PROGRAMMATIC AGREEMENT
Among
The Federal Highway Administration
The State Historic Preservation Officer, and
The Iowa Department of Transportation
Regarding
Implementation of All Highway Projects Affecting Historically Significant
Segments of the LINCOLN HIGHWAY CORRIDOR IN IOWA
WHEREAS, the Iowa Division of the Federal Highway Administration (FHWA), administers ongoing annual appropriations of Federal Highway funding to the Iowa Department of Transportation (Iowa DOT) and the Iowa DOT may choose to use some part of that funding for ongoing programs to reconstruct, rehabilitate and maintain the various segments of the Lincoln Highway in Iowa; and
WHEREAS, the FHWA has determined that as a whole the Lincoln Highway in Iowa does not retain a high degree of integrity; however, some segments of the original Lincoln Highway do retain a high degree of integrity regarding original road design, landscape and historic driving experience and are considered eligible for listing on the National Register of Historic Places; and
WHEREAS, the FHWA and the Iowa DOT has determined that the reconstruction, rehabilitation and maintenance projects may have an effect upon the historic segments of the Lincoln Highway; and
WHEREAS, the FHWA and Iowa DOT have consulted with the Advisory Council of Historic Preservation (Council) and the Iowa State Historic Preservation Office (SHPO) pursuant to 36 CFR 800.14 of Section 106 of the Historic Preservation Act (revised 2001); and
WHEREAS, the Counties and Cities responsible for the maintenance of the historic segments of the Lincoln Highway have been consulted and invited to concur in this Programmatic Agreement;
WHEREAS, the Lincoln Highway Association of Iowa is a recognized interested party in the rehabilitation and maintenance of the historic segments of the Lincoln Highway have been consulted and invited to concur in this Programmatic Agreement;
NOW, THEREFORE, the FHWA, Council, SHPO, and Iowa DOT agree that the federally funded undertakings affecting the Lincoln Highway shall be administered in accordance with the following stipulations to satisfy Section 106 responsibility.
Stipulations
FHWA will ensure that the following measures are carried out:
Process
- The FHWA/Iowa DOT will maintain a list of all the segments of the Lincoln Highway corridor that are considered eligible for the National Register of Historic Places as they retain a high degree of integrity of original road design, landscape and historic driving experience as agreed upon by the Iowa SHPO. [Appendix A]
- For all federally funded undertakings on all the segments of the Lincoln Highway route, FHWA shall follow the normal Section 106 process in accordance with the existing Programmatic Agreement between FHWA, IDOT and SHPO for the normal Section 106 Process; however, for segments of the Lincoln Highway route that are considered not eligible for listing on the National Register of Historic Places, the undertaking's effect on the Lincoln Highway route will not be considered significant.
- Federally funded undertakings that affect segments of the Lincoln Highway, listed as National Register eligible, shall be administered according to the plan titled "Engineering Strategies for the Management of Historic Segments of the Lincoln Highway within the State of Iowa" developed by the parties of this agreement.
Administration
1. Personnel Qualifications - Iowa DOT shall ensure that all cultural resource survey work shall be carried out by or under the direct supervision of a person(s) meeting, at a minimum, the Secretary of Interior's Professional Qualifications Standards for archaeologists, architectural historians and historians. (40 FR 44738-9)
2. Late Discoveries - Any unanticipated discoveries of historic properties or archaeological sites encountered during implementation of an undertaking shall be dealt with according to 36CFR 800.13(b).
3. Protection of Human Burials - All human burials in the State of Iowa are protected by law. In the event that human remains or burials are encountered during archaeological investigations or construction activities, the FHWA shall cease work in the area, take appropriate steps to secure the site, and notify officials at the Burials Program at the Office of the State Archaeologist or the Iowa Department of Health.
If the remains appear to be ancient (i.e., older than 150 years), the burial is legally protected under Chapters 263B and 716.5 of the Iowa Code, and the Office of the State
Archaeologist shall have jurisdiction until the cultural affiliation of the remains can be determined and their disposition can be arranged in consultation with the American Indian Tribe determined to be lineal descendants, following the provisions of the Native American Graves Protection and Repatriation Act (25 U.S.C. 3001 through 3005). If the remains appear to be less than 150 years old, the burial is legally protected under Chapters 144.34, 566 and 716.5 of the Iowa Code and would fall under the jurisdiction of the Iowa Department of Public Health.
4. Monitoring - The Iowa SHPO may monitor activities carried out pursuant to this Programmatic Agreement. The Advisory Council may review such activities if so requested.
5. Amendments - Any party to this agreement may amend this agreement upon written request; whereupon, the parties will consult to consider the amendment.
6. Dispute - Should any party object to any action proposed or manner in which this agreement is implemented, FHWA will consult with the objecting party to resolve the objection. If FHWA determines within 30 days that such objection(s) cannot be resolved, FHWA will consult with the Council according to 36 CFR 800.2(b)(2). Within 30 days after receipt of all pertinent documentation, including FHWA's proposed response to the objection, the Council shall exercise one of the following options:
- Advise FHWA that the Council concurs with FHWA's proposed response;
- Provide FHWA with recommendations, which FHWA shall take into account in reaching a final decision regarding the response to the objection; or
- Notify FHWA that the objection will be referred for comment pursuant to 36 CFR Part 800.7, and proceed to refer the objection and comment. The resulting comment shall be taken into account by FHWA in accordance with 36 CFR 800.7(c)(4) and Part 110(1) of NHPA.
7. Public Objection - Any time during implementation of the measures stipulated in this agreement, should a member of the public object to such measures or manner of implementation, FHWA shall notify the parties of this agreement and take the objection into account, consult with the objector and if requested by the objector, consult with any of the parties of this agreement to resolve the objection.
8. Notification - According to 36CFR 800.3(f), the Iowa DOT will notify the Iowa Lincoln Highway Association of federally funded proposed projects on segments of the Lincoln Highway listed as National Register eligible (see Appendix A), which may include privately owned historical properties, as early in the budgeting, planning or design process as possible. The notification to the Lincoln Highway Association would be to a single, permanent address of the Lincoln Highway Association.
9. Duration - This agreement will be null and void if the terms have not been reviewed and documented by the parties within a five (5) year time period from the date of execution. In such event FHWA shall notify the parties to this agreement and if it chooses to shall re-initiate a review.
10. Termination - Any party may terminate this agreement by providing thirty (30) days written notice to the other parties, provided that the parties will consult during that period prior to actual termination to seek agreement on actions to avoid the termination. In the event of termination, the FHWA/Iowa DOT will comply with 36 CFR 800.4 through 800.6 for every individual undertaking covered by this Programmatic Agreement.
Execution and Implementation
The execution and implementation of this Programmatic Agreement evidences that the FHWA has taken into account the effects of undertakings on historic segments of the Lincoln Highway.
| Federal Highway Administration Signed by: Mike LaPietra, FHWA |
Date: 5/22/06 |
| Iowa Department of Transportation Signed by: Mark Kerper, Office of Location & Environment |
Date: 4/10/06 |
| Iowa State Historic Preservation Office Signed by: Lowell Soike, Iowa State Historic Preservation Officer |
Date: 4/17/06 |
Programmatic Agreement
Lincoln Highway Corridor within Iowa
Signing the concurrence line of this programmatic agreement signifies that this agency is in agreement with the manner in which undertakings that affect the historic segments of the Lincoln Highway within our jurisdiction will be developed and meet the requirements of Section 106 of the Nation Historic Preservation Act as revised in 2001.
Concurring Party
Signed by: Vance R. Becker
President, Iow Lincoln Highway Association Date: June 17, 2006
Signed by: Wayne E. Clinton
Chair, Story County Board of Supervisors, Nevada Date: June 27, 2006
Signed by: James M. Houser
Linn County Date: June 7. 2006
Signed by: Jerry Bopp
Mayor, City of Wheatland Date: July 7, 2006
Signed by: Roger L. Ochs
Mayor, City of Chelsea Date: July 1, 2006
Signed by: Linda K. Coppess
City of Mechanicsville Date: June 20, 2006
Signed by: John W. Foley
Mayor, City of Colorado Date: May, 27, 2006
Signed by: Nathan Marht
Mayor, City of Denison Date: June 6, 2006
Signed by: James R. Daily
Mayor, City of Belle Paine Date: June 6, 2006
Signed by: Lewis Todtz
Board of Supervisors (Chair) Clinton County Date: June 5, 2006
Signed by: Michael S. Foutch
Mayor, City of Logan Date: June 27, 2006
Signed by: Curt Kline
Mayor, City of Dunlap Date: May 30, 2006
Signed by: Reuben R. Wenddt
Mayor, City of Lowden Date: May 30, 2006
Programmatic Agreement
Lincoln Highway Corridor within Iowa
Historic segments of the Lincoln Highway pass through the listed Counties and Cities. Each of the listed jurisdictions were given the opportunity to concur with this Programmatic Agreement. Their participation or lack of participation does not affect the validity of this agreement.
Clinton County
Cedar County
Lynn County
Benton County Tama
County Marshall County
Story County
Boone County Greene County
Carroll County Crawford County
Harrison County
Pottawattamie County
Wheatland
Lowden Mechanicville
Mt Vernon
Lisbon
Belle Plane
Chelsea Tama
State Center
Colo
Ogden
Scranton Jefferson Glidden Denison Arion
Woodbine
Dunlap Logan
Engineering Strategies
for Management of
Historic Segments of the Lincoln Highway
within the State of Iowa
1. Introduction
The FHWA, Iowa DOT and SHPO recognize that the Lincoln Highway corridor is part of our historic heritage. Much of the route has been modified through the development of modern safe transportation facilities and no longer qualifies for inclusion in the National Register of Historic Places. However, there are a number of segments of the Lincoln Highway route that retain significant integrity to qualify for the National Register of Historic Places. This strategic plan proposes recommendations for maintaining and/or rehabilitating those segments that are historically significant while balancing the need to retain the features that qualify the route for the National Register.
2. Authority
Section 106 of the National Historic Preservation Act requires states to take into account the effects of federally funded or permitted undertakings upon historic properties and allow the Advisory Council on Historic Protection an opportunity to comment.
According to Iowa Code 314.24 cities, counties and the Department of Transportation shall to the extent practicable preserve and protect the historic heritage of the state in the design, construction, maintenance and repair of the roads, streets and highways. Damage and destruction shall be avoided and state agencies shall use reasonable alternatives if available at no significantly greater cost.
According to the Iowa Code 303.2, state agencies that own, manage or administer historic properties must enter into a 28E agreement with the Department of Cultural Affairs to insure proper management, maintenance and development of the historic properties.
3. Goal
This strategic plan is designed to establish appropriate management practices to maintain and rehabilitate segments of the Lincoln Highway that has been determined to retain sufficient integrity to qualify for inclusion on the National Register of Historic Places.
4. Types of resources to be managed
The Lincoln Highway has been evaluated from many perspectives including the original road design geometrics - the traveled road way width, shoulder width, ditch width and depth, and right of way; road way features - bridges, culverts, road markers, fences and signs; landscape and land use; and transportation related buildings - gas stations, garages, cafes, hotel/motels and cabin courts. Historic districts and landscapes of which the Lincoln Highway may be an element should also be considered.
The significant routes may be paved, gravel, dirt or abandoned roads. The paved roadways have been divided into categories of rural local or rural collector. The rural collectors have been functionally categorized according to average daily traffic (ADT); less than 400 ADT, greater than 400 and less than 2000 ADT and greater than 2000 ADT.
Private parties may own historically significant structures related to the Lincoln Highway. This strategic plan will not apply to such properties unless a federally funded project would affect them.
5. Activities that will not adversely impact historic resources
It is essential for public transportation facilities to be properly maintained for the safety of the motoring public. On non-paved segments of the Lincoln Highway, most contemporary maintenance activities that retain the original roadway geometrics features should not adversely affect the historic nature of the route. Examples of these features include road and shoulder width, cross-slope or roadway crown, and ditch cross section. Applying additional granular material, cleaning ditches, mowing and brush/tree removal should not adversely affect the historic nature of the Lincoln Highway. It is recommended that local/regional quarries be used to obtain the appropriate type of granular material, in order to match existing granular surfacing on roadways where additional material is needed. [See exhibit 1]
6. Activities that are considered an adverse effect
The engineering technology of early twentieth-century roadway is a common thread that links Lincoln Highway resources across the state. Changing design features of that early technology such as the travel width, shoulder width, increasing the right of way beyond 100 ft, replacing original bridges and culverts could be considered adverse affects.
Retaining the drivability of the current Lincoln Highway route is a priority. Retain, as much as practical, the alignment that illustrates many elements of the early 20th century driving experience - the engineering and construction techniques, following a Jeffersonian grid and cultural landscapes or landforms, and riparian system. The retention of the horizontal and vertical alignment reveals these relationships to the traveler. If realignment or abandonment is necessary, strive to retain the original features for interpretive value.
When safety issues dictate the need to reconstruct an historic road, context sensitive design practices must be considered. For example, resurfacing PCC pavement with asphalt could constitute an adverse effect, while a preferable context sensitive design could be to overlay the roadway with bonded or un-bonded concrete and white-topping or ultra-thin white-topping.
Other types of context sensitive strategies to consider:
- When widening is necessary, score the new pavement at the original width to give a sense of early 20th century driving experience.
- Use new cable guardrail technology.
- Pave the shoulder with colored concrete.
- Tile the ditch bottom to allow for a shallow gentle slope retaining the visual feel of the original cross section.
- Use snow fence to compensate for lack of deep ditch snow storage.
- Use a 11/2 :1 foreslope? where possible. If site specific safety or hydrologic issues exist, a more contemporary slope may be graded.
- Maintain a roadside vegetation program of grasses and forbs Allow vegetation to grow to the edge of the traveling surface.
- Maintain a 66 foot right of way delineated by fence, mowed edge, crop cultivation or utility poles where possible. If safety issues require wider right of way, retain a perceived relationship of scale and material to delineate a historical visual and driving experience.
- For maintenance and rehabilitation [see Exhibit 1]
Bridges and culverts that retain unique design and symbolism associated with the Lincoln Highway, and those designed by Conde B. McCullough contribute to the historic integrity of the Lincoln Highway. Before considering replacement explore options such as:
- One-lane designation
- Develop alternate routes for oversized/heavy equipment
- Line pavement with edge markings
- Use roadside delineators
- Install object markers
- Use warning signs
- Install guardrails
If avoidance strategies are not feasible, consider minimization through recommended context sensitive rehabilitation strategies. Consider the use of new bridge engineering technologies using state-of-the-art materials such as:
- Arch reinforcement,
- Railing reinforcement with epoxy-grouted rods,
- Barrier curb installation,
- Composite plate reinforcement,
- Fiber reinforced polymer honeycomb
- Cellular fiber reinforcement plastic sections
Managing the resources within the right of way through context sensitive designs that mitigate impacts of improvements solidify the linking thread as a significant, unique resource for the state. Cutting edge engineering strategies that built the first transcontinental highway became the modern equivalent of applying state-of-the-art engineering technologies to improve the roadway while retaining the characteristics that most exemplify the tradition of the Lincoln Highway.
7. How to proceed if adverse impacts cannot be avoid
If minimization or avoidance is not feasible and a historic property must be replaced, follow the Section 106 guidelines (36CFR800.6) of consulting with SHPO, FHWA,DOT and interested parties to resolve the adverse effect through the determination of
appropriate mitigation measures for the specific historic property. Mitigation measures could include documentation of the historic and engineering technologies of the existing structure and the new technologies utilized in the new facility, context sensitive enhancements for the new facility, or measures that heighten public awareness of the Lincoln Highway.
8. Further information
For more detailed discussion of recommendations pertaining to the Lincoln Highway, please refer to the "US Route 30 - Lincoln Highway Corridor Management Plan - Iowa" prepared by the Landscape Architecture Department at Iowa State University for FHWA and the Iowa DOT.
| Dirt road E-MR | Gravel Maintenance G-M | Gravel Rehabilitation G-R | |
|---|---|---|---|
| Blade the roadway | Seasonal, Spring/Fall | Shape, drainage, Straight cut edge | Reshape surface & shoulder |
| Ditch Vegetation | Mow | Mow | Mow |
| Existing road width | Retain | Retain | Retain |
| Quarry material | Regional | Regional | |
| Re-gravel | Spot or sections | Regional source | |
| Roll compaction | Yes |
| Rural local P-L | Rural Collector P<400 ADT | Rural Collector 400<P<2000 ADT | Rural Collector P>2000 ADT | |
|---|---|---|---|---|
| Base material | Original | Original | Original | Original |
| Pave | PCC | PCC | PCC | PCC |
| Roadway width allowing for expanded horizontal curves | @ existing width | @ existing width | 22 ft | 24 ft |
| Shoulders | Earth | 4-8 ft stabilized earth | 4-8 ft stabilized earth | 4-8 ft stabilized earth |
| Horizontal curves | Expanded width allowable | Expanded width allowable | Expanded width allowable | |
| Clear zone | 0 ft | 0-10 ft | 10 ft or as required by accepted guidelines |
REHABILITATION STRATEGIES
Unpaved Roads Recommendations:
Earthen Roads Maintenance/Rehabilitation
E-M/R
- Blade seasonally (Spring and Fall)
- Mow roadside vegetation seasonally
- Retain existing width
Gravel Roads Maintenance
G-M
- Continue the use of materials from regional quarries
- Keep proper shape, drainage, straight cutting edges through
- seasonal blading and adding gravel
- Maintain by "spot graveling" or re-graveling entire sections
Gravel Roads Rehabilitation
G-R
- Continue the use of materials from regional quarries
- Reshape surface and shoulder
- Roll surface for compaction and improvement of the finished surface, if feasible
Paved Roads Recommendations: Resurfacing/ Restoration/ Rehabilitation
Rural Local Roads
P-L
- Retain original base materials where feasible
- Pave with Portland Cement Concrete
- Resurface/Restore/Rehabilitate pavements at existing roadway width
- Allow 4-8' stabilized earth shoulders
Rural Collectors (Major and Minor)
P<400
Low Volume Road. ADT Below 400
- Retain original base materials where feasible
- Pave with Portland Cement Concrete
- Resurface/Restore/Rehabilitate pavements at existing roadway width
- Allow for 4-8' Stabilized Earth Shoulders
- Allow for expanded cross section at horizontal curves
- Allow for a clear zone at 0'
Rural Collectors (Major and Minor)
400<P<2000
Moderate Volume- ADT400-2000
- Retain original base materials where feasible
- Pave with Portland Cement Concrete
- Allow for a 22' Traveled Way
- Allow for 4-8' Stabilized Earth Shoulders
- Allow for expanded width at horizontal curves
- Allow for clear zone at O'-IO' where feasible
Rural Collectors (Major and Minor)
P>2000
High Volume. ADT over 2000
- Retain original base materials where feasible
- Pave with Portland Cement Concrete
- Allow for 24' Traveled Way
- Allow for 4-8' Stabilized Earth Shoulders
- Allow for expanded width at horizontal curves
- Clear zone at 10', or as required by accepted guidelines
| ISU Report (Appendix D) | Ratings | ||||||||||||||
|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|
| ISU rank | In PA | pages | Rt # | County | Route Discription | Gravel Miles | Paved Miles | Cities to include | Driving Experience | Structures | Road Design | LS Integrity | Rehab Strategy | Threat | local interest |
| 1 | y | 5 | 17 | Clinton | 245th St./250th St./220th Ave, from Grand Mound to Calamus | 6 | h3 | h | h3 | h | G-M | ||||
| 1 | y | 13 | 17 | Clinton | 235th St, from Syracuse Wildlife Area to West County Line | 6 | Wheatland | h1 | br | h1 | h | p<400 | |||
| 1 | y | 9 | 17 | Cedar | East County Line to West of Lowden includes Washington Ave and 155th St. | 1 | 1 | h3 | h3 | h | G-M/ p-<400 | aband. | |||
| 9 | y | 99 | 16 | Cedar | Old Lincoln Highway west of Mechanicsville | 3 | Lisban and Mechanicville | h3 | h | h3 | h | G-M | m | ||
| 9 | y | 101 | 16 | Cedar | Old Lincoln Highway east of Mechanicsville | 2 | m3 | h | m | G-M | |||||
| 6 | y | 69 | 15 | Linn | Bloomington Road, from W. Mount Vernon Road to Squaw Creek Park | 4 | Mount Vernon and Lisbon | h1 | br/culv | h | h | G-M | h | ||
| 14 | y | 145 | 12 | Tama | Lincoln Highway Bridge (only) | Chelsea and Tama | n/a | h-br/café | l | h | |||||
| 5 | y | 59 | 11 | Marshall | 230th Street from intersection with 235th St. to State Center | 8 | State Center and Marshalltown | h1 | culv/br | h | h | G-M | |||
| 11 | y | 123 | 10 | Story | Lincoln Highway at Colo (Diamond Interchange) Niland's Corner, UP underpass | <1 | Colo | gas/café/ motel | h | l | |||||
| 3 | y | 39 | 8 | Boone | 210th Street from West County Line to Ogden | 7 | Ogden and Beaver | h1 | br | h | h | G-M | |||
| 10 | y | 107 | 9 | Boone | 210th & 220th Street & U Ave east of Highway 17 to County Line | 9 | 1 | h1 | h | m | G-M | M | |||
| 3 | y | 41 | 8 | Greene | X Avenue from 222nd Street north to 210th Street | 2 | h1/h2 | h | h | G-M | high | ||||
| 2 | y | 23-25 | 7 | Greene | E39/N65/E53 from Jefferson to Ralston | 15 | Scranton and Jefferson | h1 | br/c, gas, cabin court | h | h | P-400 | high | ||
| 2 | y | 21 | 7 | Carroll | 210th Street from Ralston to Glidden | 4 | 1 | h2 | h | h | G-M | M | |||
| ISU Report (Appendix D) | Ratings | ||||||||||||||
|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|---|
| ISU rank | In PA | pages | Rt # | County | Route Discription | Gravel Miles | Paved Miles | Cities to include | Driving Exper | Structures | Road Design | LS Integrity | Rehab Strategy | Threat | local interest |
| 4 | y | 49 | 6 | Carroll | 200th Street from Carroll to Westside | 11 | 1 | Glidden | h2 | br/c | h | h | G-M | M | M |
| 12 | y | 125 | 5 | Crawford | Q Avenue west of Arion | 2 | m1 | h | m | G-M | m | ||||
| 12 | y | 127 | 5 | Crawford | Lincoln Way from Denison to Arion | 5 | 1 | Denison and Arion | m1 | h | m | G-M | m | ||
| 7 | y | 83 | 4 | Crawford/ Harrison | Dunlap St from Dunlap to US 30 | 3 | m1 | h | m | G-M | |||||
| 8 | y | 89 | 3 | Harrison | L66 and Sprokane/Toledo Ave | 8 | 2 | h2 | h | h | G-M | ||||
| 8 | y | 85 | 3 | Harrison | Stair Steps | 5 | h2 | h | h | G-M | |||||
| 7 | y | 79 | 4 | Harrison | Woodbine | Woodbine | h1 | h | h | ||||||
| 12 | y | 137 | 5 | Harrison | Lima Trail | 1 | Dunlap, Woodbine and Logan | m2 | h | m | G-M | ||||
| 8 | Y | 91 | 3 | Harrison | Niagra Trail | 3 | m2 | h | m | G-M | |||||
| 13 | 133 | 2 | Pottawattamie | Honey Creek Lane | 1 | m3 | h | h | G-M | l | m | ||||
| Total Miles Estimated | 85 | 28 | |||||||||||||
