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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

  1. 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]
  2. 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.
  3. 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:

  1. Advise FHWA that the Council concurs with FHWA's proposed response;
  2. Provide FHWA with recommendations, which FHWA shall take into account in reaching a final decision regarding the response to the objection; or
  3. 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:

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:

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:

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.

Table 1 - Unpaved Roads Maintenance
  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

 

Table 2 - Paved Roads Maintenance and 3R
  Rural local P-L Rural Collector P<400 ADT Rural Collector 400<P<2000 ADT Rural Collector P>2000 ADT
Base materialOriginalOriginalOriginalOriginal
PavePCCPCCPCCPCC
Roadway width allowing for expanded horizontal curves@ existing width@ existing width22 ft24 ft
ShouldersEarth4-8 ft stabilized earth4-8 ft stabilized earth4-8 ft stabilized earth
Horizontal curves Expanded width allowableExpanded width allowableExpanded width allowable
Clear zone 0 ft0-10 ft10 ft or as required by accepted guidelines

REHABILITATION STRATEGIES

Unpaved Roads Recommendations:

Earthen Roads Maintenance/Rehabilitation

E-M/R

Gravel Roads Maintenance

G-M

Gravel Roads Rehabilitation

G-R

Paved Roads Recommendations: Resurfacing/ Restoration/ Rehabilitation

Rural Local Roads

P-L

Rural Collectors (Major and Minor)

P<400

Low Volume Road. ADT Below 400

Rural Collectors (Major and Minor)

400<P<2000

Moderate Volume- ADT400-2000

Rural Collectors (Major and Minor)

P>2000

High Volume. ADT over 2000

ISU Report (Appendix D)   Ratings
ISU rankIn PApagesRt #CountyRoute DiscriptionGravel MilesPaved MilesCities to includeDriving ExperienceStructuresRoad DesignLS IntegrityRehab StrategyThreatlocal interest
1y517Clinton245th St./250th St./220th Ave, from Grand Mound to Calamus6  h3hh3hG-M  
1y1317Clinton235th St, from Syracuse Wildlife Area to West County Line 6Wheatlandh1brh1hp<400  
1y917CedarEast County Line to West of Lowden includes Washington Ave and 155th St.11 h3 h3hG-M/ p-<400aband. 
9y9916CedarOld Lincoln Highway west of Mechanicsville3 Lisban and Mechanicvilleh3hh3hG-M m
9y10116CedarOld Lincoln Highway east of Mechanicsville2  m3 hmG-M  
6y6915LinnBloomington Road, from W. Mount Vernon Road to Squaw Creek Park4 Mount Vernon and Lisbonh1br/culvhhG-Mh 
14y14512TamaLincoln Highway Bridge (only)  Chelsea and Taman/ah-br/cafélh   
5y5911Marshall230th Street from intersection with 235th St. to State Center8 State Center and Marshalltownh1culv/brhhG-M  
11y12310StoryLincoln Highway at Colo (Diamond Interchange) Niland's Corner, UP underpass <1Colo gas/café/ motelhl   
3y398Boone210th Street from West County Line to Ogden7 Ogden and Beaverh1brhhG-M  
10y1079Boone210th & 220th Street & U Ave east of Highway 17 to County Line91 h1 hmG-MM 
3y418GreeneX Avenue from 222nd Street north to 210th Street2  h1/h2 hhG-M high
2y23-257GreeneE39/N65/E53 from Jefferson to Ralston 15Scranton and Jeffersonh1br/c, gas, cabin courthhP-400 high
2y217Carroll210th Street from Ralston to Glidden41 h2 hhG-M M

 

ISU Report (Appendix D)   Ratings
ISU rankIn PApagesRt #CountyRoute DiscriptionGravel MilesPaved MilesCities to includeDriving ExperStructuresRoad DesignLS IntegrityRehab StrategyThreatlocal interest
4y496Carroll200th Street from Carroll to Westside111Gliddenh2br/chhG-MMM
12y1255CrawfordQ Avenue west of Arion2  m1 hmG-Mm 
12y1275CrawfordLincoln Way from Denison to Arion51Denison and Arionm1 hmG-Mm 
7y834Crawford/ HarrisonDunlap St from Dunlap to US 303  m1 hmG-M  
8y893HarrisonL66 and Sprokane/Toledo Ave82 h2 hhG-M  
8y853HarrisonStair Steps5  h2 hhG-M  
7y794HarrisonWoodbine  Woodbineh1 hh   
12y1375HarrisonLima Trail1 Dunlap, Woodbine and Loganm2 hmG-M  
8Y913HarrisonNiagra Trail3  m2 hmG-M  
13 1332PottawattamieHoney Creek Lane1  m3 hhG-Mlm
    Total Miles Estimated8528         

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