order for a crossing structure to be effective, it needs to 

be designed in conjunction with fencing. Project teams should consider 

aesthetics, where to end fencing and how fencing relates to topographical 

features in the landscape. Fencing design is highly species-specific and 

should be designed in consultation with an expert.

Barrier and diversion fencing requires maintenance. Successful projects 

account for maintenance concerns and budgets during the design phase. 

Fencing discussions might include a consideration of how to handle fence 

ends. Where to end a fence has major safety implications. It is a difficult 

decision, and is best done in consultation with an expert.

USFWS lisahends/Flickr.com

Continuous page wire fencing is 

commonly used to keep wildlife off 

roads and to direct them to crossing 

structures (top); jumpouts are 

essential features to allow trapped 

animals to leave the road whenever 

continuous fencing is used (bottom).

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Select the appropriate type of 

signage for the species, roadway 

LOS and site conditions

 Provide public information on the 

crossing design and intent

 Consider active warning systems 

for “end runs” of fencing, 

crossing hot spots and as 

temporary mitigation measures 

in the absence of crossing 

structures

 Consider the related benefits 

of communicating crossing and 

habitat areas, such as public 

education and communicating 

stewardship

Metrics

 Wildlife-vehicle collision (WVC)

statistics (note that these are a 

better measure of safety than 

ecological conditions; even then, 

they are suspect unless expertly 

interpreted)

OP-5 Consider Warning and Safety Systems for Drivers

Resources

BMPs for reduction of WVC.

FHWA. 2008. Best Practices 

Manual, Wildlife Vehicle Collision 

Reduction Study (Report to 

Congress). Found at http://www.

fhwa.dot.gov/environment/hconnect/

wvc/index.htm.

Wildlife crossing structures and 

fencing effectiveness evaluation.

Hardy et al, Western Transportation 

Institute. 2007. Evaluation of 

Wildlife Crossing Structures and 

Fencing on US Hwy 93 Evaro to 

Polson.

Research on effectiveness of methods 

for collision reduction.

Huijser et al, and Salsman and 

Wilson. 2006. Animal Vehicle 

Crash Mitigation Using Advanced 

Technology, Phase I: Review, Design 

And Implementation, SPR-3(076). 

Warning signs can help 

remind drivers to look out 

for wildlife on the road.

Organism Passage | OP-5

Intent

An important component of facilitating terrestrial organism passage is 

promoting adequate awareness and caution on the part of drivers. Various 

systems exist to warn drivers of the presence of wildlife on a roadway. These 

systems include static signs to alert drivers to zones where wildlife typically 

cross roadways as well as flashing lights or other signals that respond to the 

presence of wildlife near the roadway. The most effective signage systems 

are active warning systems. Static warning signs, if strategically placed and 

well designed, can improve public awareness and may be a good fit for low 

volume roads.

Florian Schulz

In areas where wildlife is 

known to cross roadways, active 

warning systems can be effective 

to alert drivers to the presence of 

wildlife on or near a roadway.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.

Stormwater

Management

Roadway Design Guidelines

U.S. Fish & Wildlife Service
David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.
Stormwater Management

Overview

Stormwater Management | Overview

Typical NDS Sizing

An NDS feature such as a bioretention area typically 

requires an area of only 10% of the impervious area 

it is designed to treat.

Cleaning Water, Improving Habitat

It is important to consider what 

happens to stormwater runoff along 

the entire roadway. Runoff from 

roadways on FWS managed lands 

may deliver chemical pollutants and 

sediment to surface and ground 

water. Roadways have a profound 

effect on the hydrology of a given 

site and watershed. Impervious 

surfaces increase runoff rates, 

volumes, temperature and duration. 

Roadway surfaces can concentrate 

flows, creating unnatural flow 

regimes that impact adjacent lands 

and lead to cumulative impacts 

downstream at the watershed scale, 

such as erosion and flooding.

This section discusses sustainable 

stormwater management techniques 

and points you to educational 

resources and guidelines on 

their design, construction and 

maintenance. Such techniques 

can help to clean stormwater 

runoff from roadways, filtering out 

particulates and other pollutants. 

They can also slow flows and detain 

water during peak storm events, 

restoring more natural flows to 

adjacent water bodies. A common 

term used to describe this approach 

to stormwater management is low 

impact development (LID). LID 

emphasizes conservation and the 

use of existing natural site features, 

integrated with distributed, smallscale stormwater controls to more 

closely mimic natural hydrologic 

patterns.

LID techniques include various 

features known collectively as 

natural drainage systems (NDS). 

These rely mainly on plantings, 

amended soils and other natural 

materials to treat, detain and 

retain stormwater runoff; these are 

often referred to as bioretention. 

Bioretention features include 

bioswales and rain gardens. Areas 

dedicated to NDS serve to buffer 

high value habitat from ecological 

disturbances caused by roadway 

infrastructure. Natural drainage 

LID Philosophy

LID asks us to nurture stormwater rather than 

dispose of it. NDS features van help to achieve this.

Typical facilities disperse 

runoff without 

treatment 

(top), while an 

LID approach 

detains and 

cleans water on 

site (bottom)

features may also provide screening 

or visual buffering—functions that 

are often desirable when separating 

uses on a site or landscape.

NDS should be designed and 

implemented with care, so as 

to be compatible with habitat 

management goals. Concerns 

about their use include drawing 

wildlife closer to roadways through 

habitat creation (potentially causing 

increased negative animal-vehicle 

interactions), and the possibility of 

concentrating roadway pollutants 

into specific areas at levels that 

may be harmful to wildlife. These 

are important concerns to address, 

and care should be taken that each 

facility is designed to meet sitespecific concerns.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Adhere to a low impact 

development (LID) strategy in 

planning and designing repairs 

and improvements

 Consider natural drainage 

system (NDS) treatment 

facilities, including filter strips 

and bioswales

 Stormwater treatment facilities 

and approach need to be sitespecific

 Consider appropriate NDS 

features for the type of 

roadway—parking, auto tour 

route, entry/access road, 

highway, etc.

 Look at hydrology planning in 

the area and be aware of roadway 

impacts on it

Metrics

 Water quality testing

 Temperature monitoring

Resources

Design guidelines for LID features.

US Dept. of Defense. 2004. Unified 

Facilities Criteria (UFC) - Design: 

Low Impact Development. 

SM-1 Buffer Habitat from Polluted Runoff

Brian Bainsson

LID guidelines for Pacific NW.

Hinman, Curtis. 2005. Low Impact 

Development: Technical Guidance 

Manual for Puget Sound. Puget 

Sound Action Team. Access at: http://

www.psparchives.com/publications/

our_work/stormwater/lid/lid_tech_

manual05/LID_manual2005.pdf.

Buffer design guidelines for that 

include stormwater treatment.

Bentrup, G. 2008. Conservation 

buffers: design guidelines for 

buffers, corridors, and greenways. 

Gen. Tech. Rep. SRS-109. Access 

at: http://www.unl.edu/nac/

bufferguidelines/.

Roadway design guidance for lower 

impact to hydrology.

Dashiell and Lancaster. Undated. 

Road Design Guidelines for Low 

Impact to Hydrology. Five Counties 

Salmonid Conservation Program.

White paper on integrated LID and 

ecological analysis.

Mensing and Chapman. Undated. 

Conservation Development 

and Ecological Stormwater 

Management: An Ecological 

Systems Approach.

Parking lot runoff at McNary NWR 

drains to a central bioswale that 

treats polluted runoff and buffers 

habitat from roadway impacts.

NDS features receive, clean and 

detain or retain runoff from 

roadways and other impervious 

surfaces; they can buffer habitat 

areas from negative ecological 

impacts.

Stormwater Management | SM-1

Intent

Runoff from roadways can carry unwanted pollutants into adjacent streams 

and water bodies. It can also adversely affect (increase) the temperature of 

receiving water bodies. Methods for reducing pollution (chemical, particulate 

and temperature) should be considered and used to minimize or eliminate 

water quality issues roadway runoff. Treatment facilities in the right-of-way 

can also serve to intercept and improve the quality of runoff water from 

other nearby sources.

Water Quality 101

 Conventional facilities collect 

and drain polluted runoff using a 

variety of methods, such as sheet 

draining, “grassy swales,” curbs 

and drainage inlets. These can 

quickly convey pollutants directly 

to sensitive habitats before the 

pollutants can be filtered out 

(left).

 Improved facilities are designed 

to intercept and filter polluted 

runoff before discharge to 

sensitive habitats (right).

Issue: Stormwater runoff from roads and parking lots is laden with pollutants Alex Schwartz/USFWS SvR Design

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Minimize quantity of stormwater 

runoff

 Minimize use of impervious 

materials

 Technologies to address water 

quantity issues include wet 

ponds, porous pavements, 

bioswales and rain gardens

 Improvements (stormwater 

facilities) must be sized 

appropriately to handle flow

Metrics

 Measurements of stormwater 

runoff rates and volumes

 Hydrographs for receiving water 

bodies

Resources

Design guidelines for low-use roads, 

focusing largely on hydrology.

Weaver, William and Danny 

Hagans. 1994. Handbook for Forest 

and Ranch Roads: A Guide for 

Planning, Designing, Constructing, 

Reconstructing, Maintaining and 

Closing Wildland Roads. 

SM-2 Protect Habitat from Erosive Flows and Flooding

Jeff Holm/USFWS

Low impact development (LID) 

guidelines for Pacific Northwest.

Hinman, Curtis. 2005. Low Impact 

Development: Technical Guidance 

Manual for Puget Sound. Puget 

Sound Action Team. Olympia, WA. 

Design guidelines for LID features.

US Dept. of Defense. 2004. Unified 

Facilities Criteria (UFC) - Design: 

Low Impact Development.

Info on vegetative filter strips (page 

44) and other practices.

Smith, Stacy (Idaho Technology 

Transfer Center, Univ. of Idaho). 

2005. BMP Handbook: Best 

Management Practices for Idaho 

Rural Road Maintenance. 

Roadway design guidance for lower 

impact to hydrology.

Dashiell and Lancaster. Undated. 

Road Design Guidelines for Low 

Impact to Hydrology. Five Counties 

Salmonid Conservation Program.

BMPs for ESA compliance.

WSDOT. Best Management 

Practices Field Guide for ESA Sec 

4(d) Habitat Protection.

A gravel parking lot with central 

vegetative swale at Ash Meadows 

NWR minimizes impervious 

materials and allows for large storm 

events to be infiltrated on site, away 

from more sensitive habitats.

NDS features can detain 

runoff, slowing its flow to 

adjacent water bodies.

Stormwater Management | SM-2

Intent

The rate of flow of runoff from roadways is major issue of concern. Flow 

rates are typically much higher and shorter in duration than those which 

would come from the same areas in unpaved conditions. Such spikes in flow 

rates create erosion and flooding issues and prevent groundwater recharge. 

These effects can have major detrimental impacts on fish, wildlife and their 

habitats. Natural drainage system (NDS) facilities should be designed to 

not only clean water, but to detain peak flows and, where appropriate retain, 

runoff locally. Target flow control should be based on undeveloped conditions 

for local ecosystems, as well as current soil conditions and downstream 

concerns.

Water Quantity 101

 Runoff from impervious areas 

often concentrates flows, which 

impacts adjacent lands and also 

leads to cumulative downstream 

and watershed-scale impacts

 Where space is limited or linear 

alignment is tight, choose 

materials such as pervious paving 

(left) to reduce runoff rates

 Use NDS features to detain 

runoff before discharge (right)

Issue: Impervious surfaces increase runoff rates, temperature, and volume SvR Design SvR Design

Roadway Design Guidelines

U.S. Fish & Wildlife Service
SM-3 Monitor and Maintain Stormwater Facilities

Stormwater Management | SM-3

Principles

 Employ stormwater facility 

monitoring protocols (per ASCE 

or other standards)

 Maintain facilities in a 

manner that optimizes facility 

performance

 Collect relevant baseline data 

before project construction

 Check for and use appropriate 

control measures on any invasive 

species

 Check for levels of contaminants 

coming from roadway, and track 

their fate in areas adjacent to 

roadway

 Monitor level of compatibility 

with local wildlife and 

surrounding habitats

 Document maintenance needs 

and costs

 Document effectiveness of soil 

mixes and plants used

 Share or publish monitoring 

results to help improve design 

and results in other projects

 Use monitoring results in 

adaptive management

Metrics

 Measurements of stormwater 

runoff rates, volumes, 

temperature and contaminants

 Hydrographs for receiving water 

bodies

 Analysis documenting water 

quality improvements due to 

NDS features

Resources

Technical guidelines for monitoring 

of stormwater in various conditions.

US EPA. 2002. Urban Stormwater 

BMP Performance Monitoring. 

Access at: http://water.epa.gov/

scitech/wastetech/guide/stormwater/

monitor.cfm.

NDS maintenance guidelines that 

include guidance on monitoring.

City of Bellevue, WA. 2009. Natural 

Drainage Practices Maintenance 

Guidelines. Access at: http://www.

bellevuewa.gov/pdf/Utilities/

Natural_Drainage_Practices.pdf.

Study from UC Davis & USFS 

finding that bioswale significantly 

reduced runoff and removed 

pollutants; includes monitoring 

protocols used.

Xiao, Qingfu and E. G. McPherson. 

2009. Testing a Bioswale to Treat 

and Reduce Parking Lot Runoff. 

Access at: http://www.fs.fed.us/

psw/programs/cufr/products/psw_

cufr761_P47ReportLRes_AC.pdf.

Standard operating procedures for 

stormwater monitoring.

Washington Department of Ecology. 

2010. Stormwater monitoring 

resources. Access at: http://www.ecy.

wa.gov/programs/wq/stormwater/

municipal/strmH2Omonitoring.html.

Guidance on stormwater 

monitoring for construction sites.

Washington Department of Ecology. 

2006. How to do Stormwater 

Monitoring: A guide for construction 

sites. Access at: http://www.ecy.

wa.gov/biblio/0610020.html.

Monitoring for larger debris.

ASCE. 2010. Guideline for 

Monitoring Stormwater Gross 

Solids. Order at: http://www.asce.

org/Product.aspx?id=2147485997.

Intent

Monitoring and maintaining stormwater facilities after project construction 

is key to learning from your work and improving the effectiveness of future 

projects. Particular attention should be given to monitoring the effects of 

the project on the landscape’s environmental quality. Budgeting for and 

following standard monitoring and maintenance protocols are a critical 

component for stormwater management on FWS managed lands.

USFWS

Similar to 

managed wetlands, stormwater 

facilities should be periodically 

monitored for performance and 

to inform adaptive management 

and maintenance regimes.

Monitoring projects will help 

advance the development of a 

focused approach to stormwater 

management on FWS managed 

lands that is responsive to the 

Service’s mission.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Intent

Low impact development (LID) facilities for stormwater management serve 

the functional purposes of cleaning and slowing or retaining stormwater 

runoff and protecting our aquatic resources. Additionally they can help to 

raise public awareness and understanding of the relationship of roadways to 

aquatic resources, wildlife and habitat conservation. Stormwater facilities 

can be designed to reveal to and educate visitors about the impacts of 

development on aquatic resources. Facilities can communicate how they 

protect aquatic resources, and can influence behavior and management 

practices beyond FWS managed lands in support of the Service’s mission.

SM-4 Promote Stewardship of Aquatic Resources

Resources

Social benefits of road and highway 

systems.

AASHTO. 2008. Above and Beyond: 

The Environmental and Social 

Contributions of America’s Highway 

Programs.

Promotional information for 

visitors to FWS sites.

USFWS. 2005. Byways to America’s 

Wildest Places: Discover Your 

National Wildlife Refuges.

Scenic byways guidelines with 

details on benefits of good road 

design.

USDA Forest Service. 2002. Scenic 

Byways: A Design Guide for 

Roadside Improvements.

Green Values calculator can help 

to quantify benefits from LID (aka 

green infrastructure) facilities.

Center for Neighborhood 

Technology. 2010. Green Values 

Stormwater Management Calculator. 

Access at: http://greenvalues.cnt.org/

Additional resources on green 

infrastructure (another term 

that includes natural stormwater 

management facilities).

US EPA. 2010. Green 

Infrastructure: Managing Wet 

Weather With Green Infrastructure 

(website). Access at: http://cfpub.

epa.gov/npdes/home.cfm?program_

id=298.

Report examining social, economic, 

and environmental benefits of green 

infrastructure.

Stratus Consulting. 2009. A Triple 

Bottom Line Assessment of 

Traditional and Green Infrastructure 

Options for Controlling CSO Events 

in Philadelphia’s Watersheds.

Stormwater treatment facilities 

integrated into roadways provide 

places where FWS stewardship 

of aquatic resources can be 

demonstrated.

Stormwater Management | SM-4

Principles

 Prioritize aesthetic and 

educational components of highly 

visible stormwater management 

facilities

 Use stormwater facilities to 

communicate stewardship 

commitment of FWS

 Design stormwater facilities 

with native plants in 

arrangements that respond to 

multiple objectives, including 

management, educational/ 

interpretive, aesthetic and 

maintenance goals

 Make stormwater part of the 

site’s interpretive story and 

reveal the process of stormwater 

quantity and quality controls to 

the extent possible

 Consider educational and 

volunteer opportunities 

presented by stormwater 

management facilities

 Consider potential benefits or 

drawbacks of additional wetland 

habitat areas created by natural 

drainage facilities

Metrics

 “Friends” groups involvement & 

awareness

 Production/use of interpretive 

materials or content

 Use of stormwater facilities as 

positive examples or success 

stories (e.g. in public media, 

professional circles, within FWS)

USFWS Justin Martin

Stormwater facilities can be an 

important part of visitor experience, 

providing interpretive opportunities 

(top) and allowing visitors hands-on 

experience planting or maintaining 

native vegetation (bottom).

Roadway Design Guidelines

U.S. Fish & Wildlife Service

David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.

Visitor 

Experience

Roadway Design Guidelines

U.S. Fish & Wildlife Service

Engaging the Public

Conservation of fish, wildlife, plants 

and their habitats is at the core of 

the Service’s mission. Providing 

public access compatible with 

conservation goals is paramount to 

achieving this mandate. Roadways 

are the primary infrastructure 

elements that facilitate public access 

to FWS managed lands. Conversely, 

landscapes without roads or limited 

or restricted public access on 

roads can support protection of 

sensitive habitats when necessary. 

This section is intended to help you 

consider how best to provide access 

to FWS managed lands. Welldesigned roadways on FWS lands 

can help demonstrate to visitors how 

the Service’s mission is carried out 

at the landscape scale.

Scenic roadways offer visitors a 

glimpse into the habitat areas that 

the Service manages, helping to 

inspire an ethic of stewardship and 

conservation among the public. 

Roadways should be designed to 

afford such experiences and to 

convey a sense of place that is unique 

to each site and destination. They 

should take into account both the 

natural and cultural histories of 

the land they traverse, revealing 

but not destroying special places 

and artifacts along the way. This 

section of the guidelines will point 

you to resources to help with design 

solutions focused on the visitor’s 

experience. Design of roadway 

elements such as safety and guiding 

features, interpretive signs and 

visitor facilities should be relevant 

and specific to the region, if not to 

the individual site or refuge.

National Wildlife Refuges, Fish 

Hatcheries and other FWS managed 

lands are national treasures. 

Facilities there should help visitors 

connect with the natural heritage 

that the Service works to conserve.

Visitor Experience

Overview

Visitor Experience | Overview

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Consider designs that respond 

to the character of the landscape 

and management practices. For 

example, an entrance road may 

offer a change in design speed, 

scale and geometry in order to 

help visitors decompress from 

previous highway travel

 Provide appropriate orientation 

and directional signage in a style 

that fits with the local character 

and landscape

 Consider and plan the viewsheds 

and impacts of roadways on the 

visual and auditory landscape 

 Consider and plan coherent and 

consistent design elements with 

the facility (color, texture, form)

 Consider the entry experience 

(does it welcome and orient 

visitors?) and sequence of visitor 

experiences when arriving at 

FWS managed lands or high use 

areas such as visitor centers

 Consider opportunities for 

interpreting cultural and 

historical resources and the 

landscape along the corridor

 Provide safe places, such as 

overlooks and viewpoints, to 

enjoy scenery

Metrics

 Visual resource analysis/

management - USFS or BLM 

VE-1 Preserve and Highlight Scenic and Historic Value

methodologies (see Resources 

below)

Resources

Scenic byways guidelines with 

details on benefits of good road 

design.

USDA Forest Service. 2002. Scenic 

Byways: A Design Guide for 

Roadside Improvements.

Study on context sensitive roadway 

design from New Mexico.

New Mexico Department of 

Transportation. 2006. Architectural 

and Visual Quality Design Guidelines 

for Context Sensitive Design and 

Context Sensitive Solutions. 

Roadside treatment design 

guidelines.

FHWA. 2008. Safe and Aesthetic 

Design of Urban Roadside 

Treatments. 

Regional guidelines for roadside 

development.

ODOT. 2006. Roadside Development 

Design Manual - Guidelines for 

Visual Resource Management, 

Landscaping, and Hardscaping 

(DRAFT).

Design guidance based on human 

behavior patterns.

Transportation Research Board 

of The National Academies. 2008. 

Human Factors Guidelines for Road 

Systems (NCHRP Report 600B).

USFS visual assessment technique.

USDA Forest Service. 1995 (rev. 

2000). Landscape Aesthetics: A 

Handbook for Scenery Management. 

AH-701.

BLM visual assessment technique.

Plan roadways to afford views 

to areas of high scenic value.

Visitor Experience | VE-1

Intent

The scenic value of wildlife refuges plays an important role in the visitor 

experience. Road alignments should be chosen or revised carefully so as to 

preserve the scenic value of the journey. Roadway alignments and locations 

on FWS managed lands should afford views and simultaneously prevent 

roadways from becoming dominant features of the visual landscape.

Brian Bainnson USFWS

Roadways provide or give access 

to scenic vistas (top) and visitor 

facilities such as a viewing blind at 

Finley NWR (bottom).

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Design alternative transportation 

facilities that are compatible with 

wildlife and habitat conservation

 Provide parking for bicycles 

and other alternative types of 

transportation

 Consider adding charging 

stations for electric vehicles

 Coordinate with other agencies 

or organizations that could 

provide public transportation to 

FWS managed lands

 Promote and partner to develop 

bicycle routes to FWS managed 

lands 

 Consider bicycle routes through 

FWS managed lands where 

compatible with wildlife, safety, 

and user experience

 Consider signage or pavement 

markings to alert drivers to other 

types of road users

 Use outreach to encourage use of 

alternative transportation modes 

to and within the FWS managed 

lands

Metrics

 Counts of users arriving by 

public transportation, using 

bicycles, etc.

 Use rates of stationary facilities, 

such as special parking or bike 

racks

Resources

Potential funding source for transit 

and other alternative transportation 

options.

Paul S. Sarbanes Transit in Parks 

Program (5320). Access at: http://

www.fta.dot.gov/funding/grants/

grants_financing_6106.html.

VE-2 Promote and Facilitate Multiple Modes of Transportation USFWS Brian Bainnson

Case studies for alternative 

transportation projects in National 

Parks.

See: http://www.volpe.dot.gov/nps/

projects.html.

Design guidelines (see pp. 70-76).

USDA Forest Service. 2002. Scenic 

Byways: A Design Guide for 

Roadside Improvements.

Potential funding for developing 

alternative transportation systems 

for visitors through the Transit in 

Parks Program (5230)

See: http://www.fta.dot.gov/funding/

grants/grants_financing_6106.html.

Bicycling on federal lands - case 

studies include two National 

Wildlife Refuges.

FHWA. 2008. Guide to Promoting 

Bicycling on Federal Lands. FHWA 

Pub. No. FHWA-CFL/TD-08-007.

Case studies that include alternative 

transportation programs in parks, 

such as shuttle bus systems.

NPS Partnerships Case Studies 

(Transportation). See: http://www.

nps.gov/partnerships/cs_type.

htm#anchor19.

Lessons from Europe on traffic 

calming, enhancing mobility 

options.

Brewer, Jim, et al. 2001. Geometric 

Design Practices for European 

Roads. FHWA, Office of 

International Programs.

Case Study.

Tualatin River NWR. Two parking 

spaces designated for hybrid 

vehicles; bicycle racks provided at 

parking area; bus stop for a public 

transit line adjacent to the Refuge.

Roadway 

projects should facilitate multiple 

modes of transportation; a roadway 

at Ding Darling NWR (top) 

accommodates both autos and bikers 

for wildlife observation; parking lot 

at Great Swamp NWR visitor center 

(bottom) provides a safe, convenient 

place for bicycle parking.

Providing separate facilities can 

encourage users who don’t want to 

bike or walk along a roadway.

Visitor Experience | VE-2

Intent

Access to FWS managed lands, where compatible with Station purpose, 

should be available to visitors via multiple forms of transportation, including 

public transit, bicycle, and walking. Alternative forms of transportation can 

help reduce visitors’ carbon footprints, which in turn may have long term 

positive affects for the natural resources we manage. Planning and building 

to accommodate sustainable transportation options can help to achieve the 

FWS mission.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Define and consider visitor 

expectations for accessibility

 Balance safety and accessibility 

concerns

 Apply all relevant design criteria 

in order to meet or exceed the 

requirements of ABA

 Consider the relationship of 

accessible improvements to 

related infrastructure. Is there 

a completely accessible visitor 

experience?

Metrics

 Compliance with requirements, 

guidelines and standards

 Visitor use counts

 Outcomes of DCR facility audits

VE-3 Comply With Accessibility Standards and Guidelines

Resources

See ABA accessibility standards.

http://www.access-board.gov/gs.htm.

Draft Final Guidelines for 

accessibility in Outdoor Developed 

Areas on Federal lands:

http://www.access-board.gov/

outdoor/.

Accessibility guidance for Federal 

outdoor areas (specific to USDA 

Forest Service lands/facilities).

USDA Forest Service. 2006. 

Accessibility Guidebook for Outdoor 

Recreation and Trails. 

Visitor Experience | VE-3

Intent

FWS managed lands should be accessible to all. FWS is subject to 

accessibility standards as dictated by the Architectural Barriers Act (ABA). 

Project teams should use the relevant suite of resources and guidance to 

ensure all FWS facilities are designed and constructed to comply with or 

exceed the mandates of the ABA.

What Federal Accessibility criteria should FWS projects follow? 

The Architectural Barriers Act 

(ABA) of 1968 

FWS is subject to the ABA. The 

ABA requires access to facilities 

designed, built, altered or leased 

with Federal funds. Passed by 

Congress in 1968, it marks one of 

the first efforts to ensure access to 

the built environment. The Access 

Board develops and maintains 

accessibility guidelines under this 

law. These guidelines serve as the 

basis for the standards used to 

enforce the law, the Architectural 

Barriers Act Accessibility Standard 

(ABASS). 

Americans with Disabilities Act 

and the Architectural Barriers 

Act Accessibility Guidelines 

for Buildings and Facilities 

(ADAABAAG) as published in the 

Federal Register on July 23, 2004. 

FWS should follow the scoping 

and technical requirements under 

the ABA sections. This direction 

covers accessibility to sites, 

facilities, buildings and elements 

by individuals with disabilities. The 

requirements are to be applied 

during design, construction, 

additions to and alterations of 

facilities. 

Draft Final Accessibility Guidelines 

for Outdoor Developed Areas

Many FWS facilities can be 

characterized as Outdoor 

Developed Areas. The Access Board 

is proposing to issue accessibility 

guidelines for outdoor developed 

areas designed, constructed or 

altered by Federal agencies subject 

to the ABA of 1968. The guidelines 

cover trails, outdoor recreation 

access routes, beach access routes 

and picnic and camping facilities. 

Once these guidelines are finalized 

they will become the technical 

requirements for accessibility 

in outdoor developed areas. At 

this time, FWS may use these 

guidelines.

Brian Bainnson

Provide accessible 

parking spaces with appropriate 

access aisles and access to 

pathways (top); accessible parking

 at Great Swamp NWR (right).

Accessibility Guidebook for Outdoor 

Recreation and Trails, USDA Forest 

Service, April 2006. 

These guidelines only apply within 

National Forest System boundaries. 

However, they are a very useful 

tool for FWS projects recognizing 

that the Draft Final Accessibility 

Guidelines for Outdoor Developed 

Areas are still a work in progress. 

And In General...

 Use principles of universal 

design—programs and facilities 

should be usable by all people, 

to the greatest extent possible, 

without separate or segregated 

access for people with 

disabilities.

 Accessibility does not supersede 

requirements for safety.

 Consider the level of 

development at a site to help 

balance safety and accessibility.

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Principles

 Consider whether current or 

anticipated visitor impacts are 

compatible with wildlife and their 

habitats

 Consider safety for visitors, staff 

and wildlife

 Provide orientation and 

interpretive information to 

support visitor experiences

 Consider the enabling legislation 

of the refuge - what is the 

purpose of the unit?

 Consider relationships with other 

recreational or educational sites 

within the region

 Consider demand, site carrying 

capacity and quality of visitor 

experience

 Determine what kind of access 

to recreation sites is available, 

appropriate and necessary

 Consider impacts to recreational 

activities from roads

 Promote appropriate facilities for 

safely viewing wildlife from roads 

where necessary

 Plan for appropriate signage, 

including entrance, orientation, 

directional and interpretive

 Consider access for and needs of 

school groups

Metrics

 Visitor counts

 Diversity and quality of activities 

available for visitors

 Ease of use (proximity, clarity, 

etc.) of recreational and 

educational elements

VE-4 Facilitate Compatible Wildlife Dependent Recreation 

and Education

Resources

California State Parks Children in 

Nature Campaign.

http://www.parks.ca.gov/?page_

id=24914.

Information on local, regional and 

national programs to connect kids 

with nature.

Children and Nature Network. See: 

http://www.childrenandnature.org/

movement/info.

National Wildlife Federation’s kids 

outside program.

See: http://www.nwf.org/beoutthere/.

Washington State Parks “No Child 

Left Inside” campaign.

See: http://www.parks.wa.gov/

NoChildLeftInside/.

USDA Forest Service Discover the 

Forest campaign.

http://www.discovertheforest.org/

index.php.

Bicycling on federal lands - case 

studies include two National 

Wildlife Refuges.

FHWA. 2008. Guide to Promoting 

Bicycling on Federal Lands. FHWA 

Pub. No. FHWA-CFL/TD-08-007.

Roadways are one of the principal 

infrastructure elements that 

facilitate access to the Big 6 on 

FWS managed lands.

Visitor Experience | VE-4

Intent

The FWS mission is working with others to conserve, protect and enhance 

fish, wildlife, plants and their habitats for the continuing benefit of the 

American people. The mission of the Service should be integrated and 

transparent in the design of roadways on FWS managed lands. Roadways 

are key in fulfilling the Service’s priority of connecting people with nature, 

and can provide opportunities to do so in ways that are compatible with the 

conservation mission of the Service.

USFWS

Auto tour route at Ridgefield 

NWR provides visitors access to 

Big 6 activities, such as wildlife 

observation and photography.

The Big Six

The 1997 Refuge System 

Improvement Act outlines “The 

Big Six” priority public uses for 

Refuge system improvements:

 Hunting

 Fishing

 Wildlife Photography

 Wildlife Observation

 Environmental Interpretation

 Environmental Education

Roadway Design Guidelines

U.S. Fish & Wildlife Service

David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.

Appendices

Roadway Design Guidelines

U.S. Fish & Wildlife Service
David Pitkin/USFWS

Highway through Siletz Bay NWR provides 

travelers with visual access to the Refuge. 

The highway affects habitat connectivity and 

the landscape’s hydrology.
LE - Landscape Ecology

Bentrup, G. 2008. Conservation 

buffers: design guidelines for 

buffers, corridors, and greenways. 

Gen. Tech. Rep. SRS-109. Asheville, 

NC: Department of Agriculture, 

Forest Service, Southern Research 

Station. 110 p. Access at http://www.

unl.edu/nac/bufferguidelines/.

Dashiell and Lancaster. Undated. 

Road Design Guidelines for Low 

Impact to Hydrology. Five Counties 

Salmonid Conservation Program. 

Weaverville, CA.

Dramstad, Wenche, James Olson and 

Richard Forman. 1996. Landscape 

Ecology Principles in Landscape 

Architecture and Land-Use 

Planning. Harvard GSD and Island 

Press. Washington, DC.

FHWA. 2008. Wildlife-Vehicle 

Collision Reduction Study, Best 

Practices Manual. Access at http://

www.fhwa.dot.gov/environment/

hconnect/wvc/index.htm.

Forman, Richard. “Roadsides and 

Vegetation.” 2002. In Proceedings 

of the International Conference 

on Ecology and Transportation, 

Keystone, CO, September 24-28, 

2001. Raleigh, NC: Center 

for Transportation and the 

Environment, North Carolina State 

University (March 2002): 85-91.

Forman, Richard, et al. 2003. Road 

Ecology: Science and Solutions. 

Island Press. Washington, D.C.

Green Highways Partnership. http://

www.greenhighwayspartnership.

org. 

ICF International. 2017. 

Safeguarding FWS Infrastructure 

from Extreme Weather and Other 

Hazards.

Jones, Grant R., David F. Sorey and 

Charles C. Scott. 2007. Applying 

Visual Resource Assessment for 

Highway Planning. In Landscape 

Appendix A: Bibliography

Architecture Graphic Standards 

(pp.130-139). Hoboken, New 

Jersey: John Wiley & Sons.

Jones, Grant R. and Charles C. 

Scott. 2007. Road Alignment. In 

Landscape Architecture Graphic 

Standards (pp.330-341). Hoboken, 

New Jersey: John Wiley & Sons.

Kentucky Transportation Center. 

Undated. Context-Sensitive Design 

Case Study No. 1: Paris Pike - 

Kentucky. College of Engineering, 

University of Kentucky. Lexington, 

KY.

Nevada Department of 

Transportation. 2002. Pattern and 

Palette of Place: A Landscape 

and Aesthetic Master Plan for the 

Nevada State Highway System.

New Mexico Department of 

Transportation. 2006. Architectural 

and Visual Quality Design 

Guidelines for Context Sensitive 

Design and Context Sensitive 

Solutions.

ODOT (Oregon Department of 

Transportation). 2006. Roadside 

Development Design Manual - 

Guidelines for Visual Resource 

Management, Landscaping, and 

Hardscaping (DRAFT).

Smith, Stacy (Idaho Technology 

Transfer Center, Univ. of Idaho). 

2005. BMP Handbook: Best 

Management Practices for Idaho 

Rural Road Maintenance. 

Transportation Research Board 

of The National Academies. 

2002. A Guide to Best Practices 

for Achieving Context Sensitive 

Solutions (NCHRP Report 480).

TransTech Mgmt., Oldham 

Historic Properties Inc. and 

Parsons Brinckerhoff Quade & 

Douglas for National Cooperative 

Highway Research Program. 2004. 

Performance Measures for Context 

Sensitive Solutions - A Guidebook 

for State DOT’s.

Trombulak, Stephen and 

Christopher Frissell. 2000. 

Review of Ecological Effects of 

Roads on Terrestrial and Aquatic 

Communities. Conservation 

Biology 14(1), February 2000, pp. 

18-30.

USDA Forest Service. 2002. Scenic 

Byways: A Design Guide for 

Roadside Improvements.

USDA Forest Service, StreamSimulation Working Group. 2008. 

Stream Simulation: An Ecological 

Approach To Providing Passage for 

Aquatic Organisms at Road-Stream 

Crossings.

Weaver, William and Danny Hagans. 

1994. Handbook for Forest 

and Ranch Roads: A Guide for 

Planning, Designing, Constructing, 

Reconstructing, Maintaining and 

Closing Wildland Roads. 

Western Governors’ Wildlife 

Council. http://www.westgov.org/. 

Resources include the Wildlife 

Corridors Initiative Report (2008) 

and Wildlife Sensitivity Maps.

PC - Planning Context

AASHTO. 2008. Guidelines For 

Environmental Performance 

Measures. NCHRP 25-25, Task 

23. Prepared by Cambridge 

Systematics, Inc. Cambridge, MA.

Advisory Council on Historic 

Preservation and Council on 

Environmental Quality. 2013. 

NEPA and NHPA. Available 

at: http:// www.achp.gov/docs/

NEPA_NHPA_Section_106_

Handbook_Mar2013.pdf.

Bibliography

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Crane, Bill. 2006. Road Maintenance 

with Threatened, Endangered, or 

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in Region 1. Report prepared by 

PBS&J.

Roadway Design Guidelines

U.S. Fish & Wildlife Service

Abbreviations

ABA Architectural Barriers Act

ABAAS Architectural Barriers Act 

Accessibility Standards

ADA Americans with Disabilities Act

ASCE American Society of Civil 

Engineers

BGEPA Bald and Golden Eagle 

Protection Act

BLM Bureau of Land Management

CCP Comprehensive Conservation 

Plan

CFR Code of Federal Regulations

DCR Division of Diversity and Civil 

Rights (FWS Region 1)

EE Environmental Education

ES Ecological Services

ESA Endangered Species Act

FHWA Federal Highway 

Administration

FWCA Fish and Wildlife 

Coordination Act

FWS U.S. Fish & Wildlife Service 

(also Service, USFWS)

GIS Geographic Information System

LID low impact development

LOS level of service

LRTP Long Range Transportation 

Plan

MBTA Migratory Bird Treaty Act

NDS natural drainage system

NEPA National Environmental 

Policy Act

Appendix B: Glossary

NHPA National Historic 

Preservation Act

NWR National Wildlife Refuge (also 

Refuge).

NWRS National Wildlife Refuge 

System

ODOT Oregon Department of 

Transportation

R1 Region 1 of the FWS (HI, ID, 

OR, WA, Pacific Islands)

ROW Right-of-way

SAMMS Service Asset Maintenance 

Management System

USDA United States Department of 

Agriculture

USFS United States Forest Service

VMT Vehicle miles traveled

WDFW Washington State 

Department of Fish and Wildlife

WSDOT Washington State 

Department of Transportation

WSPRC Washington State Parks 

and Recreation Commission

WVC Wildlife-vehicle collisions

Glossary

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Definitions

Adaptive Management. Refers to a 

process in which policy decisions are 

implemented within a framework of 

scientifically driven experiments to 

test predictions and assumptions 

inherent in management plan. 

Analysis of results help managers 

determine whether current 

management should continue as is or 

whether it should be modified to 

achieve desired conditions.

Alternative. Alternatives are 

different means of accomplishing 

Refuge purposes and goals and 

contributing to the System mission 

(draft Service Manual 602 FW 1.5). 

The no action alternative is the 

manner in which the refuge is 

currently managed, while the action 

alternatives are all other 

alternatives.

Bald and Golden Eagle Protection 

Act (Federal). This law makes it 

illegal for anyone to take (as defined 

therein) a bald or golden eagle, or 

their parts, nests, or eggs except as 

authorized under a permit. Since 

this law extends protection to eagle 

nests, it may come into play during 

the construction and maintenance of 

transportation infrastructure.

Biological Diversity (also 

Biodiversity). The variety of life and 

its processes, including the variety of 

living organisms, the genetic 

differences among them, and the 

communities and ecosystems in 

which they occur (USFWS Manual 

052 FW 1. 12B). The System’s focus 

is on indigenous species, biotic 

communities, and ecological 

processes.

Biological Integrity. Biotic 

composition, structure, and 

functioning at genetic, organism, and 

community levels comparable with 

historic conditions, including the 

natural biological processes that 

shape genomes, organisms, and 

communities (NWRS Biological 

integrity policy).

Compatible Use. A wildlifedependent recreational use or any 

other use of a Refuge that, in the 

sound professional judgment of the 

Director, will not materially interfere 

with or detract from the fulfillment 

of the Mission of the System or the 

purposes of the refuge (Service 

Manual 603 FW 3.6). A compatibility 

determination supports the selection 

of compatible uses and identifies 

stipulations or limits necessary to 

ensure compatibility.

Comprehensive Conservation Plan. 

A document that describes the 

desired future conditions of the 

Refuge, and provides long-range 

guidance and management direction 

for the Refuge manager to 

accomplish the purposes of the 

refuge, contribute to the mission of 

the System, and to meet other 

relevant mandates (Service Manual 

602 FW 1.5).

Contaminants (also Environmental 

Contaminants). Chemicals present at 

levels greater than those naturally 

occurring in the environment 

resulting from anthropogenic or 

natural processes that potentially 

result in changes to biota at any 

ecological level (USGS, assessing EC 

threats to lands managed by 

USFWS). Pollutants that degrade 

other resources upon contact or 

mixing (Adapted from Webster’s II).

Cooperative Agreement. This is a 

simple habitat protection action, in 

which no property rights are 

acquired. An agreement is usually 

long term but can be modified by 

either party. They are most effective 

in establishing multiple use 

management of land. An example 

would be a wildlife agreement on a 

Corps reservoir.

Context Sensitive Solutions (CSS). A 

theoretical and practical approach to 

transportation decision-making and 

design that takes into consideration 

the communities and lands through 

which streets, roads, and highways 

pass (“the context”). CSS seeks to 

balance the need to move vehicles 

and other transportation modes 

efficiently and safely with other 

desirable outcomes, including 

historic preservation, environmental 

goals such as wildlife and habitat 

conservation and the creation of vital 

public spaces.

Critical Habitat. Areas that are 

essential to the conservation of ESA 

listed species.

Cultural Resources. The physical 

remains, objects, historic records 

and traditional lifeways that connect 

us to our nation’s past (USFWS, 

FW1-6 https://www.fws.gov/

historicPreservation/crp/index.

html).

Disturbance. Significant alteration of 

habitat structure or composition. 

May be natural (e.g. fire) or humancaused events (e.g. aircraft overflights).

Ecosystem. A dynamic and 

interrelating complex of plant and 

animal communities and their 

associated non-living environment.

Ecosystem Management. 

Management of natural resources 

using system-wide concepts to 

ensure that all plants and animals in 

ecosystems are maintained at viable 

levels in native habitats and that 

basic ecosystem processes are 

perpetuated indefinitely.

Environmental Assessment. A 

concise public document, prepared in 

compliance with the National 

Environmental Policy Act (NEPA), 

that briefly discusses the purpose 

and need for an action, alternatives 

to such action, and provides 

sufficient evidence and analysis of 

impacts to determine whether an 

environmental impact statement 

must be prepared, or a finding of no 

significant impact can be issued (40 

CFR 1508.9).

Endangered Species Act (Federal). 

The purpose of the ESA is to protect 

and recover endangered and 

threatened species and the 

ecosystems upon which they depend. 

Under the ESA, species may be 

listed as either endangered or 

threatened and critical habitat may 

be designated.

ESA Listed Species. A plant or 

animal species listed under the 

Endangered Species Act that is in 

danger of extinction throughout all 

or a significant portion of its range 

(endangered) or likely to become so 

within the foreseeable future 

(threatened).

Environmental Education Facility. A 

building or site with one or more 

classrooms or teaching areas and 

environmental education resources 

to accommodate groups of students.

Glossary

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Fish and Wildlife Coordination Act 

(Federal). This law provides the basic 

authority for the FWS to evaluate 

impacts to all fish and wildlife from 

proposed water resource development 

projects. This law may come into 

play for transportation projects that 

involve effects to a water body(ies).

Gap Analysis. Analysis done to 

identify and map elements of 

biodiversity that are not adequately 

represented in the nation’s network 

of reserves. It provides an overview 

of the distribution and conservation 

status of several components of 

biodiversity, with an emphasis 

on vegetation and terrestrial 

vertebrates (Cassidy et al.1997).

Goal. Descriptive, open-ended and 

often broad statement of desired 

future conditions that conveys 

a purpose but does not define 

measurable units (Draft Service 

Manual 620 FW 1.5).

Green infrastructure. A concept and 

approach in which natural assets are 

managed and/or designed to provide 

multiple ecosystem and human 

services, including services such 

as stormwater management, flood 

prevention, carbon sequestration, 

and habitat. Green infrastructure 

includes natural drainage systems 

(NDS) and may be applied as a tool 

in achieving low impact development 

(LID).

Habitat. Suite of existing 

environmental conditions required 

by an organism for survival and 

reproduction. The place where an 

organism typically lives.

Habitat Connectivity (Also 

Landscape Connectivity). The 

arrangement of habitats that 

allows organisms and ecological 

processes to move across the 

landscape; patches of similar 

habitats are either close together or 

linked by corridors of appropriate 

vegetation/habitat. The opposite 

of fragmentation (Turnbull NWR 

Habitat Management Plan).

Habitat Management Plan. A plan 

that guides Refuge activities related 

to the maintenance, restoration, 

and enhancement of habitats for the 

benefit of wildlife, fish, and plant 

populations.

Habitat Restoration. Management 

emphasis designed to move 

ecosystems to desired conditions 

and processes and/or to healthy 

ecosystems.

Historic Conditions. Composition, 

structure and functioning of 

ecosystems resulting from natural 

processes that we believe, based on 

sound professional judgment, were 

present prior to substantial human 

related changes to the landscape 

(NWRS Biological integrity policy).

Hydrologic influence. Having an 

effect on water quality and quantity.

Hydrology. A science dealing with 

the properties, distribution and 

circulation of water on and below 

the earth’s surface and in the 

atmosphere (yourdictionary.com).

Indicator. Something that serves as 

a sign or symptom (Webster’s II).

Interpretation. A teaching technique 

that combines factual information 

with stimulating explanation 

(yourdictionary.com). Frequently 

used to help people understand 

natural and cultural resources.

Interpretive Trail. A trail with 

informative signs, numbered 

posts that refer to information in 

a brochure, or where guided talks 

are conducted for the purpose of 

providing factual information and 

stimulating explanations of what 

visitors see, hear, feel, or otherwise 

experience while on the trail.

Landform. A natural feature of a 

land surface (yourdictionary.com).

Landscape Linkages. Landscape 

features linking areas of similar 

habitat. Plants and smaller animals 

are able to use landscape linkages 

to move between larger landscape 

blocks over a period of generations.

Landscape Ecology. The science and 

study of the relationship between 

spatial pattern and ecological 

processes on a wide variety of 

landscape scales and organizational 

levels. 

Low Impact Development (LID). A 

stormwater management strategy 

that emphasizes conservation and 

use of existing natural site features 

integrated with distributed, smallscale stormwater controls to more 

closely mimic natural hydrologic 

patterns. (LID Guidance Manual for 

Puget Sound).

Maintenance. The upkeep of 

constructed facilities, structures and 

capitalized equipment necessary 

to realize the originally anticipated 

useful life of a fixed asset. 

Maintenance includes preventative 

maintenance; cyclic maintenance; 

repairs; replacement of parts, 

components, or items of equipment, 

periodic condition assessment; 

periodic inspections, adjustment, 

lubrication and cleaning (nonjanitorial) of equipment; painting, 

resurfacing, rehabilitation; special 

safety inspections; and other actions 

to assure continuing service and to 

prevent breakdown.

Mesh Size. The average area or 

diameter of the polygons enclosed 

by a road network, as in a fishnet; 

it is proportional to road density 

but focuses on the enclosed parcels 

rather than the roads (Forman 2003).

Migratory Bird Treaty Act 

(Federal). This law makes it illegal 

for anyone to take any migratory 

bird, or the parts, nests, or eggs 

of migratory birds, except under 

the terms of a valid permit issued 

pursuant to federal regulations. 

This law can come into play during 

the maintenance and removal of 

transportation infrastructure as well 

as during the construction of new 

structures.

Mission Statement. Succinct 

statement of a unit’s purpose and 

reason for being.

Monitoring. The process of collecting 

information to track changes of 

selected parameters over time.

National Environmental Policy Act 

of 1969 (NEPA). Requires all Federal 

agencies, including the Service, 

to examine the environmental 

impacts of their actions, incorporate 

environmental information, and 

use public participation in the 

planning and implementation 

of all actions. Federal agencies 

must integrate NEPA with other 

planning requirements, and prepare 

appropriate NEPA documents to 

facilitate better environmental 

decision making (from 40 CFR 1500).

Glossary

Roadway Design Guidelines

U.S. Fish & Wildlife Service
National Historic Preservation 

Act of 1966 (NHPA). Requires 

all federal agencies including the 

Service, to examine their projects’ 

impact on cultural and historic 

resources. Federal agencies 

must integrate NHPA with other 

planning requirements, and prepare 

appropriate NHPA documents to 

facilitate better decision making 

(from 40 CFR 800).

National Wildlife Refuge (also 

Refuge). A designated area of land, 

water, or an interest in land or water 

within the System.

National Wildlife Refuge System 

(NWRS; also System). Various 

categories of areas administered 

by the Secretary of the Interior for 

the conservation of fish and wildlife, 

including species threatened with 

extinction; all lands, waters and 

interests therein administered by 

the Secretary as wildlife refuges; 

areas for the protection and 

conservation of fish and wildlife 

that are threatened with extinction; 

wildlife ranges; games ranges; 

wildlife management areas; or 

waterfowl production areas.

Native. With respect to a particular 

ecosystem, a species that, other 

than as a result of an introduction, 

historically occurred or currently 

occurs in that ecosystem (NWRS 

Biological integrity policy).

Natural Drainage System (NDS). 

A set of stormwater management 

features using plants and specialized 

soils that slow and infiltrate 

stormwater and can help remove 

pollutants through filtration and 

bioremediation. These features—

such as open, vegetated swales, 

stormwater cascades and small rain 

gardens or wet ponds—mimic or 

restore natural functions impeded 

by development. In contrast to pipes 

and vaults, these systems increase in 

functional value over time.

Non-Consumptive Recreation. 

Recreational activities that do 

not involve harvest, removal or 

consumption of fish, wildlife or other 

natural resources.

Noxious Weed. A plant species 

designated by Federal or State law 

as generally possessing one or more 

of the following characteristics: 

aggressive or difficult to manage; 

parasitic; a carrier or host of serious 

insect or disease; or non-native, new, 

or not common to the United States, 

according to the Federal Noxious 

Weed Act (PL 93-639), a noxious 

weed is one that causes disease 

or has adverse effects on man or 

his environment and therefore is 

detrimental to the agriculture and 

commerce of the United States and 

to the public health.

Nutrient Loading. The presence 

of nutrients, such as nitrogen 

and phosphorus, in waterways 

insufficient amounts to cause effects 

such as algal blooms and oxygen 

depletion, with potentially lethal 

effects on fish and wildlife species.

Operations. Activities related to 

the normal performance of the 

functions for which a facility or item 

of equipment is intended to be used. 

Costs such as utilities (electricity, 

water, sewage) fuel, janitorial 

services, window cleaning, rodent 

and pest control, upkeep of grounds, 

vehicle rentals, waste management 

and personnel costs for operating 

staff are generally included within 

the scope of operations.

Outreach. The process of providing 

information to the public on a 

specific issue through the use of 

the media, printed materials and 

presentations.

Plant Community. An assemblage 

of plant species unique in its 

composition that occurs in particular 

locations, under particular 

influences, which reflect or integrate 

the environmental influences on 

the site, such as soils, temperature, 

elevation, solar radiation, slope, 

aspect and rainfall.

Preferred Alternative. This is the 

alternative determined (by the 

decision maker) to best achieve the 

Refuge purpose, vision and goals; 

that best contributes to the System 

mission and addresses the significant 

issues; and that is consistent with 

principles of sound fish and wildlife 

management.

Priority Public Uses. Hunting, 

fishing, wildlife observation and 

photography, environmental 

education and interpretation were 

identified by the National Wildlife 

Refuge system Improvement Act of 

1997 as the six (“Big Six”) priority 

public uses of the National Wildlife 

Refuge System.

Public. Individuals, organizations, 

and groups outside the planning 

team, including officials of Federal, 

State, and local government 

agencies, Indian tribes and foreign 

nations. It includes those who may or 

may not have indicated an interest in 

Service issues and those who may be 

affected by Service decisions.

Refuge Purpose(s). The purpose(s) 

specified in or derived from the 

law, proclamation, executive 

order, agreement, public land 

order, donation document, or 

administrative memorandum 

establishing, authorizing, or 

expanding a refuge, a refuge unit, 

or refuge subunit (Draft Service 

Manual 602 EW 1.5).

Restoration. The act of bringing 

back to a former or original condition 

(Webster’s II).

Riparian. An area or habitat that 

is transitional from terrestrial 

to aquatic ecosystems, including 

streams, lakes, wet areas, and 

adjacent plant communities and 

their associated soils which have free 

water at or near the surface; an area 

whose components are directly or 

indirectly attributed to the influence 

of water; and of or relating to a 

river. Specifically applied to ecology, 

“riparian” describes the land 

immediately adjoining and directly 

influenced by streams. For example, 

riparian vegetation includes any 

and all plant life growing on the 

land adjoining a stream and directly 

influenced by the stream.

Road Density. The average total road 

length per unit area of landscape (i.e. 

kilometers per square km, or miles 

per square mile) (Forman 2003).

Road-Effect Zone. The zone of 

influence of a roadway into the 

surrounding areas. Distance 

depends upon the type of effect and 

site conditions (Forman 2003; see 

graphic, p. 308).

Glossary

Roadway Design Guidelines

U.S. Fish & Wildlife Service
Roadway. The suite of typical 

improvements associated with a 

vehicle-focused transportation 

project. This extends from the 

centerline of an existing or proposed 

road outward, to include associated 

infrastructure components such 

as paving, utilities, grading and 

planting. Roadway also refers here 

to other facilities and infrastructure 

commonly associated with vehicular 

transportation, such as parking, 

visitor contact facilities and pullouts. 

From an ecological perspective, 

the roadway conceptually 

includes impacts such as habitat 

fragmentation, habitat disturbance, 

pollution, and aquatic and terrestrial 

species conflicts. 

Strategy. A specific action, tool, or 

technique or combination of actions, 

tools, and techniques used to meet 

unit objectives (Service Manual 602 

FW 1.5).

Viewpoint. A designated point that 

provides an opportunity to see 

wildlife or habitats of interest. The 

point may or may not be “supported” 

with an interpretive sign. Usually 

the viewpoint is supported by a 

pullout or a parking area.

Visitor Center. A building with 

staff that provides visitors with 

interpretation, education and 

general information about the 

natural and cultural resources of the 

Refuge and the local area.

Visitor Contact Point or Center. A 

kiosk or other location where visitors 

may go to learn about Refuge 

resources, facilities, trails, etc.

Vision Statement. A concise 

statement of the desired future 

condition of the planning unit, based 

primarily upon the System mission, 

specific Refuge purposes and other 

relevant mandates (Service Manual 

602 FW 1.5).

Watershed. The region or area 

drained by a river system or other 

body of water (Webster’s II).

Wetlands. Transitional lands 

between terrestrial and aquatic 

systems where the water table is 

usually at or near the surface or the 

land is covered by shallow water 

at some time each year (Service 

Manual 660 FW 2). 

 Permanent wetland - a wetland 

basin or portion of a basin that is 

covered with water throughout 

the year in all years except 

extreme drought. Typically, the 

basin bottom is vegetated with 

submerged aquatic plant species, 

including milfoil, coontail and 

pondweeds.

 Semi-permanent wetland - a 

wetland basin or portion of 

a basin where surface water 

persists throughout the growing 

season of most years. Typical 

vegetation is composed of cattails 

and bulrushes.

 Seasonal wetland - a wetland 

basin or portion of a basin where 

surface water is present in the 

early part of the growing season 

but is absent by the end of the 

season in most years. Typically 

vegetated with sedges, rushes, 

spikerushes or burreed. 

Wildlife-Dependent Recreation. 

Hunting, fishing, wildlife observation 

and photography, environmental 

education and interpretation. These 

are also referred to as the priority 

public uses of the National Wildlife 

Refuge System or “Big Six”.

Glossary

Roadway Design Guidelines

U.S. Fish & Wildlife Service


U.S. Department of the Interior

U.S. Fish & Wildlife Service

http://www.fws.gov

February 2017