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PUBLIC ROADS
www.fhwa.dot.gov Summer 2022
Resources for Applying
Resilience Concepts to Projects
in River Environments
Also in this issue:
NEW LOOK! Guest Editorial Explores
Advancing Research through TPF Program
MnDOT Commits to Clean
Energy, Connectivity
Using Online Tools to Protect
the Environment
Summer 2022 | Vol. 86, No. 2
Resources for Applying Resilience Concepts
to Projects in River Environments
PAGE 11
FEATURES
6 Information for Planning and Consultation (IPaC)
Streamlines Endangered Species Act Reviews PAGE 6
by Chellby Kilheffer and Victoria Foster
IPaC’s online resources, including the new Consultation
Package Builder for creating biological assessments, help
agencies understand and document how their proposed
projects will affect listed species and critical habitats.
11 Resources for Applying Resilience Concepts
to Projects in River Environments
by Eric R. Brown, Laura Girard, and James Neighorn
The Federal Highway Administration develops resources
to aid transportation professionals with recognizing,
understanding, assessing, and accommodating natural
river functions. Preserving and enhancing these functions
may lead to more resilient transportation projects.
16 Keeping America Moving and Accessible Source: Ryan Hagerty, USFWS.
by Adam Larsen and Brandon Stokes
How does FLH meet their mission in adverse conditions?
With tenacity, ingenuity, and endurance. DEPARTMENTS
20 Addressing Climate Change: A look inside Minnesota Guest Editorial ................................................. 2
Clean Energy and Connectivity Projects What’s New ..................................................... 3
by Siri Simons, Jessica Oh, and David Scott
MnDOT Commits to Climate Action. Innovation Corner .......................................... 4
Along the Road..............................................32
24 Exploring the Transportation Pooled Fund Program— Training Update .............................................35
Advancing Research and Innovation Through Collaboration
by Patricia Sergeson
The TPF Program helps to solve common transportation
problems at a fraction of the cost by leveraging
partnerships across the transportation sector. COVERS and ABOVE—Transportation professionals benefit
from understanding natural river functions when planning,
designing, building, and maintaining infrastructure projects
in river environments. Although studies of natural systems
may seem daunting to some, even casual students
of river science may readily learn some fundamental
Recommended citation: Federal Highway Administration, Public Roads, Summer 2022 concepts to aid them in developing resilient projects.
(Washington, DC: 2022) https://doi.org/10.21949/1521876 Source: FHWA.
Are you a longtime transportation
professional conducting new research
on a particular topic? Or an industry
freshman looking to expand your
U.S. Department of Transportation
Pete Buttigieg, Secretary
knowledge base?
Federal Highway Administration
Stephanie Pollack, Acting Administrator
Office of Research, Development, and Technology
Kelly Regal, Associate Administrator The Federal Highway Administration (FHWA)
has the online research tool that can help.
Jonathan B. Walker, Acting Director,
Office of Corporate Research, Technology,
and Innovation Management
TaMara McCrae, Editor-in-Chief
Since 2006, “What’s New” in FHWA publications
Lisa A. Shuler, Distribution Manager
Editorial Board:
has been the comprehensive online resource
T. Everett, T. Hess, H. Kalla, M. Knopp, A. Lucero, for fact sheets, TechBriefs, reports, and more to
I. Rico, G. Shepherd, C. Walker
Editorial and Design Contractor:
support your research needs. These publications
Schatz Strategy Group cover a wide range of topics, including:
M. Mitchell, R. Nemec, C. Williams, A. Jacobi,
S. Palaia, T. Tolbert, A. Lax, D. Davis, C. McCoy
• Roadway safety and • Bridge innovations,
Public Roads (ISSN 0033-3735; USPS 516-690)
is published quarterly by the Office of Research, enhancements. reconstruction, and
Development, and Technology, Federal Highway rehabilitation.
Administration (FHWA), 6300 Georgetown Pike, McLean, • Pedestrian and
VA 22101-2296. The business and editorial office of
Public Roads is located at the McLean address above. bicycle safety. • Pavement technology
Phone: 202–493–3375. Fax: 202–493–3475. Email: and materials.
lisa.a.shuler@dot.gov. Periodicals postage paid at McLean, • Transportation equity.
•
VA, and additional mailing offices (if applicable).
Intersection
POSTMASTER: Send address changes to • Connected and
improvements and design.
Public Roads, HRTM-20, FHWA,
6300 Georgetown Pike, McLean, VA 22101-2296. automated vehicles.
Public Roads is sold by the Superintendent of Documents,
• Nondestructive • Intelligent transportation
U.S. Government Printing Office, Washington, DC 20402.
systems.
Requests for subscriptions should be sent directly to New evaluations.
Orders, Superintendent of Documents, P.O. Box 979050,
St. Louis, MO 63197-9000. Subscriptions are available
for 1-year periods. Paid subscribers should send change
of address notices to the U.S. Government Printing Office, To access the list of downloadable research
Claims Office, Washington, DC 20402.
documents, visit www.fhwa.dot.gov/publications
The electronic version of Public Roads can be accessed
through the Turner-Fairbank Highway Research Center /lists/whatsnew/index.cfm.
home page (https://highways.dot.gov/research).
The Secretary of Transportation has determined that
the publication of this periodical is necessary in the
transaction of the public business required by law of
this department.
All articles are advisory or informational in nature and
should not be construed as having regulatory effect.
Articles written by private individuals contain the personal
views of the author and do not necessarily reflect those
of FHWA.
All photographs are provided by FHWA unless
otherwise credited.
Contents of this publication may be reprinted, provided
credit is given to Public Roads and the authors.
For more information, representatives of the news
media should contact FHWA’s Office of Public Affairs at
202–366–0660.
NOTICE
This document is disseminated under the sponsorship
of the U.S. Department of Transportation in the interest
of information exchange. The U.S. Government assumes
no liability for the use of the information contained in
this document. This document does not constitute a
standard, specification, or regulation.
The U.S. Government does not endorse products
or manufacturers. Trademarks or manufacturers’
names appear in this document only because they are
considered essential to the objective of the document;
they are included for informational purposes only and
are not intended to reflect a preference, approval, or
endorsement of any one product or entity. Photo illustration by FHWA. Highway image: © kanvag / AdobeStock.com.
Vehicle image: © lunamarina / AdobeStock.com.
Book image: © Photocreo Bednarek/ AdobeStock.com.
GUEST EDITORIAL
The Transportation Pooled Fund Program helps partners advance research
while reducing costs and increasing benefits and impacts.
© metamorworks /AdobeStock.com.
Transportation Pooled Fund (TPF) Program:
Moving Research Forward Through Partnerships Source: FHWA.
W ith the passage of the Bipartisan
Infrastructure Law, this is a historic
time in transportation. It is now even
Management manages the TPF Program.
Since 2003, the TPF Program has processed
over $600 million in collaborative funding
low-cost safety improvement approaches
have been documented in more than 60
publications and 800 crash modifica-
more important to provide opportunities between partnering agencies. As of February tion factors.
to collaborate and foster partnerships to 2022, there were 172 active projects and There have been several other TPF
move research and innovation forward 10 open solicitations. Of these projects, studies that have helped to transform the
to meet the Nation’s diverse transpor- 116 were State DOT led, and 56 were transportation industry. TPF-5(165), TPF-5
tation needs. For more than 45 years, FHWA led. TPF research topics span safety, (217), TPF-5(366), and TPF-5(468) have
the Transportation Pooled Fund (TPF) pavements, bridges, design, equity, climate, all researched different topics related to the
Program has enabled public and private sustainability and much more! performance of Ultra High-Performance
entities to combine resources to conduct The TPF Program also allows for knowl- Concrete (UHPC). UHPC is the most
high-priority research on a variety of shared, edge transfer across partners. In addition technologically advanced concrete available
highway-related problems. to an assigned FHWA technical liaison, today. It is five times stronger and 10 times
In this issue of Public Roads, one of the each study forms a Technical Advisory more durable and longer lasting than
feature articles, “Transportation Pooled Committee, which includes agency repre- bridges built using conventional concrete.
Fund Program: Advancing Research sentatives and subject matter experts from There are over 200 bridges in the US built
through Innovation,” showcases how the all participating agencies. Participants learn with UHPC. These studies have helped
TPF Program helps produce research and from others’ experience and form connec- to provide further research to bring this
innovation on a variety of important trans- tions that not only assist with that specific technology to the forefront of US bridge
portation topics. research but can benefit their work in other engineering design and construction.
The TPF Program provides a mecha- areas as well. The TPF Program has produced high
nism to allow agencies to partner together Many of the research or innovations value research and innovations that have
to invest in multiple research efforts at produced by TPF studies have been used been adopted and institutionalized by
a fraction of the cost of conducting the to advance the state of practice in their partners and agencies around the world. It is
research alone. A unique benefit of the TPF respective fields. For example, TPF-5(317), a great resource to leverage limited funds to
Program is that it encourages and allows Evaluation of Low-Cost Safety Improve- address important issues. For more informa-
for a variety of partners, including State ments (ELCSI), works with more than tion on how to participate in this exciting,
departments of transportation (DOTs), the 40 participating agencies to help improve high value research program see “Transpor-
Federal Highway Administration, other safety and reduce traffic-related fatalities. In tation Pooled Fund Program: Advancing
Federal agencies, regional and local agen- this study, rigorous before and after testing Research through Innovation,” on page 24.
cies, academic institutions, industry trade is used to evaluate how low-cost, imple-
associations, private industry, and foreign mentable countermeasure approaches reduce
entities. The TPF Program allows those with safety risks. One example of a low-cost
limited research or innovation funding to safety improvement is the use of high fric-
participate in large-scale efforts. By pooling tion surface treatments. With one-quarter Dr. Kelly Regal
funds and expertise, participants maximize of highway fatalities in the United States Associate Administrator for Research,
their return on investment. occurring at or near horizontal curves, high Development, and Technology
FHWA’s Turner-Fairbank Highway friction surface treatments studied under Director, Turner-Fairbank Highway
Research Center Office of Corporate ELSCI have shown significant reduction in Research Center
Research, Technology, and Innovation wet pavement crashes after treatments. The Federal Highway Administration
2 | PUBLIC ROADS | SUMMER 2022
WHAT’S NEW
Computer Vision Research
Drives Real-World Innovation
Intelligent algorithms designed to
support FHWA research are driving
development of new and useful
applications in diverse disciplines.
by MARY HUIE and ADIL ANIS
R esearchers at the Federal Highway Administration
are using extremely large datasets to identify and
understand complex transportation issues that can
impact efficiency, cost, and safety. New automated Caption box white overlayed on photo.
tools for data extraction and analysis are needed © Russ Nemec / Schatz Strategy Group
to help make these massive datasets accessible to
the widest possible range of researchers, academia,
and industry.
The second Strategic Highway Research Program’s FaRO used for privacy analysis and attribute extraction of a user talking on a cell
(SHRP2) naturalistic driving study (NDS) demon- phone while simultaneously tracking from multiple views in the vehicle.
strates the immense scale of data gathered in recent years. Source: U.S. Department of Energy/Oak Ridge National Laboratory.
The study focused on driver behavior and addressed
the notion that it is possible to obtain information on
what people do when they drive on a day-to-day basis. The for enhancing unmanned aerial system capability modeling via
study involved more than 3,000 volunteer drivers and their a portable system that performs on-device object detection and
vehicles, each of which was equipped with four cameras, GPS, avoidance. FaRO is also used by the DOE’s Office of Energy
and various sensors. Over a two-year period, NDS researchers Efficiency and Renewable Energy for controlling access to the
gathered more than 1.2 million hours and more than two peta- network—an application that uses industrial cameras to perform
bytes of data, the majority of which came from video captured real-time video analytics of biometrics data. Other organizations,
by onboard cameras. including a university, a commercial entity, and Federal intelli-
The massive size of the NDS video data resulted in a bottle- gence agencies are now interested in using FaRO. The software is
neck that made traditional methods for identifying and extracting available through an open-source license and is freely distributed.
features of interest in video inadequate. Traditionally, researchers Resultantly, the return on investment of these spinoff uses will
manually logged the location in the video where each feature of continue to increase the value of the public funds invested.
interest was found; however, it is estimated that it would take
almost 600 technicians a full year to manually analyze all the EAR Supports Cutting-Edge Research/Looking Ahead
video in the NDS. FHWA’s goals are both short and long term. In the short term,
FHWA wants to extract value from the NDS data. In the long
EAR Investment in Computer Vision term, FHWA wants to ensure that the data being collected
Computer vision, which uses artificial intelligence algorithms to will improve transportation safety. The EAR Program seeks to
perform visual perception tasks, offers a more efficient method for leverage advances in science and engineering that could lead
analyzing video data. The Exploratory Advanced Research (EAR) to breakthroughs for critical current and emerging issues in
Program has funded computer vision research on SHRP2 safety highway transportation by supporting a community of experts
data at the Department of Energy’s (DOE) Oak Ridge National from different disciplines who have the talent and interest to
Laboratory (ORNL) via an interagency agreement. One of the research solutions but who likely would not do so without
most successful ORNL efforts focused on continuing development EAR Program funding.
of a highly flexible data processing framework for ingesting image
data and coordinating the application of multiple facial recognition MARY HUIE is the manager of the Technology Transfer Program at FHWA’s
models to process that data. This framework includes a variety of Turner-Fairbank Highway Research Center. She holds a B.S. in civil engineer-
machine learning tools, ranging from face detection and character- ing from the Catholic University of America in Washington, DC.
ization to body pose attributes. These tools can be used to detect
facial attributes, such as looking forward and checking mirrors, ADIL ANIS is a program manager working as a contractor with FHWA’s
and expressions or body movements, such as turning or reaching. Technology Transfer Program. He holds a B.S. in computer engineering from
ORNL calls this data processing framework “Face Recognition George Mason University in Fairfax, VA.
from Oak Ridge,” or FaRO.
For more information, see https://highways.dot.gov/research
Innovations Using FaRO Computer Vision Algorithm /research-programs/exploratory-advanced-research/exploratory
There have been several collateral innovations that have resulted -advanced-research-overview or contact Mary Huie,
from the development of FaRO. ORNL has used FaRO internally 202-493-3460, mary.huie@dot.gov
WWW.FHWA.DOT.GOV | 3
INNOVATION CORNER
Every Day Counts: Innovations With Impact! Warm mix asphalt saves time and money, improves
pavement quality, and benefits workers and the environment.
Source: FHWA.
by JEFFREY ZAHAREWICZ
the 2021 summit were the Focus on Reducing Rural Roadway
T he Federal Highway Administration’s Office of Transportation
Workforce Development and Technology Deployment is deep
in the planning process for Every Day Counts (EDC), the agency’s
Departures (FoRRRWD), which aims to address the nearly
12,000 people who die every year in crashes when their cars leave
their travel lane on a rural road, and Safe Transportation for Every
flagship technology deployment program. The seventh round of Pedestrian (STEP), which is advancing the systemic application
EDC (EDC-7) is scheduled for 2023 and 2024 and will highlight of proven, cost-effective countermeasures to help reduce pedestrian
the next portfolio of market ready and proven, yet underutilized, fatalities at both uncontrolled and signalized crossing locations.
practices and technologies. The process of identifying these As many other EDC initiatives have done, both FoRRRWD
innovations brings with it a sense of reflection on the many past and STEP promoted a toolkit of resources and countermeasures
initiatives EDC has helped advance into more widespread and that are adoptable by a wide range of transportation agencies. Both
mainstream use. deployment teams also employed highly creative and innovative
marketing tools, including printable trading cards to explain rural
Warm Mix Asphalt a Game Changer roadway departure crash types and countermeasures, and the
One of the earliest EDC initiatives may also be one of the most STEP UP Campaign, which provided downloadable information
impactful to the transportation industry. Warm mix asphalt for agencies to use in customized news articles, social media posts,
(WMA) is the generic term for a variety of technologies that allow and print items. The teams used these tools, in concert with other
producers of hot mix asphalt pavement material to lower the targeted training and technical assistance activities, to help 42 and
temperatures at which the material is mixed and placed on the road. 51 States, respectively, achieve their deployment goals.
Using WMA can reduce paving costs; extend the paving season; These examples are merely a snapshot of the significant positive
improve asphalt compaction; allow asphalt mix to be hauled longer impact the EDC program has made in accelerating the deployment
distances; and improve working conditions by reducing exposure of innovations and in building a culture of innovation within the
to fuel emissions, fumes, and odors. This technology saves time, transportation community. FHWA is excited to continue the track
promotes good stewardship of human and environmental resources, record of positive impacts with EDC-7. Look for more informa-
and enhances project quality—all hallmarks of EDC innovations. tion in upcoming Innovation Corner features!
As adoption increased, WMA was considered a “disruptive”
technology and a “game changer,” as it required physical modifica- Useful Links:
tions to asphalt mixture plants and significant adaptation of existing • EDC 2021 Virtual Summit
specifications. By the December 2012 conclusion of the first EDC (available through September 2022) https://www.labroots.com
cycle, the WMA deployment team celebrated the achievement of /ms/virtual-event/2021-edc-virtual-safety-summit-series.
their implementation goal—40 State departments of transportation • FoRRRWD: https://highways.dot.gov/public-roads/winter-2021
and all Federal Lands Highway Divisions had either a specification /reducing-rural-roadway-departures-moving-forrrwd-part-ii.
or contractual language allowing WMA on projects. The impact of • FoRRRWD trading cards: https://safety.fhwa.dot.gov
using WMA has only continued to grow since: utilization of WMA /forrrwd/TradingCards/.
technologies in 2019 was 879 percent more than the estimated • STEP: https://www.fhwa.dot.gov/innovation/everydaycounts
16.8 million tons in the 2009 construction season, and asphalt /edc_5/step2.cfm.
produced with WMA technology made up 38.9 percent of the total • STEP UP toolkit: https://safety.fhwa.dot.gov/ped_bike
estimated asphalt mixture market as of 2019. /step/step_up_campaign/.
Significant STEPs FoRRRWD in Safety JEFFREY ZAHAREWICZ is the acting director for the Accelerating Innovation
Safety has been a cornerstone topic throughout the history of program team in the FHWA Office of Transportation Workforce Development
EDC—so much so that FHWA hosted the virtual September 2021 and Technology Deployment.
Safety Summit Series to highlight seven EDC safety initiatives.
This peer exchange included professionals just beginning to learn For more information, see https://www.fhwa.dot.gov/innovation
about those safety innovations, as well as those further along in /everydaycounts/ or contact Jeffrey Zaharewicz at
their deployment journey. Among the initiatives highlighted at jeffrey.zaharewicz@dot.gov.
4 | PUBLIC ROADS | SUMMER 2022
Improving Efficiency and
Safety Through Digital
Infrastructure and
Cooperative Driving
Automation Research
©metamorworks, iStock/Getty Images Plus.
Turner-Fairbank Highway Research Center American Center for Mobility
McLean, VA Ypsilanti, MI
SunTrax
Auburndale, FL
Source: FHWA. Source: FHWA. Source: FHWA.
The Federal Highway Administration is driving the future of
transportation through its national CDA Program.
To prepare for the deployment of automated vehicles on the Nation’s highways, the CDA Program is
leading research on the digital infrastructure necessary to support CDA.
The CDA Program testing activities consider the future impact of CDA concepts on the transportation
system, including the effect of CDA in traffic, reliability, and freight operations scenarios. CDA testing
videos for basic travel, traffic incident management, weather, and work zone scenarios are available
at https://bit.ly/CARMAVideoSeries.
The CARMASM Ecosystem of open-source tools and products enables collaborative research and
development of CDA features and capabilities across the transportation network, setting the
foundation for the safe introduction of CDA technology on our Nation’s roads.
YOU can help shape the future of transportation
by contributing to this critical research.
Learn more at https://bit.ly/CDAProgram,
or email CARMA@dot.gov.
©Sundry Photography, iStock/Getty Images Plus.
Information for Planning and
Consultation (IPaC) Streamlines
Endangered Species Act Reviews
IPaC’s online resources,
including the new
Consultation Package
Builder for creating
biological assessments,
help agencies understand
and document how their
proposed projects will
affect listed species
and critical habitats.
by CHELLBY KILHEFFER and VICTORIA FOSTER
R oad and bridge projects often cross
forests, streams, and other sensitive
plant and animal habitats. Under section
smaller ones without dedicated environ-
mental staff, the process was often compli-
cated and time consuming.
Early Design Consultation
for ESA Compliance
Designing projects while considering
7(a)(2) of the Endangered Species Act To help streamline the consultation potential effects to ESA-listed species and
(ESA), Federal agencies (i.e., action process, USFWS created the Information ESA-designated critical habitats is one of
agencies) are required to consult with U.S. for Planning and Consultation (IPaC) the most effective ways to ensure efficient
Fish and Wildlife Service (USFWS)1 to system—a free, web-based application that section 7 consultation and overall envi-
ensure that actions they fund, authorize, provides up-to-date information on ESA ronmental protection. Early coordination
or carry out are not likely to jeopardize the protected species, helpful templates, and between action agencies and USFWS saves
continued existence of any listed species other useful resources for transportation agencies time and money—project designs
or destroy or adversely modify designated agencies and their partners. Since its incep- consider environmental resources from the
critical habitats. tion, IPaC’s resources have assisted agencies start, the consultation is more efficient and
Along with meeting the requirements across the United States with completing predictable, and agencies avoid costly modi-
of section 7(a)(2), interagency consulta- consultation on thousands of projects. The fications and delays during the planning and
tions with the USFWS help minimize the latest IPaC tool—Consultation Package permitting stages.
negative effects of infrastructure projects Builder (CPB)—provides agencies with USFWS uses tools, like those in IPaC, to
on species and habitats protected under even more support during the early stages of collaboratively solve conservation challenges
the ESA. But for many agencies, especially infrastructure projects. and create opportunities for action agencies
1 Some cases require consultation with the National Oceanic and Atmospheric Administration, but those cases are not covered by IPaC or in this article.
6 | PUBLIC ROADS | SUMMER 2022
The first step in IPaC is to draw the project location on an interactive mapping tool.
Source: USFWS.
and the USFWS field office. Creating section 7 compliance every six months or at
consultation documents through IPaC project development milestones—a process
improves consistency, transparency, and that requires the agency to obtain an up-to-
efficiency for both the action agencies and date OSL. Amy Golden, biological resources
the USFWS. program manager for VDOT, says “One
In IPaC, users begin by drawing their benefit to IPaC is having a central location
project location on an interactive mapping to obtain a project OSL. Prior to IPaC,
tool. IPaC uses the project location to some States would email or write a letter to
gather the relevant information needed to the field office requesting an OSL, which
use IPaC’s tools. The three tools available was time consuming. IPaC makes it easy to
in IPaC are the official species lists (OSLs), obtain an updated OSL for projects.”
determination keys (DKeys), and the new
Consultation Package Builder (CPB).
These tools can be used sequentially or Why Use IPaC?
independently, depending on the action Using IPaC provides several
The candy darter is a small, freshwater fish agency’s needs.
endemic to portions of the upper Kanawha benefits to transportation
River basin in Virginia and West Virginia. agencies:
Source: Ryan Hagerty, USFWS. OSLs
An OSL is a letter from the local USFWS • Available online 24 hours a day,
field office that helps agencies evaluate 7 days a week.
to reduce impacts to the ecosystems of listed potential impacts of their projects. Along • Offers georeferenced analyses.
species through project design. with providing a project tracking number,
the OSL includes a list of candidate, • Updated frequently so tools,
IPaC’s Three Tools: proposed, threatened, and endangered including OSLs, DKeys, and
Streamlining Consultation species, and proposed and designated critical CPB use the latest data.
IPaC helps agencies, their applicants, and habitats that should be considered under
other project proponents prepare for their section 7 of the ESA. • Provides resource lists updated
ESA section 7 consultations during the Depending on field office preferences, in real time.
critical early stages of a transportation OSLs may also include attached lists of • Allows project proponents
project. IPaC facilitates early coordination migratory birds of conservation concern, to store documents and
by providing automated project planning USFWS-managed refuges and fish hatch-
collaborate on project files.
and analysis tools based on the proposed eries, marine mammals, and wetlands and
action’s location, possible trust resources in other aquatic areas of concern under section • Results in more complete,
that location (e.g., ESA listed species, migra- 404 of the Clean Water Act. The ESA better formatted
tory birds, wetlands, marine mammals, and requires an OSL be requested for projects consultation packages.
USFWS-managed lands like refuges and fish conducted, permitted, funded, or licensed
hatcheries), and listed species’ conservation by a Federal agency. • Reduces number of follow-up
needs. IPaC also facilitates communication The Virginia Department of Transpor- questions during the
among action agencies, project proponents, tation (VDOT) reviews projects for ESA consultation process.
WWW.FHWA.DOT.GOV | 7
DKeys CPB responsibilities on more than 123,000 occa-
A DKey is a screening tool provided When there are listed species in the project sions (including OSLs and DKey letters).
through IPaC that can streamline the location that have not been addressed Based on the helpful information in the
consultation process for common project by a DKey, IPaC’s new project analysis DKeys, and—in some cases—through
types. DKeys are based on programmatic tool, CPB, can be used to further analyze additional consultation with the USFWS
biological opinions or standing USFWS the project. CPB, which replaces IPaC’s field office, action agencies were able to
analyses which are designed to assist action formerly available “impact analysis” tool, revise their project designs to avoid previ-
agencies in reaching predetermined consul- walks users step by step through analyzing ously expected adverse impacts to listed
tation outcomes based on an assessment of the potential effects of their project and species and critical habitats. In many of
their project. To use a DKey, an IPaC user assists them in making well-informed effect these instances, after project design revision,
answers a series of questions to determine determinations. The end result is a docu- the action agency was able to finalize their
whether a proposed project qualifies for ment, typically called a biological assessment consultation via a DKey.
an existing programmatic consultation or (BA) or biological evaluation (BE), that can
analysis. DKeys can be restricted to certain be submitted to USFWS for consultation. Case Study 1: FHWA Bats DKey
project types, geographic locations, agencies, Currently, the user must download this FHWA worked with USFWS to develop
or species. If a project qualifies for a DKey, document and submit it by email or mail to a DKey based on a programmatic biolog-
the action agency may receive a consis- the appropriate USFWS field office. ical opinion specifically for transportation
tency or concurrence letter, depending on CPB is an optional tool that is helpful projects that may affect two wide-ranging
which predetermined consultation outcome for many projects in which some species in species of listed bats—the endangered
they reach. the project area have not been covered by Indiana bat and the threatened Northern
Lane Masoud of the Michigan Depart- a DKey as it assists with writing a BA or long-eared bat (NLEB). This DKey—called
ment of Transportation recommends DKeys BE. CPB both prompts users to populate “FHWA, FRA, FTA Programmatic Consul-
to local partners, saying “Many of the all of the information needed to conduct tation for Transportation Projects Affecting
agencies I work with are small, rural road the consultation and provides pertinent NLEB or Indiana Bat”—is intended for
commissions who lack their own envi- information regarding potential effects on projects and activities funded or authorized
ronmental staff. Utilizing IPaC has been species and conservation measures based on by FHWA, Federal Railroad Administration
extremely helpful. The Michigan DKey, the specific work proposed and species in (FRA), and/or Federal Transit Administra-
in particular, has reduced how frequently the area. tion (FTA) that may require consultation
I follow up with an agency to get more with USFWS under section 7 of the ESA.
information. I really appreciate that the IPaC Usage Data and Case Studies Since the FHWA Bats DKey was published
DKeys not only ask questions, but also In fiscal year 2021, IPaC assisted Federal in 2018, use of this DKey accounts for
provide guidance.” agencies in carrying out their ESA section 7 about 40 percent of all projects assessed
by DKeys.
For projects within the range of these
two bat species, FHWA, FRA, FTA, and
their designated representatives begin the
consultation process by using IPaC to deter-
mine whether their project is covered by this
DKey. In FY2021, the DKey assisted users
with making the determination that 1,568
projects would have no effect on these two
bat species, and it allowed them to complete
consultation on an additional 1,688 trans-
portation projects that may affect these
two bat species through IPaC. Screening a
project in IPaC often takes about an hour,
and projects are easy to update. For projects
where no other listed species or critical
habitats were identified, the Federal agency
needed no further coordination with the
USFWS. For more information about this
DKey, see https://www.fws.gov/node/266042.
Case Study 2: Using CPB to Create
an Example BA for Similar Projects
IPaC’s CPB can also be used to create a
sample BA that local agencies can use as a
template when consulting with USFWS on
similar projects. In West Virginia, FHWA,
Texas blind salamanders live in total darkness. Although they have eyes, they are located under their skin, leaving
them totally blind. They are only found in Edwards Aquifer in Texas.
in cooperation with the West Virginia
Source: Ryan Hagerty, USFWS.
Division of Highways (WVDOH) and the
8 | PUBLIC ROADS | SUMMER 2022An Indiana bat hibernating on a cave ceiling. Indiana bats hibernate in tight clusters on the ceilings and sides of caves and mines.
Source: Ryan Hagerty, USFWS.
USFWS West Virginia Ecological Services (Salix spp.), Japanese knotweed (Reynoutria a three-span, steel W-beam bridge with a
field office, created an example BA in CPB japonica), and various woody shrubs...” wooden deck supported on two concrete
for a commonly occurring project type— The agency also described the proj- piers…The temporary detour that has
bridge replacement. In the future, this ect’s purpose: been in use since 2017 causes hardship
example BA will be used to develop BAs “The Bolair Bridge has been closed to for the community…This detour was not
for other bridge replacement projects in vehicular traffic since 2017 due to safety designed for the traveling public as a
West Virginia. concerns. The proposed plan is to demolish permanent route.”
By creating an example BA, FHWA has and replace the existing bridge over the WVDOH described how and where
provided partner agencies in West Virginia Gauley River to restore traffic on Webster anticipated stressors would occur
with a clear place to start their analyses. The CR 20/23 in order to maintain residential throughout the project area:
template provides details on the scope and access, school buses, mail, and emergency “Exposure of bare soil during site
sample language expected by the USFWS, services. The new proposed bridge will be preparation activities could increase
as shown in the following excerpts. erosion…The stream characteristics, such
WVDOH described the habitat present as riffles, runs, or pools, will still function
in the action area: Key Terms: normally (USFWS, 2020). Potential habitat
“In West Virginia, the Gauley River rises in changes are possible during construction
the Monongahela National Forest on Gauley
USFWS: U.S. Fish and and restoration activities and will remain
Mountain in Pocahontas County as three Wildlife Service until after restoration is completed and
streams, the North, Middle, and South Forks, ESA: Endangered Species Act fine sediments have been flushed through
each of which flows across the southern the watershed by storm events...We will
extremity of Randolph County and converges OSL: Official Species List use heavy duty silt fencing, silt socks,
in Webster County…Within the project area IPaC: Information for Planning dirt bags, and streambank stabilizing
on the Gauley River, the stream substrate is and Consultation measures to avoid sedimentation in the
composed of mainly boulder and cobble, with project location…”
a good amount of sand… The existing piers DKey: Determination Key WVDOH also analyzed specific effects
are founded on bedrock, which is below a to the candy darter—a small, colorful fish
CPB: Consultation
layer of sand…The riparian zone is somewhat that is key to the local ecosystem. Candy
Package Builder
vegetated and harbors plant life generally darters are listed as federally endangered
associated with riparian corridors, with BA: Biological assessment under the ESA and their conservation needs
typical streamside species such as sycamore include dissolved oxygen, invertebrates,
(Platanus occidentalis), maples (Acer spp.), BE: Biological evaluation spring streamflow, shallow water depths,
black cherry (Prunus serotina), willows NLEB: Northern long-eared bat relatively warm water, and substrate from
WWW.FHWA.DOT.GOV | 91) What is your effect determination for the Candy Darter? This conservation measure is used to address the following effects:
No Effect Direct interactions
This effect determination is not available because you have determined in your analysis that the project will have crushing, deters movement, disturbance, entrapment
effects on listed species.
Critical habitat
Not Likely to Adversely Affect Candy Darter Critical Habitat
All effects are beneficial, insignificant, or discountable. IPaC will facilitate getting concurrence from USFWS.
Beneficial effects have contemporaneous positive effects without any adverse effects to the species or habitat 1) How will How will you implement 'Design Project for Fish Passage'?
Using the implementation suggestions below, compile an implementation plan for ‘Design Project for Fish Passage’.
Insignificant effects relate to the size of the impact and include those effects that are undetectable, not
measurable, or cannot be evaluated.
Discountable effects are those unlikely to occur. If an aquatic barrier cannot be removed or prevented, then design and install structures that will ensure safe, timely,
and effective upstream and downstream passage of fish species and other aquatic organisms, necessary to maintain all
Likely to Adversely Affect life stages of these species. While fish passage structures should be designed to provide passage for a variety of species,
This determination is appropriate for all projects where the effects do not fit in with 'No Effect' or 'Not Likely to focus on providing passage for listed or sensitive species.
Adversely Effect' category. This determination requires formal consultation with USFWS.
Agencies can use the CPB to write conservation measures for the project after
Agencies use CPB to analyze species before making an effect determination. species and critical habitat analyses are completed.
Source: USFWS. Source: USFWS.
small gravel to boulders. Candy darters are IPaC Resources & Contacts The USFWS IPaC team is continuously
often affected by sedimentation, contamina- IPaC has two platforms available for action striving to improve its functionality and
tion, and other changes to rivers and streams agencies to use: production (or live) IPaC tools through new development and incor-
from transportation activities. Considering and beta IPaC. Production IPaC is found at porating agency feedback. The team is also
all effects that were suggested by USFWS https://ipac.ecosphere.fws.gov/ and is intended available to answer questions or schedule
and expected to occur during their bridge to be used for real projects where the action demonstrations. To provide feedback, ask
construction project, WVDOH reached an agency is ready to analyze a project and send questions, or schedule a demonstration,
effect determination of “likely to adversely official documents to USFWS. On produc- please contact fwhq_ipac@fws.gov.
affect” for the candy darter. tion IPaC, OSLs and DKey documents are
WVDOH used CPB to write conserva- automatically sent to the local field office CHELLBY KILHEFFER is a biologist on the national
tion measures for the project using language for their review and are logged in USFWS’s IPaC team. Previously, Chellby completed a Ph.D.
suggested by USFWS. One conservation internal project tracking system. in wildlife biology from the State University of
measure was developed for designing proj- Beta IPaC is found at https://ipacb. New York College of Environmental Science and
ects to allow fish passage, thereby reducing ecosphere.fws.gov/ and is intended to be used Forestry and a Knauss marine policy fellowship.
the barrier effects to the candy darter. for testing and training. Beta IPaC has the
The document generated using IPaC’s same functionality as production IPaC, VICTORIA FOSTER is the national IPaC program
CPB contained all the information FHWA but no official correspondence is created coordinator. Previously, Victoria worked on species
and WVDOH needed to complete the or distributed. Beta IPaC is highly recom- conservation issues at State and Federal environ-
review and consultation on this project mended for new users or users who want to mental regulatory permitting agencies in Florida.
with the USFWS West Virginia field office. test different options in the system.
Because the non-Federal partners used CPB USFWS offers several on-demand IPaC See https://ipac.ecosphere.fws.gov/for more
in IPaC, the final document was formatted and ESA section 7 training videos. Links information, or contact the National
consistently with other BAs and much of are available through the IPaC home- IPaC team, fwhq_ipac@fws.gov, or contact
the administrative record was automatically page (https://ipac.ecosphere.fws.gov/) under Daniel Buford with the FHWA, daniel
recorded in the USFWS project-tracking “Helpful Videos.” .buford@dot.gov.
system.
IPaC users can also share the IPaC
project with other non-Federal partners
or FHWA before completing the analysis.
Future projects can follow this template
while filling out CPB (or offline, if needed),
which will streamline review time with the
USFWS West Virginia field office. In the
future, USFWS plans to improve CPB to
allow a user to save templates such as this in
IPaC so users can start their similar project
in CPB from an established template.
Developing an example BA saves the lead
Federal agency (in this case, FHWA) and
the USFWS field office time and resources
because the submitted BA contains the
necessary information from the start. Future
BAs that are written using the example BA
and submitted to FHWA, and subsequently
the USFWS West Virginia field office,
are likely to be considered complete upon
submittal and require less consultation time
to review and revise.
The Colorado hookless cactus is a barrel shaped with funnel-shaped or bell-shaped pink to violet flowers.
Source: Bekee Hotze, USFWS.
10 | PUBLIC ROADS | SUMMER 2022Resources for
Applying Resilience
Concepts to Projects
in River Environments
When in close proximity, rivers and roads interact
in numerous ways, and frequently to the detriment
of both natural and built environments.
Source: FHWA.
The Federal Highway Administration develops resources to aid transportation professionals
with recognizing, understanding, assessing, and accommodating natural river functions.
Preserving and enhancing these functions may lead to more resilient transportation projects.
by ERIC R. BROWN, LAURA GIRARD, and JAMES NEIGHORN
A river presents a particular challenge for Waterway-Road Interactions functions may improve the resilience and
highway projects. Its complex natural and Resilient Design sustainability of highway projects.
conditions and functions vary with both Paul Wirfs, State hydraulic engineer for the FHWA resources identify four primary,
time and location within the river corridor. Oregon Department of Transportation, has natural river functions as follows:
Careful assessment and consideration of spent his career working on infrastructure 1. Conveyance and storage of water,
rivers is paramount for the safe, resilient, projects. “It is vitally important to under- sediment, wood, and debris.
and ecologically sensitive planning, design, stand the dynamics of the natural and 2. Channel evolution, including side-
and operation of highways. built environment,” says Wirfs. “Today’s to-side and vertical movements.
Federal, State, and local transportation hydraulic engineering professionals are chal- 3. Habitat within the channel,
project teams regularly build highway lenged daily with balancing environmental along the streambank (riparian)
projects in river environments. To meet and infrastructure considerations while also zones, and in the floodplain.
the needs of these diverse teams, FHWA providing practical design solutions. The 4. Connectivity of the channel in the
is developing a variety of high-quality riverine environment must be treated like a long-stream (direction of flow),
resources and engaging, interactive living organism in order to provide resilient lateral, and vertical directions.
training—including online and instructor- hydraulic engineering solutions.” The FHWA resources introduced in this
led courses, immersive and virtual reality FHWA courses and related resources article explain how project planning and
(VR) experiences, videos, and protocols—to focus on core themes of river science. One design efforts that preserve and restore these
help teams acquire the knowledge they need prominent theme upholds that the preser- river functions in a holistic manner may
to be successful. vation and enhancement of natural river significantly reduce adverse interactions
WWW.FHWA.DOT.GOV | 11Example Benefits of Preserving Natural River Functions
between rivers and infrastructure. Preserving
natural river functions has many poten- Example Infrastructure
tial benefits, including lowered risk of Natural River Function Description Benefits by Preserving
roadway overtopping, less erosion and more River Function
stable stream banks, and reduced scour at
bridge foundations. Conveyance and River channels move water, which in Maintaining channel and
storage (water, sediment, turn carries sediment, wood, and debris. floodplain conveyance and
Transportation Infrastructure wood, and debris) Floodplains temporarily move and store storage may lower risks of
and Aquatic Organism Passage water, sediment, and wood during bridges and culverts becoming
Another important theme covered by floods that crest the channel banks. plugged with sediment and wood,
FHWA resources is Aquatic Organism which could trigger roadway
Passage (AOP). Effective AOP (through overtopping and other failures.
stream reaches and bridge and culvert open-
ings) relies on connectivity, and specifically Evolution Natural rivers continually move from Allowing for some space
long-stream connectivity. When bridges (changing location, side-to-side (lateral migration) adjacent to the existing channel
and culverts disrupt natural flow patterns, planform shape as and adjust their bed elevations for channel evolution to occur
fish and other aquatic life may be cut off seen from above, and (aggradation is upward movement may avoid triggering some
from large swaths of the habitat they use for vertical profile) and degradation is downward unintended up- and downstream
spawning and feeding. movement) as soil is eroded in one soil erosion and deposition
In the United States, restoring AOP at location and deposited in another. resulting from infrastructure in
bridge and culvert locations is increasingly and adjacent to the channel.
a priority, as evidenced by the proliferation Habitat Vegetation, woody material, rocks, Natural habitat and features may
of laws and regulations, design procedures, (within the channel, overhanging banks, and other natural promote stable stream banks,
and increasing project expenditures aimed streambank riparian materials and features provide for example deep, dense root
at improving ecological connectivity and zone, and floodplain) nutrients, shade, shelter, and spawning masses of vegetation effectively
restoring natural river conditions. Infra- areas to fish and other aquatic life. hold soils in place. Stable
structure owners and environmental agen- vegetated banks have a lower
cies continue to seek improved AOP design risk of erosion and movement.
approaches to road-stream crossings that
produce measurable results. Connectivity Rivers in natural conditions allow for River connectivity allows flood
(long-stream, lateral, the movement of water, sediment, flow energy to spread into the
Riverine Projects Require and vertical) wood, nutrients, and aquatic floodplain, potentially lowering
Multidisciplinary Teamwork organisms up- and downstream scour (erosion) potential
Highway projects in river environments (long-stream), into and out of at bridges and culverts.
require close collaboration among many floodplains (lateral), and in and out
of underlying aquifers (vertical).
Natural river functions include floodplain and long-
stream connectivity, evolution, habitat, and conveyance
and storage of water, wood, and sediment.
Source: FHWA.
12 | PUBLIC ROADS | SUMMER 2022These two “perched” (outlet higher than the streambed) culverts may act as barriers to AOP, thereby disrupting long-stream connectivity and habitat functions
of a river or stream. Fish trying to swim upstream would likely be unable to navigate the jump heights and the shallow water depths in the culverts.
Source: FHWA.
offices, disciplines, and skill sets to realize FHWA Training and Resources adopts a holistic assessment approach
successful outcomes. Multidisciplinary FHWA maintains an abundance of tech- by illustrating not only the effects of
teamwork necessitates that project members nical information and training resources rivers on roads and bridges, but also the
with a wide range of experience and duties related to river science and engineering, the effects of roads and bridges on rivers and
have knowledge of key river science vocabu- majority of which may be accessed through their floodplains.
lary and concepts. the agency’s hydraulic engineering website Instructor-led training course NHI
Greg Bergquist, environmental protec- (https://www.fhwa.dot.gov/engineering 135097, Roadway Interactions with Rivers
tion specialist with the FHWA Central /hydraulics/). The sheer volume of and Floodplains, is another companion
Federal Lands Highway Division, recognizes information may seem daunting to course to HEC-16 that will be available
how multidisciplinary teams develop holistic the inexperienced. in fall 2022. It provides overviews of the
and resilient transportation projects, empha- FHWA recognizes the specific needs following topics:
sizing the specialized knowledge required of new learners. The Rivers and Roads • Federal policy pertaining to highways
for river environments: “Understanding (R&R) Connection initiative (introduced in the river environment.
river and stream processes and considering in the Autumn 2020 issue of Public Roads • Concepts important for planning,
how those processes affect the built envi- Magazine) is primed to help novices in river design, construction, and maintenance
ronment are essential in the holistic design science and engineering quickly learn funda- of transportation infrastructure in
of transportation infrastructure in and mental, practical knowledge and procedures. river settings.
around waterways.” A recently completed R&R product • Practical tools in hydrology and
Bergquist notes teams that share a is the National Highway Institute (NHI) hydraulics, fluvial geomorphology
framework for understanding river func- Web-based training course 135096, (i.e., river science), and sediment
tions can communicate and collaborate Roadway Interactions with Rivers and transport modeling.
more effectively. “Interdisciplinary design Floodplains: Basic Concepts. This free • River biology.
teams can consistently assess the root causes training introduces participants to river • Specialty topics including flows at river
of conflicts between infrastructure and the terminology and functions, river-infrastruc- confluences, ice flows, wood in rivers,
river environment by utilizing structured ture interactions, and resilient design in human-generated debris, water quality,
frameworks to evaluate river functions,” river environments. invasive species, beaver activity, mud
Berquist says. “These frameworks can foster A new FHWA technical manual, and debris flows, alluvial fans, tidally
opportunities for improved communication Hydraulic Engineering Circular 16 (HEC- influenced and tidally dominated
and collaboration in determining solutions 16), Highways in the River Environment: rivers and streams, and inspection
that are both resilient and context sensitive.” Roads, Rivers, and Floodplains, Second and monitoring.
Engineers and environmental scientists Edition, will be available in fall 2022. HEC-16 and the two NHI courses
may, through education and experience, be Together, this new manual and course constitute a “starter kit” for quickly training
well equipped for working in and around 135096 provide engaging entry points individuals in the basics of river science
river settings; however, other professions for learners with limited time and who and engineering.
often lack the knowledge, tools, and confi- may initially feel intimidated by river
dence to practically apply key river science science. HEC-16 provides information for Field Scoping Videos
concepts to their projects. So how do trans- understanding, assessing, and addressing To complement the technical manual and
portation professionals new to river science interactions between river functions and courses, FHWA recently completed a series
and engineering get up to speed? transportation infrastructure. The manual of five videos titled “Hydraulic Engineering:
WWW.FHWA.DOT.GOV | 13The Elwha River VR site visit provides workshop
participants opportunities to explore several locations
Large river crossings, such as the U.S. 101 bridge over the Elwha River in northern Washington State, present ideal within the river to assess natural functions and
opportunities to study river ecology, functions, and both positive and negative interactions with infrastructure. changes resulting from two dam removals.
© 2021. Casey Kramer. Source: FHWA.
Field Scoping Videos” to help teams identify Downstream of the crossing are the aquatic organisms, FHWA Federal Lands
and categorize problems observed during recently deconstructed Elwha Dam and the Highway Division staff led an effort to
project visits. The videos are intended to confluence with the Strait of Juan de Fuca. develop a multi-stage AOP monitoring
introduce good practices and procedures of The dam removals fostered the return protocol. The protocol, which was field
project reconnaissance (such as visual field of long-stream connectivity and salmon tested in 10 States, consists of a stream
assessment, data collection, and data inter- migration, sediment and wood conveyance, assessment based on observations and
pretation) necessary for the hydraulic design and habitat reestablishment. As natural river measurements by a multidisciplinary team
and maintenance of transportation infra- functions returned, flow conditions at the of two or three trained staff (e.g., engineers
structure. The specific field scoping video U.S. 101 bridge also changed. Through and biologists) using available and easy to
topics cover bridges, river and stream chan- the VR experience, workshop participants use tools. Required data includes channel
nels, highway drainage (culverts, ditches, will travel to the bridge site to explore river and structure (bridge or culvert) geom-
medians, pavements, and storm drains), channel lowering, large wood material etry, slope, bed material composition, and
drainage maintenance projects, and pre-field buildup at the bridge piers, and other results features that may potentially limit passage.
visit data collection. The videos are available that necessitate actions by the bridge owner. These data are collected in both up- and
at https://www.fhwa.dot.gov/engineering They will also learn about tools and tips for downstream channel reaches and within
/hydraulics/media.cfm. conducting river assessments. The Elwha crossing structures.
River VR site visit also touches on AOP, The protocol developers created inspec-
Elwha River Immersive Workshop using salmon migration as an example. tion forms compatible with mobile plat-
FHWA is also finalizing development of forms and for use on tablets or phones.
the one-day Stream Technology Immersive AOP Monitoring Protocol Future users may modify the forms to suit
Learning Environment (STILE) workshop, Another FHWA activity dives into the their specific needs. Use of readily available
currently scheduled for completion during details and nuances of AOP. To assess the personal equipment and mobile devices with
summer 2022. This workshop will teach effectiveness of culverts and bridges to pass GPS capabilities allows teams to quickly
basics of river functions and river-road inter-
actions through the use of a physical stream
model (known as a stream table) and a VR
site visit of a river crossing, the U.S. 101
bridge over the Elwha River in northern
Washington State. To view a short stream
table demonstration, please visit https://www
.youtube.com/watch?v=FeLff5a8MeE.
The Elwha River offers an ideal learning
environment to examine essential river
system considerations and river-road
interactions. Olympic National Park and
the recently deconstructed Glines Canyon
Dam lie upstream of the U.S. 101 bridge.
Large wood and sediment collect at the U.S. 101
bridge piers. Changes in any river system may
alter local conditions at highways, bridges, and
culverts, which may necessitate assessment and
possible remediation by infrastructure owners.
Source: FHWA.
14 | PUBLIC ROADS | SUMMER 2022You can also read
