ENVIRONMENTAL ^PROTECTION AGENCY
ALASKA WATER.LABORATORY 1610 GOI OB/71
ENVIRONMENTAL GUIDELINES FOR
ROAD CONSTRUCTION IN ALASKA
• »»-.
UST 1971
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ENVIRONMENTAL GUIDELINES
FOR
ROAD CONSTRUCTION IN ALASKA
by
Frederick B. Lotspeich
Research Environmental Scientist
ENVIRONMENTAL PROTECTION AGENCY
ALASKA WATER LABORATORY
COLLEGE, ALASKA
Report No. 1610 GOI 08/71
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TABLE OF CONTENTS
SECTION PAGE
I INTRODUCTION 1
II ROUTE SELECTION 13
Guidelines for Route Selection 17
III ENGINEERING DESIGN 19
Guidelines for Engineering Design 32
IV CONSTRUCTION ACTIVITIES 35
Surveying and Right-of-Way Clearing 36
Earthwork 39
Structures 59
Support Activities 61
Restoration 62
V MAINTENANCE 71
Guidelines for Maintenance 78
VI PROBLEMS OF THE TRUE ARCTIC 81
Guidelines for Arctic Alaska 83
VII ACKNOWLEDGEMENTS 89
VIII REFERENCES 91
IX GLOSSARY 95
X APPENDIX 100
Public Law 91-190 102
Executive Order 115H 108
U.S. Department of Transportation Report
on Guidelines for Minimizing Soil
Erosion from Highway Construction,
07/01/67 112
U.S. Department of Transportation IM 20-3-70 124
iii
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LIST OF FIGURES
NUMBER PAGE
1 Map of Alaska overlying United States 3
2 Distribution of Permafrost in Alaska 5
3 Physiographic provinces of Alaska 7
4 Distances between key points in Alaska 8
5 Highway net in Alaska 9
6 A typical small valley of Interior Alaska ^
7 Center!ine marked after the route is selected 15
8 On the ground appearance of the right-of-way when
the center!ine is marked. 16
9 Fill stakes denoting slope of 1-1/2:1 fill 23
10 Failure of the fill shown in Figure 9 24
11 Example of a bridge design that is not approved by
Alaska Department of Highways 25
12 Debris that accumulated behind bridge shown in
Figure 13 26
13 A bridge design approved by the highway department 27
14 Examples of improperly designed and installed
culvert for perennial streams 28
15 A properly designed and installed culvert 29
16 Shows a sloped cut in permafrost and what happens
when the ice melts 30
17 A vertical cut in permafrost as an alternate design
to sloping 31
18 Clearing the right-of-way, preparatory to placing
over!ay 37
19 Bulldozer clearing where cut and fill methods are
used 3B
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NUMBER PAGE
20 Bulldozer and earthmover placing overlay at the head
of a fill 40
21 Vertical cut in frozen silt intercalated with lenses
and seams of ice 41
22 Permafrost takes many forms; this is massive ice;
the roadbed is on almost pure ice, March 3, 1970 42
23 Melting permafrost at a sloped cut well exposed to the
sun where ice content is 50-75 percent 43
24 Closeup of extremely turbid meltwater from rapid
thawing of permafrost 44
25 Closeup of massive ice and silt with a piece of
excelsior attached to it 45
26 The same cut shown in Figure 22, three months later 46
27 The same cut on September 3, 1970 47
28 A moderately deep vertical cut with a vegetal cover
overhanging 48
29 The same cut on September 3, 1970 49
30 By July 24, cuts 8-10 feet deep with a good overhanging
vegetal mat were nearly stabilized 50
31 Good stabilization of a sloped cut by September 3 51
32 A deep cut in dry silt without massive ice 52
33 Erosion of a waste bank caused by melting of ice
contained in the removed cut material 54
34 Winter road construction with thin overlay 55
35 A finished road built with overlay 56
36 A finished road built on cut and fill principle 57
37 At the end of a summer, a road should like this 58
38 Erosion of a roadside ditch during heavy rain 64
VI
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NUMBER
PAGE
39 The only culvert draining the ditch shown in Figure 8 65
40 A partial washout of a haul road because proper
drainage was not provided
41 Erosion of a cut caused by improper drainage above
the lip of the cut b/
42 Silt accumulation along the road from melting ice of
a sloped cut 6b
43 Timely seeding of raw cuts and fills by a mixture of
seeds, fertilizer, matting or mulching material, and
irrigation water results in the scene shown in Figure 44 69
44 Icing on the Steese Highway about 60 miles northeast
of Fairbanks 72
45 View of an icing showing maintenance efforts to
control this mass of ice 73
46 Closeup of a thawed channel using a fire pot 74
47 This photo shown an alternate method to control
icings using rock gabions 75
48 This mass of ice has reached the bridge level and is
several hundred feet across and 6-8 feet thick 76
49 Closeup of a hessian cloth dam 77
50 An example of good construction procedures on the
arctic tundra 84
51 An example of unsatisfactory road construction 85
52 This is a view of old tracks north of Sagwon, arctic
Alaska 86
53 An example of erosion on the tundra caused by
improper use of equipment 87
COVER PHOTOGRAPH: A view of a section of the haul road from Livengood
to the Yukon River, 1970. This road was built with
a sense of urgency and 55 miles of road was completed
to meet State Secondary Standards in less than a year.
The cuts shown in this view have a well-established
cover of oats to protect them from erosion
VI1
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SECTION I
INTRODUCTION
Purpose
The purpose of this report is to compile and describe the best prac-
tical measures required to assure environmental protection during road
construction under cold climate conditions. The report is intended to
aid the road construction agency and highway engineer in establishing
and meeting environmental protection requirements. In addition, the
report will serve to inform the general public, resource managers, and
equipment operators of the impact of road construction on water quality
and the means available to lessen this impact.
Scope
This report summarizes accepted road construction methods for Alaska
which, if followed, will help to minimize environmental degradation. No
attempt will be made to probe into the engineering feasibility of various
practices. It brings together the collective thinking of many Federal
and State agencies whose authorized responsibility is wise management of
natural resources. The intent is not to place constraints of numbers on
those engaged in road construction, but to define potential pollution
hazards and offer constructive suggestions for preventive measures.
Design and construction engineers should be free to use alternative
solutions to any problem so long as the solution meets objectives defined
by resource management specialists.
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Background
Figure 1 illustrates the relative size of Alaska to continental United
States; the superimposed outline of Alaska covers the bulk of seven or eight
north-central states with some of it extending from Georgia to California.
Although Alaska's total area is 586,400 square miles, its population in 1970
was only 302,170, of which 53,000 were natives (Eskimo, Indian, and Aleut).
More than half of this population occupies the metropolitan areas of two
cities, Anchorage and Fairbanks. Projected population estimates to 1990
range from 339,000 to 619,000, which will still leave vast areas uninhabited.
The table on page 4 summarizes major uses and ownership patterns of land and
clearly indicates that the Federal Government is the dominate landowner.
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ALASKA SUPERIMPOSED
ON THE UNITED STATES
Figure 1. Map of Alaska overlying United States to demonstrate relative sizes—Alaska covers about
seven central states (From Johnson and Hartman, 1969).
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Ownership or Use
Total
Federal
B.L.M.
Forest Service
Fish and Wildlife Service
National Parks Service
B.I.A.
Dept. of Defense
State (entitlement)
Selected but not approved
Approved
Boroughs
Suitable for cropland
Cleared but not all farmed
Forested
Coastal
Interior
Area (in acres**)
365,481,000
357,914,000
305,009,000
20,736,000
18,632,000
6,910,000
4,065,000
2,562,000
103,500,000
25,600,000
8,100,000
454,000
1,640,000
72,000
13,247,000
105,804,000
Ihe Research
* From Alaska Survey and Report: 1970-71.
Institute of Alaska, Inc.
** Rounded off to thousand;..
Alaska, because of its latitude and severe climate, is underlain by
vast areas of permafrost whose distribution is shown in Figure 2. Perma-
frost creates problems for engineering and construction activities that
add another dimension to Alaska's unique climatic conditions. Permafrost
means perennially frozen ground. However, when exposed to warming by man
or direct insolation, it frequently becomes unstable. Although much is
known about permafrost and how to overcome or use it to advantage, each
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ENVIRONMENTAL ATLAS OF ALASKA
9/69
R MAFROST
IN ALASKA
SOURCE: FERRIANS
Generally underlain by
continuous permafrost.
Underlain by discontinuous
permafrost.
Underlain by isolated
masses of permafrost.
Generally free from
permafrost.
00 200 300
P A C I F I C
Figure 2. Distribution of permafrost in Alaska (From Johnson and Hartman, 1969)
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project requires its own solutions. Muller (1947) cites most of the work
developed in Russia through 1947 and subsequent works have appeared in
proceedings of various permafrost conferences (International Permafrost
Conference, 1963; Canadian conferences in 1967 and 1969). Philleo (1963)
gives some guidelines to overcome problems associated with permafrost and
cites examples from his personal experience. A recent book by Brown (1970)
gives a good, up-to-date discussion of permafrost and is recommended reading
for anyone who is involved with permafrost. Guidelines developed for Alaska
should have applicability to Canada, or other countries with similar climate
and permafrost.
Road Constructi on Cons i derati ons
Alaska has a wide range of topographic features (Figure 3) including
broad valleys, undulating uplands, fjords, rugged mountains, and coastal
plains. Distances are great, as illustrated in Figure 4, and roads gener-
ally nonexistent except for the limited road-net shown as solid lines in
Figure 5. Most travel to outlying points is by some kind of air service;
either commercial, charter, or privately owned.
Alaska is essentially a wilderness region which will require surface
transportation for orderly development and commerce. Surface water routes
have been important in the past but are limited because of geographic loca-
tion and climate. New technology is permitting year-around activities that
utilize an all-season transportation network. A road network is a logical
solution to many of the transportation problems associated with resource
development and commerce due to all-season use, shorter distances, and direct
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INVIIONMENTAL ATIAS Of AtAtKA »/69
MI TCI mm
KNUmCIT OF THE IITEIIN
KOUtlCAL MI«CT
ALASKA
196*
0 SO 100 ISO MILES
High nij|«d .ounHIni
(Simiti «or« thin S.OOO f«et)
Lou »ount«ln», tUUtvl, «nd
rolllnf
1,000-S.OOO («.t)
rliini «nd
(g>n«rilly ten thin 1,000 flit)
loundlry bitxtln iijor phyiloirirhIc
Figure 3. Physiograph provinces of Alaska. (From Johnson and Hartman, 1969)
Vihrhiftlf
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ENVIRONMENTAL ATLAS OF ALASKA
9/69
DISTANCES
WITHIN ALASKA
Figure 4. Distances between key points in Alaska. (From Johnson and Hartman, 1969)
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Figure 5. Highway net in Alaska—existing highways, both paved and gravel; 3550 miles are solid
lines; proposed long-range construction 8580 miles, are shown as dashed ines .From State
of Alaska Department of Highways map, September 1970).
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access to areas of development. Thus the likelihood of additional high-
way construction becomes more certain. The State has developed a long-
range program (20 years) to build several hundred miles of new roads as
shown in Figure 5. This plan includes the haul road for the proposed oil
pipeline from Prudhoe Bay on the Arctic Ocean to Valdez Harbor in Prince
William Sound.
Road construction, without forethought toward preserving environmental
quality of other resources—water, wildlife, fish, recreation and aesthetics
—can lead to serious and unnecessary degradation of these resources. Waste
materials associated with road construction are a form of industrial waste
and usually take the form of sediment in streams, debris on right-of-ways,
and unnecessary scars on the landscape. Sedimentation has a serious adverse
effect on aquatic life and some materials may be toxic to fish and other stream
life. It is relatively simple to prevent damage to streams by sedimentation;
the principal requirement is the realization that water quality is worth
preserving.
Water Quality Standards
In 1965, Congress unanimously passed the Water Quality Act which re-
quired that all states develop water quality standards for interstate and
coastal waters. Alaska's standards were approved by the Department of the
Interior in 1968. These standards define the concentrations of polluting
substances permitted in the water and include all substances that interfere
with the normal functioning of natural waters as a resource to be used for
man's benefit. Silt and other products of erosion that enter waters are
included in these standards. Although levels of polluting substances are
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set by these standards, provision is made for revision and updating as new
knowledge or requirements make it necessary. It is these standards that
form the basis for the development of guidelines to assist industry in
meeting the requirements of the new National Environmental Policy Act
(P.L. 91190).
National Environmental Policy Act
Public sentiment is building for renewed effort to preserve our
environment. An awareness has developed that, unless we do, our present
way of life is in jeopardy. Such sentiment is reflected by Congress, who,
late in 1969, enacted a law describing a national policy for the environment
(Public Law 91190, National Environmental Policy Act) and provided the Pre-
sident with a permanent Council on Environmental Quality. This law is now
the law of the land and all Federal, State, and local organizations are
required to abide by provisions contained in the Act. As stated in
Section 2 of the Act, its purposes are:
"SEC. 2. The purposes of this Act are: To declare a national
policy which will encourage productive and enjoyable harmony
between man and his environment; to promote efforts which will
prevent or eliminate damage to the environment and biosphere
and stimulate the health and welfare of man; to enrich the
understanding of the ecological systems and natural resources
important to the Nation; and to establish a Council on Environ-
mental Quality."
Under
"SEC. 101. (a) The Congress...dec!ares that it is the con-
tinuing policy of the Federal Government, in cooperation with
State and local governments, and other concerned public and
private organizations to use all practicable means and measures,
including financial and technical assistance, in a manner calcu-
lated to foster and promote the general welfare, to create and
maintain conditions under which man and nature can exist in
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productive harmony, and fulfill the social, economic, and other
requirements of present and future generations of Americans."
Subsequent sections describe in detail measures written into the Act to
implement and achieve its stated purpose. All persons responsible for acti-
vities likely to have an environmental impact should become intimately ac-
quainted with its intent and provisions.
In response to this Act and related Executive Order, the Bureau of
Public Roads issued a series of instructional memorandums dealing with
specific pollutants associated with road building. Copies of the Act,
Executive Order, and Instructions are included as an appendix.
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SECTION II
ROUTE SELECTION
Route selection is the first field activity in road construction. McHarg
(1969) offers some refreshing suggestions on selecting routes and alterna-
tives to the conventional approach. He attempts to make use of the total
ecology of the region through which the road will pass, in addition to the
usual engineering criteria. When total social costs, including damage to
other resources, are balanced against benefits for alternate routes, an
alternate longer route frequently offers the best solution. Long-range
costs must be in balance with short- and long- range benefits.
In reality, route selection should start by map reconnaissance.
Topographic and aerial maps are extensively used in selecting tentative
routes but field experience is helpful to the initial study. In Alaska,
route selection to take advantage of non-permafrost terrain or avoid
obvious patterned ground is extremely important. Permafrost adds another
dimension to route selection in addition to those needing attention in
more temperate regions. (Figures 6-8 illustrate some problems asso-
ciated with this stage of construction in Alaska.)
South slopes may be free of frost, especially near ridge lines, and
poorly drained low ground is usually underlain by frost. Aerial photos
are valuable aids in these early stages of route selection because pat-
terned ground as an indicator of ice is easily seen and avoided. Vegeta-
tion can be used by an experienced interpreter to indicate drainage
13
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Figure 6. A typical small valley of interior Aleska that illustrates the problem of route selection;
this stream must be crossed but where and how.
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Figure 7. Center!ine marked with bulldozer after route is selected and
surveyed. Much of centerline clearing is done by hand which costs more
but does less damage to the vegetal mat which needs to be preserved.
Typical terrain and forests of interior Alaska; note the heliport. A
large portion of total traveling during these early phases is by heli-
copter.
15
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^,
Figure 8. On-the-ground appearance of the right-of-way when the center-
line is marked using heavy equipment. Water is from melting ice in the
active layer exposed to warming when disturbed. This would probably not
have melted if hand clearing were used.
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conditions, and with caution, gain some insight into general soil textures.
No form of remote sensing, however, can pick up permafrost or ice masses
in unpatterned terrain and gaurantee that a selected route will be free of
ice.
Although obvious high-ice areas can be avoided during map reconnaissance
nearly every valley that must be crossed is a potential problem area. Final
selection of a route must be done on the ground and numerous borings made to
examine subsurface soil materials. It is this stage that must be intensive,
because, if trouble spots are not detected early, costs can rise far above
expectations. Money spent on route selection is money wisely invested.
As an example, the road from Livengood to the Yukon was estimated to cost
10 million dollars; because of unforeseen difficulties that should have
come to light by intensive reconnaissance, it has exceeded that estimate
by 50-100 percent.
Route selection should consider other resources, e.g., water, recrea-
tion, minerals and timber. Planning the route with these in mind will
minimize damage and keep costs down.
Guidelines for Route Selection:
1. Make an intensive map reconnaissance to achieve maximum use of
topography and avoid areas of obvious high ice content. Do not rely on
photos to detect all frozen soils.
2. Fully consider other resources and future land management prob-
lems along the route. Attempt to complete all exploration when the ground
is frozen to avoid damage by cross-country vehicles.
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3. When conducting soils investigations, bore enough exploratory holes
to definitely establish the location of massive ice as well as construction
materials. If ice cannot be avoided, the design engineer will at least be
able to consider its presence during design.
4. Avoid seepage zones by routing high on slopes where possible.
5. If valleys must be followed, locate the route on terraces; these
are usually better drained and are above normal flood levels.
6. In crossing streams, approach banks at right angles to avoid un-
necessary fills in the active channel.
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SECTION III
ENGINEERING DESIGN
Once the final route is selected, and the materials available become
known, the design engineer, in consultation with his geologist and mate-
rials specialists, can start active design work. If the reconnaissance
has been sufficiently intensive, there should be no surprises and all
problem areas will be accounted for during design. Although cut and fill
balancing is preferred where feasible, permafrost may dictate placing
overlay directly on the undisturbed moss layer. Overlay of sufficient
depth to prevent or retard melting requires greater volumes of fill ma-
terial than conventional cut and fill. Design engineers familiar with
the many forms of permafrost assert that in areas of discontinuous or
sporadic permafrost, no cost-justified quantity of fill will prevent
melting, although such fill will retard and thus help control melting.
However, where continuous permafrost is present, with its colder tempera-
ture and shorter melt season, a reasonable depth of overlay will maintain
the frozen soil intact.
With the new mandate to minimize damage to other resources during in-
dustrial development, it becomes desirable to include specialists in
renewable resource management on the design teams as well as in route
selection. These specialists would work directly with engineers to de-
velop solutions to potential problems that meet both engineering and
environmental requirements. By designing solutions early in the complete
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project, delays and unsound procedures can be avoided, resulting in su-
perior engineering works without endangering environmental values.
The demand for larger volumes of fill material, and the constraint
that other resources be part of the overall plan, places severe restric-
tions on siting borrow areas. Normally, borrow pits are sited for the
convenience of the user but as other resources enter into the design,
they may have to be spaced farther apart, resulting in longer hauls. Al-
though longer hauls result in higher costs, these costs must be balanced
against the value of other resources associated with the route. Such
evaluation poses problems because some resources defy outright dollar
value; i.e., esthetics and recreation. Uses for borrow areas, after
completion of the project, should enter into the design and be planned
into the actual construction operations.
Sufficient cross-drainage structures between natural drainages must
be provided because intermittent freezing can cause damage to a road as
ice builds up behind the fill and overflows during melting. Streams that
are actually cutting their banks should be bridged if trees and other tall
vegetation grow on their watersheds. During "breakup", trees and other
debris are carried downstream and can clog culverts if these are used as
stream crossings. Bridges should be sited in a manner that will least
affect tne normal stream hydraulics. Once a stable stream is altered,
other unexpected effects follow, sometimes with dire results and always
with increased maintenance costs. Engineers and geologists with design
experience in permafrost areas of Alaska are confident that they can de-
sign a road when they know in advance the nature and extent of permafrost.
In areas of silty soils with large ice masses, sufficient thickness of
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overlay fill material must be utilized to retard melting of ice and pro-
mote road bed stability. Where dry silty soils prevail, conventional cut
and fill methods may be used. Where the route traverses coarse subsoil
materials, even where these are frozen, a stable road can be built with-
out the large volumes of fill material. An experienced materials special-
ist can quickly evaluate different materials as to their bearing capacity,
stability when thawed, and other engineering properties. Each change in
subsoil material, drainage conditions, and extent of ice poses an indivi-
dual problem to be solved in advance of construction if at all possible.
Seepage areas that cannot be avoided during route selection must be
accounted for in design and planning for maintenance. Seeps on a road
may build up to large ice masses during the long winters in Alaska and
constitute a serious driving hazard. "French drains" are one suggested
means of coping with small seeps (see Navdocks, 1955). Culverts tend to
fill with ice unless some heat is provided to keep a small channel open.
Hessian cloth fence is another means of controlling "icings" as these
ice masses are called.
Good design, even when seepage is a problem, can prevent the develop-
ment of "frost boils" with their attendant maintenance problems. A well-
drained subgrade of coarse gravel will prevent water from accumulating
under the finished surface, thereby eliminating a cause of frost boils.
If materials are economically available, there is no reason why any new
road should have these failures. Maintenance costs, loss in time, and
weight restrictions over a few years far outweigh the added costs of more
distant materials, added engineering, and deliberate construction techni-
ques.
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Even where maximum care is exercised in selecting a route by using high
ground, some valleys must inevitably be crossed. The road must consequently
descend from the ridge tops dictating extensive cutting and filling. Some
of these cut zones may have large percentages of ice and cannot be used as
fill but must be wasted. This high-^ice material is usually silt that will
cause pollution problems as the excavated material melts. Two procedures
for minimizing the environmental impact of these waste materials are being
tried on the Livengood-Yukon road: (1) Cuts are made vertical and thus re-
duce the total volume of ice removed; and (2) The waste piled as deep and
compact as possible for minimum exposed surface. Waste areas should be
covered by some material to prevent wind or water erosion. An opportunity
to observe vertical cuts of ice and silt was offered on the new section of
road mentioned earlier. It was observed on April 30, 1970, that one cut
receiving insolation was melting, whereas, the cut opposite showed no evi-
dence of melting.
Transition from cuts that are dominantly ice to fill which is rock
creates an unstable point at the interface of the unlike materials which
is likely to cause pollution problems. One observation made by a Bureau of
Land Management inspector in such a case was that the portion exposed to melt-
ing should have an insulating blanket of fill material placed on the frozen
surface as soon as the cut was down to grade. Special attention should be
given to such an interface to prevent thawed silt from entering any small
stream being crossed by the road. (Figures 9-17 illustrate some of the
problems of designing for permafrost.)
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i
Figure 9. Fill stakes denoting slope of 1-1/2:1 fill—this is just at
the angle of repose and is too steep for good stability but it does
require less fill material.
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.;.** s2ka£4& .--.*^-Jnfe *
v, - , ^* .
:' - > *f.
Figure 10. Failure of the fill shown in Figure 9. A small slide is
shown which is enlarging, illustrating the oversteep fill because of
poor design.
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f...
01
Figure 11. Example of a bridge design that is not recommended by Alaska Department of Highways. Al-
though it has ample strength and is properly installed, the spans are too short and tend to clog with
logs, trees, and other debris during breakup or other times of high water. Many white spruce in
these valleys are about 100 feet tall and can easily span several pilings of such a bridge. Constant
vigilance is necessary during high water to prevent a jam which could cause a washout.
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Figure 12. Debris that accumulated behind the bridge shown in Figure 11. This debris resulted from
moderate rains; timely removal by the clamshell prevented possible damage. July 2, 1970.
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r\j
VI
Figure 13. A bridge design approved by the highway department. Note the long spans, each about 80
feet, the single pier and lack of any restriction or alteration of river hydraulics. Trees in the
background are 100 foot white spruce. Even with these spans, debris collects on the pier but most of
the logs and trees pass on unless they center on the single pier. (Chena Hot Springs Road)
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,tl I •*JT*
:vw ' K'--^
• f
:
'
Figure 14. Example of an improperly designed and installed culvert for
perennial streams. Grayling spawn in these small streams and such an
installation acts as a dam and prevents them from reaching the head-
waters. In 1967, many grayling were observed in the small plunge pool
shown here but they could not proceed further because of the culvert.
28
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Figure 15. A properly designed and installed culvert. Note that there
is ample capacity and sufficient depth of water to permit migrating fish
to pass through. Such an installation will require a minimum of mainte-
nance and will not act as a barrier to fish movement.
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UJ
o
Figure 16. This shows a sloped cut in permafrost and
is considered good design by engineers in the absence
shown in a later figure. May 30, 1970.
what happens when
of ice—what will
the ice melts. Such a
eventually happen here
slope
is
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i^i. &t^$iii*$$iiK
Figure 17. A vertical cut in permafrost as an alternate design to
sloping. This procedure reduces cut volume and is stable as long as it
remains frozen. (April 30, 1970) Thawing is in progress—very active
where the sun strikes the face, much slower in the shade.
31
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Guidelines for Design:
1. Design should be by a team composed of engineers and environmen-
tal specialists to prevent erosion and protect environmental values at all
stages of construction. A plan for erosion control to protect raw cuts
that are likely to erode should be an integrated part of the overall de-
sign. (See Bureau of Public Roads Instructional Memorandum No. 20-3-70,)
2. Locate construction camps in favorable terrain and design waste
disposal systems to prevent water pollution in accordance with State
standards; plan refueling and maintenance operations to preclude disposal
of oily wastes to the environment.
3. Design the route to minimize the amount of clearing required for
excavation and fill.
4. Select borrow areas to maximize use of other resources and mini-
mize damage to waters, timber, and wildlife.
5. Design for subsequent use of borrow areas through revegetation
and restoration to provide for recreation or other uses while maintaining
esthetics.
6. In permafrost areas with high-ice silt, use overlay of sufficient
thickness to control or retard the rate of thawing.
7. Give special attention to interfaces of dissimilar materials, i.e.,
ice to gravel. Promptly cover any ice surface cut to final grade.
8. Design culverts in such a way that fish passage will not be impeded.
9. Design bridges to minimize any alteration of stream hydraulics and
use the longest feasible spans. The decision to use culverts must be made
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only after careful design and consideration of ice and debris jamming the
structure.
10. Provide for uninterrupted and safe upstream or downstream passage
of fish. Any artificial structure or any stream channel change that causes
a permanent blockage to migration of fish should be provided with a perma-
nent fish passage structure that meets all Federal and State requirements.
The proposed design should be submitted at least 90 days in advance of
construction.
11. Water velocities at medium discharge should not be excessive in
any part of a culvert on streams classified as fish migration, spawning,
or rearing. Solutions to this problem may be derived during design oy a
competent fisheries biologist.
12. Conduct studies to determine the most feasible route and best
construction methods through permafrost areas to prevent permafrost de-
gradation that could result in progressive local land form changes.
13. Except at approved crossings, the road should be located to
provide a buffer strip of undisturbed land along the stream as determined
by State F1sh and Game authorities. Request for exceptions to this pro-
vision should be submitted in writing at least 30 days in advance for
approval. The request should include a description of the design criteria
and time necessary to restore or enhance the stream habitat.
33
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SECTION IV
CONSTRUCTION ACTIVITIES
It is during the actual construction process that most environmental
damage is done by contractor personnel. All the proper safeguards designed
into the plan are useless unless the contractor personnel operate within the
constraints of the design. Contracts should include provisions for perma-
nent pollution control and must be included in the estimate of costs just
as are other construction costs. Instructional memorandums issued by the
Bureau of Public Roads (B.P.R.) go one step further and are insisting that
costs of temporary pollution control during construction be included as a
contract item. When interim measures to prevent erosion during the con-
struction period are neglected considerable pollution can result.
Before construction starts, preferably after the contracts are let
and the contractor is mobilizing his forces, conferences with labor
leaders, inspection teams, superintendents, and resource managers should
be held. Such conferences should point out why certain procedures, here-
tofore considered acceptable, are no longer condoned. The object is not
to set up a list of "do nots" but to explain why new procedures are being
used and why these are to the ultimate benefit of all concerned. If the
equipment operators are aware of the need for, and are actually partici-
pating in, environmental protection, the need for detailed inspections is
lessened. Unless management and labor enter into the spirit of environ-
mental protection, no amount of inspections can prevent some damage. The
ultimate objective is to motivate each person concerned that his efforts
35
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to protect the environment will pay off in a better place in which to
live.
Since much of the rationale for adhering to accepted practices for
environmental protection was given under previous headings, much of what
follows will consist of enumerating guides or instructions. Many of
these guidelines are taken directly from the stipulations written by
the Bureau of Land Management to cover road and pipeline construction
of the proposed trans-Alaska pipeline by Alyeska Pipeline Service Com-
pany (ALPS). These stipulations were prepared to protect the total
environment which this project will traverse and are the result of
collective input of several State and Federal agencies.
Surveying and Right-of-Way Clearing:
1. Prior to, and during construction activities, construction
personnel should be briefed on environmental problems by designated
specialists. These briefings should include fire prevention and sup-
pression training for all personnel.
2. During establishment of center-line, grades, and boundaries,
keep equipment on the right-of-way whenever possible. Utilization of
equipment off established routes leads to erosion and permafrost melting
without control.
3. Cut all timber close to the ground to preclude unsightly stumps
remaining after completion of the project. Fall the timber into the
right-of-way and away from water courses. (Figures 18 and 19 show the
appearance of these early activities, September 1969.)
36
-------
to
•-1
Figure 18. Clearing the right-of-way preparatory to placing overlay; the trees are knocked down but
left in place. This has proved to result in maximum stability if overlay is thick enough.
-------
Figure 19. Bulldozer clearing where cut and fill methods are used. The trees are pushed to the
bottom edge of the right-of-way and will be burned during the winter; fire hazard is extreme during
the summer and fall in central Alaska. A better means of disposing of this debris would be chip-
ping and spreading on raw cuts and fills.
-------
4. The organic mat should be preserved where the design calls for
overlay. This procedure is the most effective method to control perma-
frost melting.
5. Logs should not be skidded or yarded across any stream without
prior approval and log landings should not be located on the banks of any
live stream. Where heavy equipment would be detrimental to existing con-
ditions, hand clearing operations should be used.
6. All debris from clearing operations should be disposed of by
burning, chipping, or other agreed upon method; none of this debris should
enter streams.
7. Timber or other vegetation outside of the right-of-way clearing
boundary should not be cut or otherwise removed.
8. Logs having value to previously agreed upon persons should be
neatly stacked along the edge of the right-of-way
Earthwork
1. When it becomes necessary to excavate soils with high ice con-
tent make vertical cuts and do not attempt to slope them in the usual
manner. Observations of the Livengood-Yukon River road in the summer of
1970 clearly show that vertical cuts are superior to slope cuts. (Figures
21 - 28 show the appearance of permafrost at various stages of melting
under the two treatments.)
2. Leave all the vegetal mat possible on the edge of the cut. This
mat is effective in protecting the upper four to six feet of the cut as
melting causes the cut to recede. (Figures 29 -32 illustrate the progres-
sive appearance of this melting.) Thawed soil shifting down to the toe
39
-------
Figure 20. Bulldozer and earthmover placing overlay at the head of a fill.
-------
Figure 21. Vertical cut in frozen silt intercalated with lenses and seams of ice.
about 40-50 percent ice and was not melting at the time it was photographed. March
This exposure
3, 1970.
is
-------
Figure 22. Permafrost takes many forms; this is massive tee; the roadbed is on almost pure ice.
March 3, 1970.
-------
CO
Figure 23. Melting permafrost at a sloped cut well exposed to the sun where ice content is 50-75 per-
cent. Released water carries the fines in suspension and deposits them along the road or in the
nearest drainageway. Such a cut poses a maintenance problem for some time. May 26, 1970.
-------
Figure 24. Closeup of extremely turbid meltwater from rapid thawing of
permafrost. Such water causes sedimentation of small streams in the
normal drainage pattern.
44
-------
Figure 25. Closeup of massive ice and silt with a piece of excelsior
attached to it. This form of insulation appeared to be effective because
the silt covered by it is receding slower than the unprotected ice.
(Silt, however, appears to melt slower than pure ice.) A month later
this exhibit had disappeared by melting. April 30, 1970.
45
-------
o-,
Figure 26. The same cut shown in Figure 22 three months later. Note the lack of vegetal mat and
continuously exposed ice; toe of slope is well protected by material released by thawing. July 2, 1970.
-------
Figure 27. The same cut on September 3, 1970. Stability has not been fully achieved even though
the face has receded 30-40 feet.
-------
00
Figure 28. A moderately deep vertical cut with a vegetal cover overhanging. Melting is still active
but is slower because of shading, mud flows were less evident. July 24, 1970.
-------
Figure 29. The same cut on September 3, 1970. Stability is not complete but is in an advanced state.
-------
' *>-''„••*•
•f f ••*" ' *• -
-"•
m W >v
Figure 30. By July 24, cuts 8-10 feet deep with a good overhanging vegetal mat were nearly stabilized,
-------
*v<
'wir
v>
CV^x&
&
Figure 31. Good stabilization of a sloped cut by September 3. Here the cut was seeded in July and
oats established on the silt overlying massive ice; as melting continued, ice support of the silt was
removed resulting in the stepped slumping shown here. Note the absence of a natural vegetal mat such
as shown in Figure 30; such a mat is not preserved with sloped cuts; stability is hastened in vertical
cuts.
-------
01
ro
Figure 32. A deep cut in dry silt without massive ice; this silt was frozen and melts on exposure but
does not pose a pollution problem because it lacks water to carry away loosened silt. July 24, 1970.
-------
of the cut protects the lower part and where the cuts were not more than
eight to ten feet deep they appeared to be well stabilized by the end of
July 1970. This fallen material retards the melting rate and permits
melt water to drop its load and run clear instead of highly turbid.
3. Keep high-ice waste piles compact and covered with some form of
insulating material after all waste is in place. If melting is too rapid,
these waste heaps act as mud flows which contribute heavy sediment loads
to adjacent streams. (See Figure 33.)
4. Areas having soils that are susceptible to slides and slumps, ex-
cessive settlement, severe erosion and soil creep, should be avoided
wherever possible. However, if these areas cannot be avoided, or are
encountered unexpectedly, design construction to insure maximum stability.
Continue soil investigations during construction activities.
5. Construction methods should be conducted to prevent degradation
of the permafrost in areas where such degradation would result in detri-
mental erosion or subsidence. (Figures 34 - 37 show what good proce-
dures can accomplish.)
6. Application for the purchase of construction materials should be
made to the proper State or Federal offices in accordance with regulations,
Such application includes a materials sale contract with advance payment
and submittal of a mining plan for approval prior to removal of materials
from public lands.
7. Upland materials and existing material sites should be utilized
in place of clearwater stream materials when reasonably available.
53
-------
Figure 33. Erosion of a waste bank caused by melting of ice contained in the removed cut material.
Such banks should be protected by an overlay of insulating material to retard melting otherwise much
of this material enters the drainage system as unnecessary sediments. July 24, 1970.
-------
en
Figure 34. Winter road construction with thin overlay which will be built up to 5 feet before thawing
causes instability. March 3, 1970.
-------
m
Figure 35. A finished road built with overlay; this road is nearly up to
grade and should withstand heavy traffic. Note the clean right-of-way and
the undulating roadbed instead of the usual cut and fill. May 26, 1970.
56
-------
!
'- i
^^a±
W*
Figure 36. A finished road built on cut and fill principle;
and should withstand its projected load. March 3, 1970.
this road is designed for heavy traffic
-------
en
CO
Figure 37. At the end of summer, a road should look like this; note the grassed banks and well-graded
roadbed. September 3, 1970.
-------
8. Material borrow sites must be screened from the road right-of-
way by leaving a strip of natural vegetation. Exemption from this re-
quirement must be authorized in writing.
9. Where haul roads from borrow areas intersect the right-of-way,
a screen of vegetation, native to the specific setting, should be estab-
lished unless waived in writing.
10. Shape material site boundaries in such a manner to blend with
surrounding natural land patterns. Regardless of the layout of material
sites, primary emphasis should be placed on preventing damage to vegetation
and soil erosion.
Structures
1. No blasting should be permitted underwater, or within one-quarter
mile of streams or lakes, without a permit from the Alaska Department of
Fish and Game. The application for permit should set forth blasting loca-
tions, types and amounts of explosives, date or dates of blasting, and the
reason for blasting. Provisions should be made for emergency cases where
unforseen conditions may call for the use of explosives not included in
the original plan.
2. Where channel changes cannot be avoided in designated anadromous
fish spawning beds, construct new channels according to standards supplied
by the State Fish and Game personnel. Protect spawning beds from sedi-
ment from all construction activity. Where soil material is expected
to be suspended in water as a result of construction activities, con-
struct settling basins to provide for removal of silt before it reaches
59
-------
the stream or lake. Special requirements may be made by regulatory agencies
for each stream system to protect spawning beds.
3. Installation of culverts on streams classified as a fishery resource
should be at low gradient with the bottom of the outlet below the natural
streambed to prevent erosion at the downstream end of the culvert.
4. When necessary, because of outfall erosion, an approved stilling
basin should be constructed at the downstream end of the culvert. Stabi-
lize the pool sides with riprap or other appropriate material to prevent
erosion.
5. Water may be diverted around the work area in the streambed during
the installation of the culvert to reduce sedimentation. To avoid erosion,
a conduit may be needed.
6. Water diversion ditches or pumps should be screened with an approved
device to prevent harm to migrating fish.
7. Abandoned water diversion structures should be removed, if at all
possible, or be plugged and stabilized to prevent trapping fish or impeding
fish passage.
8. Construct erosion control measures, such as water bars, contour
furrows, water spreaders, diversion ditches, or plugs, to avoid induced
and accelerated erosion and to lessen the possibility of forming new drain-
age channels resulting from construction activity on all right-of-ways areas.
Control measures must be designed and constructed to minimize disturbance to
the thermal equilibrium, thus reducing the adverse effects of permafrost
degradation.
9. Unless otherwise approved, temporary access over stream beds should
be made through use of fill ramps, made of coarse materials, rather than by
60
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excavating through stream banks. Such ramps should be removed upon ter-
mination of seasonal use or abandonment.
10. Give special attention to stream and river crossings to prevent
erosion. Such measures should not interfere with fish passage.
Support Activities
1. The contractor should assure that all persons take appropriate
measures for the prevention and suppression of fires on the right-of-way
area and on other lands, and comply with all applicable laws and regula-
tions, and with instructions and directions concerning the prevention and
suppression of fires.
2. Do not attempt area-wide pest control; such action frequently leads
to ecological unbalance. Pesticides and herbicides are limited to nonper-
sistent (such as parathion, malathion, or pyrethrum, to name a few) and
immobile types. When pesticides are used, only those from an approved
list may be applied.
3. Camp wastes of all kinds will be disposed of by acceptable methods
designated by State sanitarians. Effluents from treatment systems shall
not pollute receiving waters.
4. No petroleum wastes will be either disposed of to the environment
or allowed to enter any body of water; these wastes include oil changes,
spilled fuel, and antifreeze.
5. Keep mobile ground equipment out of all water courses except for
crossings within the right-of-way limits, and then only in a manner so as
to eliminate or minimize disturbance.
61
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6. Do not operate vehicles outside the boundaries of the right-of
way, previous access or other roads, or other permitted areas, except with
permission, or when necessary to protect life, limb or public property.
Restoration:
1. Leave all slopes in a stable condition.
2. Level haul ramps, berms, dikes and other earthen structures unless
otherwise directed.
3. Connect material pits in stream and river bottoms and channels to
the stream by channels constructed to allow flow of water through the pit
at median stream stage.
4. Vegetation, overburden and other materials removed from surfaces
of material sites should be disposed of at termination of use of the site
in an approved manner. Spread chipped vegetative debris evenly over ma-
terial site slopes, together with other organic materials and topsoil. If
possible, during construction or immediately following terminal use of the
site, revegetate material site slopes through seeding and planting with
suitable plant materials unless otherwise directed. Seeding in the snow is
one procedure that should be considered and used if feasible to take advan-
tage of early moisture for seed germination.
5. Upon abandonment or relocation of a campsite, the area should be
cleaned up and restored to a condition satisfactory to the regulatory agency.
6. Leave all disturbed areas in a stabilized condition. Stabilization
practices may include: seeding, planting, mulching, and the placement of
mat binders, soil binders, rock or gravel blankets, or structures, as
62
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determined by the conditions of the site. (Figures 38 - 42 illustrate
several unstable conditions that resulted in preventable erosion.)
7. Seeding and planting should be conducted as early as possible
during the first growing season and repeated if unsuccessful on the first
attempt. All other restoration should be completed as soon as possible
following the completion of the project. (See B.P.R. Instructional
Memorandum No. 20-3-70, Appendix, and Figures 43 and 37.)
63
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.1
Figure 38. Erosion of a roadside ditch during heavy rain. No diversion
or drain structure was installed along this stretch of road.
64
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Figure 39. The only culvert draining the ditch shown in
is half filled with sediment. Such design will increase
costs over many years, May 26, 1970.
Figure 38; it
maintenance
65
-------
i:
Figure 40. A partial washout of a haul road because proper drainage was
not provided. Although this erosion did not endanger the road, it did
cause a heavy load of sediment to enter the stream system as preventable
pollution. May 26, 1970.
66
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Figure 41. Erosion of a cut caused by improper drainage above the lip
of the cut; another example of preventable erosion. May 26, 1970.
67
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CO
Figure 42. Silt accumulation along the road from melting ice of a sloped cut. Some of this silt re-
leased by thawing ends up in the small streams and acts as a pollutant. This is an example of rapid
thawing with consequent pollution from silt; note absence of vegetal mat, characteristic of sloped
cuts. May 26, 1970.
-------
Figure 43. Timely seeding of raw cuts and fills by mixture of seeds,
fertilizer, matting or mulching material, and irrigation water results
in the scene shown in Figure 37.
69
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SECTION V
MAINTENANCE
Proper maintenance is a key activity if any road is to remain usable.
Long after construction activity ceases, maintenance must continue in an
efficient and timely manner if a road is to satisfy the need. Maintenance
must continue as long as a road is being used and its accrued cost may
equal or exceed the original cost of construction. These costs can be re-
duced if the route is properly selected and the problem areas are properly
handled during design.
Permafrost and long, severe winters cause some unusual problems in
Alaska that add to those of road maintenance encountered in milder climates.
In coastal areas, heavy rainfall causes erosion. Seepage zones in Interior
Alaska cause icings that may build up to several feet if steps are not taken
to keep small channels thawed to remove liquid water and prevent its freezing
on the road surface. Small streams also add to maintenance problems caused
by icings. The locations of icings are not easily predicted, but are re-
lated to past and current seasonal distribution of precipitation and other
unknown factors. At some points icings can usually be expected but the
severity may n*ve a wide range from year to year. Unless icings are con-
trolled, extremely hazardous driving conditions result from the buildup of
ice on the road. (Figures 44 - 49)
Another maintenance problem associated with long cold winters is that
of "frost boils" that appear during the spring breakup. These, like
icings, are unpredictable in location and are usually random in distribution.
71
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•
I
Figure 44. Icing on the Steese Highway about 60 miles northeast of Fairbanks. This illustrates the
appearance of a typical icing and gives an idea how they are formed by surface increments of ice as
water flows over the ice and freezes in the cold air.
-------
Figure 45. View of an icing showing maintenance efforts to
methods are shown: a hessian cloth dam, a fire pot to thaw
ripping and grading.
control this mass
a narrow channel,
of ice. Here three
and sheer power by
-------
Figure 46. Closeup of a thawed channel using a fire pot.
water tends to keep it open with a small amount of heat.
Once a narrow channel is opened, running
-------
Figure 47. This photo shown an alternate method to control icings using
rock gabions
and offers a
ever, from a
. A narrow, deep water course replaces the original stream
good engineering solution to icings in this stream. How-
sport fishery point of view, it has* ruined the stream which
was formerly a good grayling stream. Velocity of this artificial stream
is too high to allow fish to ascend to spawn; moreover, no places to hide
are provided which are needed by many fish. This illustates how one solu-
tion to a problem may have side effects not considered by those making the
decision to control the problem; the results are obvious to any fishery
biologist.
75
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Figure 48. This mass of ice has reached the bridge level and is several hundred feet across and 6-8
feet thick. No attempt at control was evident here; this highway is usually closed during the winter.
Mile 46 Steese Highway.
-------
I
- I
Figure 49. Closeup of hessian cloth dam. Burlap stretched between posts absorbs liquid water which
rises a short distance before freezing and acts: as a dam. They are effective with small volumes but
are overwhelmed by moderate flows as is shown here in March 1970; flow is to the left. Creek flowing
by Fox Spring, (near Fairbanks)
-------
Good design can reduce the incidence of these boils and route selection can
avoid areas that have conditions likely to cause them to appear. Frost
boils are the result of improper design and construction and are caused by
excess water directly beneath the roadsurface. Traffic pumps the subgrade
causing it'to lose its bearing capacity resulting in chuck holes.
Stabilizing cut and fill banks poses a serious problem where silty
or other unstable materials must be used. Unless such materials are stabi-
lized, erosion can cause stream pollution and sometimes fill culverts to
the extent that they become plugged and perhaps cause a washout. Silty
materials in borrow ditches must be protected from erosion where the road
is on an incline or gullies will form along the road. Moreover, the eroded
material flows to the nearest drainage and causes problems by filling stream
channels and culverts. (Figures 24 and 39)
Maintenance of major roads and highways normally is on a timely schedule
and is on a continuing basis. Minor and pioneer roads suffer from neglect
and frequently cause local sedimentation because maintenance is sporadic or
has such a low priority that damage occurs between widely scheduled repairs.
Guidelines for Maintenance:
1. Plan and schedule maintenance on a continuous basis for routine work.
2. Alert all personnel to report any unusual maintenance need, such as
a new frost boil or sedimented culvert, before it becomes a serious problem.
3. Keep all cuts and fills that are subject to erosion covered with
vegetation or some other material for stabilizing such susceptible areas.
78
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4. Use fertilizers and chemical stabilizers where natural fertility
is low to give vegetation a chance to make more rapid growth. Use chemical
dust control on unpaved roads to lessen the hazard of driving and passing
on dusty roads.
5. Do not disturb stabilized slopes with maintenance equipment.
6. Keep the road crowned and free of ridges along the edge to main-
tain lateral drainage.
7. Do not move material cleared from ditches to where it can wash
into water courses.
8. Allow loessal soils to come to stability by letting the slopes
become nearly vertical; this is the most stable slope for these materials.
Under such conditions, drainage must be provided and maintained to prevent
water from running over the upper edge of the cut bank.
9. Take early, active measures to control icings on highways desig-
nated as all year routes.
79
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SECTION VI
PROBLEMS OF THE TRUE ARCTIC
In Alaska the true Arctic exists north of the Brooks Range while the
Subarctic extends throughout the Interior. Permafrost is deep, contin-
uous, and colder than in areas of discontinuous permafrost, and ice wedges
are actively forming. Seasons for vegetal production are only about two
months long and trees are entirely absent except for low growing willows.
These conditions pose unique problems to construction that must be solved
in unconventional ways if extensive damage to other resources is to be pre-
vented during resource development.
Using permafrost to advantage is proving practical as engineers and
operators learn and use procedures for construction that utilize frozen
soils as foundations. Recent experience in the Arctic has established
the feasibility of constructing permanent engineering works if proper
attention is given to environmental considerations. Large structures
can use passive measures to preserve permafrost (Muller, 1947) and
drilling rigs and roads use gravel of sufficient thickness to use perma-
frost as foundations. Both procedures are satisfactory if properly done.
The Environmental Atlas of Alaska (see references) prepared by Johnson
and Hartman gives valuable data for regional planning.
Recent successes on the Arctic Slope illustrate that it is desirable
and feasible to preserve and use the local environment during industrial
development. Some of the earlier attempts at road building, movement of
heavy equipment, and drilling pads resulted in glaring failures because
81
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insufficient forethought was given to the problem at hand. (Figures 50 -
53.)
Proper drainage procedures are of utmost importance on the tundra and
seem to contradict usual engineering practices. When the active layer melts
and is drained away as water, a large volume of active layer is removed
because of the very high ice content. Under these conditions it becomes
mandatory to prevent drainage of the thawed active layer and allow the
water to stand and freeze when cold weather returns. On the other hand,
because of frozen subsoils and a saturated active layer when thawed, any
small rain causes extensive runoff which accumulates behind the elevated
roads unless proper cross-drainage is provided. Thus, the proper siting
of cross-drainage structures and the establishment of invert elevations
to control runoff and at the same time conserve the active layer is one
of the most important engineering functions of road design and construction
in the Arctic. Earlier failures, as illustrated in Figures 51 and 53
prompted much of the criticism of environmentalists who are interested in
preventing unnecessary damage during resource development.
Despite successes with gravel as an aid in preserving permafrost,
better methods are needed. Experiments underway indicate that artificial
insulating materials will reduce the volumes of gravel needed while main-
taining permafrost stability. Hugh volumes of gravel are now being used
which is costly because of hauling distances and limited supplies (Condo
and Knight, 1970). The studies referred to may result in insulating tech-
niques which will allow up to 70 percent reduction of the volume of gravel
82
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used, thereby reducing damage to the environment and lowering construction
costs.
River beds will not have to be mined for gravel to the present extent
and problems with drifting snow should be less with gravel fills of two
or three feet instead of the five feet now being recommended.
Guidelines for Arctic Alaska:
1. When building roads do not disturb the tundra, place gravel or
other insulating material directly on undisturbed vegetation. Experience
has shown that this method will minimize melting under and along the road.
(Compare Figure 50 with Figures 51 and 52 with 53.)
2. Where melting has occurred do not drain away the water. Let it
remain in the meltpond to freeze when cold weather returns. Because of
very high ice content of tundra soils, removal ofrneltwater effectively
causes loss of large volumes of surface soil. Subsequent seasonal melting
then causes more soil removal which continues the cycle.
3. On flat tundra install sufficient drains under elevated roads to
carry runoff from summer showers, otherwise this water ponds up on the
upper side and can cause melting or washouts. The tundra slopes gently
to the north and even small showers can result in large runoff because
of the frozen subsoil and saturated soils.
83
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Figure 50. An example of good construction procedures on the arctic
tundra. Note the absence of disturbance on the road margins and few
tracks on the adjacent tundra; west of Put River, arctic Alaska, July 21,
1970.
84
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00
01
Figure 51. An example of unsatisfactory road construction with melting borrow ditches and numerous
tracks from traffic on the tundra.
-------
00
cy>
Figure 52. Although tracks from winter operations remain
unstable if the tundra is not removed. This is a view of
all of these tracks are now green. July 21, 1970.
visible for years, they are
old tracks north of Sagwon,
not necessarily
arctic Alaska;
-------
00
Figure 53. An example of erosion on the tundra caused by improper use of equipment. The scene is
near that shown in Figure 52, hence, is in similar terrain; the significant difference is the care
taken to prevent damage in the case shown in Figure 52 and absence of proper care in the example shown
here. July 21, 1970.
-------
SECTION VII
ACKNOWLEDGEMENTS
This guide has drawn information from many sources and we wish to
acknowledge the assistance of the agencies that willingly shared their
time and knowledge: Bureau of Land Management, Department of the In-
terior; State Highway Department, State of Alaska; Alyeska Pipeline
Service Company; Department of Civil Engineering, University of Alaska;
Bureau of Public Roads, U.S. Department of Transportation.
We are grateful for the contributions of the several persons from
outside the Alaska Water Laboratory who reviewed this guide. Many of our
statements in earlier drafts were revised on the basis of their suggestions,
89
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SECTION VIII
ADDITIONAL CITED REFERENCES
Some of these references are cited in the text; most of them are listed
here to aid interested readers who desire to learn more about some of the
problems and procedures of road building in northern climates:
Alter, Amos J. Water Supply in Cold Regions^ Cold Regions Science and
Engineering Monograph IIICBa, Terrestrial Science Center, Hanover, N.H.,
1969.
Anonymous. Arctic and Subarctic Construction: Terrain Evaluation in
Arctic and Subarctic Regions, Technical Manual 5-852-8, Department of the
Army, 1966.
Anonymous. Arctic Construction, TM 5-349, U.S. Department of the Army,
328 pp., 1962.
Anonymous. Arctic Engineering, Technical Publication Navdocks TP-PW-
11, Department of the Navy, 1955.
Anonymous. Engineering and Design; Drainage for Areas Other Than Air-
fields, Engineering Manual EM 1110-345-284, Department of the Army, 1964.
Anonymous. Highway Environment Reference Book, Environmental Develop-
ment Division Office of Environmental Policy, Federal Highway Adminis-
tration, U.S. Department of Transportation, 1970.
Anonymous. Trans Alaska Pipeline System Stipulations. Bureau of Land
Management, U.S. Dept. of the Interior, September 1969 (revised
February 1970).
Bradner, Mike. "WASHO Meets in Anchorage...Faces the Ecology Issue,"
Alaska Construction and Oil, Vol. 11 No. 12, pp. 32-36, 1970.
Brandon, L.V. "Evidences of Ground Water in Permafrost Regions," Jji
Proc. Permafrost International Conference, pp. 176-177, 1963.
Brown, Roger J.E. Permafrost in Canada, University of Toronto Press,
234 pp., 1970.
Condo, Albert C., and Knight, George. "Design and Evaluation of Insulated
and Uninsulated Roadway Embankments for the Arctic," J_n. Proceedings,
91
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Symposium on Cold Regions Engineering, University of Alaska, College,
Alaska, 1971.
Ferrians, Oscar J., Kachadoorian, Reuben, and Greene, Gordon W. "Perma-
frost and Related Engineering Problems in Alaska," U.S. Geological
Survey, PP. 678.
Highway Research Record. Planning: Conservation of the Physical High-
way Environment, 5 reports, #271, Highway Research Board, Div. of
Engineering, N.R.C., N.A.S., 1969.
Johnson, Philip R. and Hartman, Charles W. Environmental Atlas of
Alaska, Institute of Arctic Environmental Engineering, University of
Alaska, 1969.
McCauley, Marvin L. "Engineering Geology Related to Highways and Free-
ways," Engineering Geology in Southern California, Association of En-
gineering Geologists, L.A., Spec. Publ. Lung, R. and Proctor, R., eds.,
pp. 116-121, 1966.
McHarg, Ian L. Design with Nature, National History Press, 198 pp. 1969.
Muller, Siemon. Permafrost, Edwards Bros., Inc., Ann Arbor, Mich., 1947.
Pearce, J. Kenneth. Forest Engineering Handbook, U.S.D.I., Bur. of Land
Management, Portland, Oregon, 1961.
Peyton, H.R. "Thermal Design in Permafrost Soils," In. Proc- of Third
Canadian Conference on Permafrost, pp. 85-119, 1969.
Pewe, Troy L. "Ice Wedges in Alaska—Classification, Distribution, and
Climatic Significance," Ir± Proc. Permafrost International Conference,
pp. 76-81, 1963.
Philleo, E.S. "Guides for Engineering Projects on Permafrost," J^n Proc.
Permafrost International Conference, pp. 508-509, 1963.
Sebastyan, G.Y. "Department of Transportation Procedures for the Design
of Pavement Facilities and Foundation Structures in Permafrost Subgrade
Soil Areas," Ij}_ First Canadian Conference on Permafrost, pp. 167-206,
1962.
Shumway, R.D. Field Soils Manual, State of Alaska, Department of
Highways, Materials Section, 1966.
State of Alaska, Department of Highways. Manual of Standard Practice
for Materials Investigations, Engineering Geology Branch, Materials
Section, 1967.
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Thomson, S. "Icings on the Alaska Highway," lr\_ Proc. of Permafrost
International Conference, Bldg. Adv. Bd., N.A.S., N.R.C., pp. 526-529,
1963.
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SECTION IX
GLOSSARY
Active layer; the upper layer of permafrost that undergoes an annual
freeze-thaw cycle.
Aquatic ecosystem: the life system of any body of water. It includes
all forms of life living in or associated with the water, the water
itself, and all physical factors affecting life in the water. Such a
system is in dynamic equilibrium, sometimes a tenuous equilibrium, and
all parts are interrelated so that slight changes in any one may affect
the entire system. For such a system to remain viable, major portions
must fulfill their roles, from primary producers to the intermediate
parts of the food web, to the highest predator, to decomposers which
make most of the energy and nutrients available for recycling. Such an
undisturbed system can continue its various life cycles without inter-
ruptions because it has evolved over time to make use of resources
available to it under the physical constraints of its total environment.
Damage: as used in this guide, some effect of man's activities that is
deleterious to life in a body of water or that lowers water quality. In
construction activities it usually takes the form of disturbing spawning
grounds by equipment in stream bottoms, sedimentation by silt and clay
on gravels which exclude oxygen, high turbidity which lowers light pene-
tration to reduce productivity, and accidental or intentional spilling
of petroleum products or other wastes into streams. Some of these
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effects are slight, some temporary, and some serious and of long dura-
tion; however, most, if not all, are preventable if positive steps are
taken to prevent such damage by using recommended procedures during the
construction process. Adverse effect on aquatic life is any effect that
interferes with the normal functioning of an aquatic ecosystem. Damage,
such as that described above, can result from natural processes, floods,
tidal waves, earthquakes, or fires as examples. These are usually not of
a persistent, recurring nature and must be accepted as part of the dynamic
evolution of landscapes and life in the earth ecosystem.
Fish spawning beds: the bottom areas in a stream or lake where fish
deposit their eggs.
Glacial stream; a stream draining a glacial valley, and includes melt
water from the ice mass with its finely ground particles to give a highly
turbid water. These small particles arise from the grinding action of
the moving ice on bedrock and cease to be produced if the ice is station-
ary. Many glacial streams are clear in winter because freezing immobi-
lizes meltwater. As an example, Tanana River runs clear most of the year
under the ice although it is extremely turbid in summer when glaciers are
active and large quantities of meltwater are produced.
Loessial soil: soil developed from wind-deposited, fine-grained material
(silt and finer).
Patterned ground: polygons, visible as surface features, that result
from repeated cycles of freezing and thawing of surface material.
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Permafrost: permanently frozen ground:
(a) Continuous: areas of deep frozen ground (up to 1200 feet thick)
whose temperature at depth of zero amplitude (where temperature shows
no annual fluctuation) is less than 5°C below freezing.
(b) Discontinuous: areas of permafrost where the temperature at depth
of zero amplitude ranges from 0.5°C to about 4°C below freezing.
Pollution: the process of adding man's generated wastes to any water
body in sufficient quantities to have a deleterious effect on organisms
living in or depending on the water. Eroded materials, arising from road
building, that are deposited in streams, are thus classified as pollutants
as are similar materials from mining or gravel washing operations. Pol-
lution is not restricted to organic contamination (bacteria and sewage,
as examples), but includes all wastes from man's activities that, upon
entering any water, has an adverse effect on the biology of the water and
interferes with other beneficial uses of that water.
Restoration: making the raw scars of construction blend in with the
original landscape. Public pressure for restoring evidence of construc-
tion is becoming apparent because it is now realized that everyday activi-
ties are more enjoyable in a natural environment and costs for such work
should be part of the construction contract. Moreover, it has also been
shown that, if the initial plan includes restoration, costs of restoration
are much smaller than if delayed. In addition, prompt restoration helps
to increase the esthetic appeal of a well-designed engineering work and
makes the costs more acceptable, stabilizes raw soil, and what is all
important, minimizes the impairment of the total environment.
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Sedimentation: as defined by Webster, the action or process of depositing
sediment; and so it will be used in this report. (Sediment is: (1) the
matter that settles to the bottom of a liquid, and (2) material deposited
by water, wind, or glaciers.) Silt, used as a verb, has the connotation
of sedimentation or the process; silt, as a noun, is the fine material
carried by water or wind; siltation is the process of depositing silt-
sized particles in water. The overall process of depositing all particle
sizes is sedimentation and does not have the bias of size specification;
this term is the preferred one and is used throughout this guide.
Where clarification of meaning is needed, when dealing with specific
sizes, it is provided during that discussion.
Toxic substances: similar in meaning to poisons; substances which may
have serious adverse effects. Some examples are copper, mercury, lead,
and pesticides, all of which have deleterious effects or are lethal to
most life when present above certain limits.
Tundra: the layer of live and decomposed plant material over continous
permafrost, usually restricted to the treeless regions of the Arctic.
Turbidity: suspended particulate material in a body of water. The main
objections to turbidity are its appearance, the exclusion of light for
photosynthesis, and the physical effect of particles on stream organisms.
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SECTION X
APPENDIX
This appendix is arranged in the present order to demonstrate several
events: (1) the national concern with environment as evidenced by P.L.
91-190, National Environmental Policy Act of 1969; (2) prompt implementa-
tion of provisions of the act evidenced by Executive Order 11514; and
(3) a series of Instructional Memorandums by the U.S. Department of
Transportation dealing with highway construction in response to this
Executive Order. The various sections of the appendix serve to illus-
trate how and why this guide was prepared; to bring to the attention
of all persons concerned with road building that its provisions and
recommendations result from a national concern with the need for pro-
tecting our entire environment. This particular guide is to be applied
to Alaskan conditions and will be made available to the general public,
State and Federal agencies, public representatives, and especially to
those who are directly involved with road building: engineers, con-
tractors, and equipment operators.
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Public Law 91-190
91st Congress, S. 1075
January 1, 1970
AN ACT
To establish a national policy for the environment, to provide for the
establishment of a Council on Environmental Quality, and for other
purposes.
Be it enacted by the Senate and House of Representatives of the United
States of America in Congress assembled^ That this Act may be cited as
the "National Environmental Policy Act of 1969".
PURPOSE
SEC. 2. The purposes of this Act are: To declare a national policy
which will encourage productive and enjoyable harmony between man and
his environment; to promote efforts which will prevent or eliminate
damage to the environment and biosphere and stimulate the health and
welfare of man; to enrich the understanding of the ecological systems
and natural resources important to the Nation, and to establish a Council
on Environmental Quality.
TITLE I
DECLARATION OF NATIONAL ENVIRONMENTAL POLICY
SEC. 101. (a) The Congress, recognizing the profound impact of man's
activity on the interrelations of all components of the natural environ-
ment, particularly the profound influences of population growth, high-
density urbanization, industrial expansion, resource exploitation, and
new and expanding technological advances and recognizing further the
critical importance of restoring and maintaining environmental quality
to the overall welfare and development of man, declares that it is the
continuing policy of the Federal Government, in cooperation with State
and local governments, and other concerned public and private organiza-
tions, to use all practicable means and measures, including financial and
technical assistance, in a manner calculated to foster and promote the
general welfare, to create and maintain conditions under which man and
nature can exist in productive harmony, and fulfill the social, economic,
and other requirements of present and future generations of Americans.
(b) In order to carry out the policy set forth in this Act, it is
the continuing responsibility of the Federal Government to use all prac-
ticable means, consistent with other essential considerations of
national policy, to improve and coordinate Federal plans, functions,
programs, and resources to the end that the Nation may--
(1) fulfill the responsibilities of each generation as trustee of
the environment for succeeding generations:
(2) assure for all Americans safe, healthful, productive, and
esthetically and culturally pleasing surroundings;
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(3) attain the widest range of beneficial uses of the environment
without degradation, risk to health or safety, or other undesirable and
unintended consequences;
(4) preserve important historic, cultural, and natural aspects of our
national heritage, and maintain, wherever possible, an environment which
supports diversity and variety of individual choice;
(5) achieve a balance between population and resource use which will
permit high standards of living and a wide sharing of life's amenities;
and
(6) enhance the quality of renewable resources and approach the
maximum attainable recycling of depletable resources.
(c) The Congress recognizes that each person should enjoy a health-
ful environment and that each person has a responsibility to contribute
to the preservation and enhancement of the environment.
SEC. 102. The Congress authorizes and directs that, to the fullest
extent possible: (1) the policies, regulations, and public laws of the
United States shall be interpreted and administered in accordance with
the policies set forth in this Act, and (2) all agencies of the Federal
Government shall —
(A) utilize a systematic, interdisciplinary approach which will
insure the integrated use of the natural and social sciences and the
environmental design arts in planning and in decisionmaking which may
have an impact on man's environment;
(B) identify and develop methods and procedures, in consultation
with the Council on Environmental Quality established by title II of
this Act, which will insure that presently unquantified environmental
amenities and values may be given appropriate consideration in decision-
making along with economic and technical considerations;
(C) include in every recommendation or report on proposals for
legislation and other major Federal actions significantly affecting the
quality of the human environment, a detailed statement by the responsible
official on~
(i) the environmental impact of the proposed action,
(ii) any adverse environmental effects which cannot be avoided
should the proposal be implemented,
(iii) alternatives to the proposed action,
(iv) the relationship between local short-term uses of man's
environment and the maintenance and enhancement of long-term
productivity, and
(v) any irreversible and irretrievable commitments of resources
which would be involved in the proposed action should it be
implemented.
Prior to making any detailed statement, the responsible Federal official
shall consult with and obtain the comments of any Federal agency which
has jurisdiction by law or special expertise with respect to any envi-
ronmental impact involved. Copies of such statement and the comments
and views of the appropriate Federal, State, and local agencies, which
are authorized to develop and enforce environmental standards, shall be
made available to the President, the Council on Environmental Quality
and to the public as provided by section 552 of title 5. United States
Code, and shall accompany the proposal through the existing agency
review processes;
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(D) study, develop, and describe appropriate alternatives to recom-
mended courses of action in any proposal which involves unresolved
conflicts concerning alternative uses of available resources;
(E) recognize the worldwide and long-range character of environ-
mental problems and, where consistent with the foreign policy of the
United States, lend appropriate support to initiatives, resolutions,
and programs designed to maximize international cooperation in antici-
pating and preventing a decline in the quality of mankind's world
environment;
(F) make available to States, counties, municipalities, institu-
tions, and individuals, advice and information useful in restoring,
maintaining, and enhancing the quality of the environment;
(G) initiate and utilize ecological information in the planning and
development of resource-oriented projects; and
(H) assist the Council on Environmental Quality established by
title II of this Act.
SEC. 103. All agencies of the Federal Government shall review their
present statutory authority, administrative regulations, and current
policies and procedures for the purpose of determining whether there
are any deficiencies or inconsistencies therein which prohibit full
compliance with the purposes and provisions of this Act and shall pro-
pose to the President not later than July 1, 1971, such measures as may
be necessary to bring their authority and policies into conformity with
the intent, purposes, and procedures set forth in this Act.
SEC. 104. Nothing in Section 102 or 103 shall in any way affect the
specific statutory obligations of any Federal agency (1) to comply with
criteria or standards of environmental quality, (2) to coordinate or
consult with any other Federal or State agency, or (3) to act, or refrain
from acting contingent upon the recommendations or certification of any
other Federal or State agency.
SEC. 105. The policies and goals set forth in this Act are supplemen-
tary to those set forth in existing authorizations of Federal agencies.
TITLE II
COUNCIL ON ENVIRONMENTAL QUALITY
SEC. 201. The President shall transmit to the Congress annually begin-
ning July 1, 1970, an Environmental Quality Report (hereinafter refer-
red to as the "report") which shall set forth (1) the status and condi-
tion of the major natural, manmade, or altered environmental classes of
the Nation, including, but not limited to, the air, the aquatic,
including marine, estuarine, and fresh water, and the terrestrial
environment, including, but not limited to, the forest, dryland, wet-
land, range, urban, suburban, and rural environment; (2) current and
foreseeable trends in the quality, management and utilization of such
environments and the effects of those trends on the social, economic,
and other requirements of the Nation; (3) the adequacy of available
natural resources for fulfilling human and economic requirements of the
Nation in the light of expected population pressures; (4) a review of
the programs and activities (including regulatory activities) of the
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Federal Government, the State and local governments, and nongovernmental
entities or individuals, with particular reference to their effect on the
environment and on the conservation, development and utilization of
natural resources; and (5) a program for remedying the deficiencies of
existing programs and activities, together with recommendations for
legislation.
SEC. 202. There is created in the Executive Office of the President a
Council on Environmental Quality (hereinafter referred to as the "Coun-
cil"). The Council shall be composed of three members who shall be ap-
pointed by the President to serve at his pleasure, by and with the advice
and consent of the Senate. The President shall designate one of the
members of the Council to serve as Chairman. Each member shall be a
person who, as a result of his training, experience, and attainments, is
exceptionally well qualified to analyze and interpret environmental trends
and information of all kinds: to appraise programs and activities of the
Federal Government in the light of the policy set forth in title I of this
Act; to be conscious of and responsive to the scientific, economic, social,
esthetic, and cultural needs and interests of the Nation; and to formulate
and recommend national policies to promote the improvement of the quality
of the environment.
SEC. 203. The Council may employ such officers and employees as may be
necessary to carry out its functions under this Act. In addition, the
Council may employ and fix the compensation of such experts and consult-
ants as may be necessary for the carrying out of its functions under this
Act, in accordance with section 3109 of title 5, United States Code (but
without regard to the last sentence thereof).
SEC. 204. It shall be the duty and function of the Council —
(1) to assist and advise the President in the preparation of the
Environmental Quality Report required by section 201;
(2) to gather timely and authoritative information concerning the
conditions and trends in the quality of the environment both current
and prospective, to analyze and interpret such information for the
purpose of determining whether such conditions and trends are inter-
fering, or are likely to interfere, with the achievement of the policy
set forth in title I of this Act, and to compile and submit to the
President studies relating to such conditions and trends;
(3) to review and appraise the various programs and activities of
the Federal Government in the light of the policy set forth in title
I of this Act for the purpose of determining the extent to which such
programs and activities are contributing to the achievement of such
policy, and to make recommendations to the President with respect
thereto;
(4) to develop and recommend to the President national policies to
foster and promote the improvement of environmental quality to meet
the conservation, social, economic, health, and other requirements and
goals of the Nation;
(5) to conduct investigations, studies, surveys, research, and
analyses relating to ecological s^tems and environmental quality;
(6) to document and define changes in the natural environment,
including the plant and animal systems, and to accumulate necessary data
and other information for a continuing analysis of these changes or
trends and an interpretation of their underlying causes;
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(7) to report at least once each year to the President on the
state and condition of the environment; and
(8) to make and furnish such studies, reports thereon, and recom-
mendations with respect to matters of policy and legislation as the
President may request.
SEC. 205. In exercising its powers, functions, and duties under this
Act, the Council shall-- .
(1) consult with the Citizens' Advisory Committee on Environmental
Quality established by Executive Order numbered 11472, dated May 29,
1969, and with such representatives of science, industry, agriculture,
labor, conservation organizations, State and local governments and
other groups, as it deems advisable; and
(2) utilize, to the fullest extent possible, the services, facili-
ties, and information (including statistical information) of public
and private agencies and organizations, and individuals, in order that
duplication of effort and expense may be avoided, thus assuring that
the Council's activities will not unnecessarily overlap or conflict
with similar activities authorized by law and performed by established
SEC. 206*. Members of the Council shall serve full time and the Chair-
man of the Council shall be compensated at the rate provided for Level
II of the Executive Schedule Pay Rates (5 U.S.C. 5313). The other
members of the Council shall be compensated at the rate provided for
Level IV of the Executive Schedule Pay Rates (5 U.S.C. 5315).
SEC. 207. There are authorized to be appropriated to carry out the
provisions of this Act not to exceed $300,000 for fiscal year 1970,
$700,000 for fiscal year 1971, and $1,000,000 for each fiscal year
thereafter.
Approved January 1, 1970.
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PROTECTION AND ENHANCEMENT OF ENVIRONMENTAL QUALITY
Executive Order 11514 - March 5, 1970
By virtue of the authority vested in me as President of the United
States and in furtherance of the purpose and policy of the National
Environmental Policy Act of 1969 (Public Law No. 91-190, approved
January 1, 1970), it is ordered as follows:
SECTION 1. Policy. The Federal Government shall provide leader-
ship in protecting and enhancing the quality of the Nation's environment
to sustain and enrich human life. Federal agencies shall initiate
measures needed to direct their policies, plans and programs so as to
meet national environmental goals. The Council on Environmental Quality,
through the Chairman, shall advise and assist the President in leading
this national effort.
SEC. 2. Responsibilities of Federal agencies. Consonant with
Title I of the National Environmental Policy Act of 1969, hereafter
referred to as the "Act", the heads of Federal agencies shall:
(a) Monitor, evaluate, and control on a continuing basis their
agencies' activities so as to protect and enhance the quality of the
environment. Such activities shall include those directed to control-
ling pollution and enhancing the environment and those designed to
accomplish other program objectives which may affect the quality of the
environment. Agencies shall develop programs and measures to protect
and enhance environmental quality and shall assess progress in meeting
the specific objectives of such activities. Heads of agencies shall
consult with appropriate Federal, State and local agencies in carrying
out their activities as they affect the quality of the environment.
(b) Develop procedures to ensure the fullest practicable provision
of timely public information and understanding of Federal plans and
programs with environmental impact in order to obtain the views of
interested parties. These procedures shall include, whenever appropri-
ate, provision for public hearings, and shall provide the public with
relevant information, including information on alternative courses of
action. Federal agencies shall also encourage State and local agencies
to adopt similar procedures for informing the public concerning their
activities affecting the quality of the environment.
(c) Insure that information regarding existing or potential envi-
ronmental problems and control methods developed as part of research,
development, demonstration, test, or evaluation activities is made
available to Federal agencies, States, counties, municipalities, insti-
tutions, and other entities, as appropriate.
(d) Review their agencies statutory authority, administrative
regulations, policies, and procedures, including those relating to loans,
grants, contracts, leases, licenses, or permits, in order to identify
any deficiencies or inconsistencies therein which prohibit or limit full
compliance with the purposes and provisions of the Act. A report on
this review and the corrective actions taken or planned, including such
measures to be proposed to the President as may be necessary to bring
their authority and policies into conformance with the intent, purposes,
and procedures of the Act, shall be provided to the Council on Environ-
mental Quality not later than September 1, 1970.
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(e) Engage tn exchange of data and research results, and cooperate
With, agencies of other governments to foster the purposes of the Act.
(f) Proceed, in coordination with other agencies, with actions
required by section 102 of the Act.
SEC. 3. Responsibilities of Council on Environmental Quality.
The Council on Environmental Quality shall:
(a) Evaluate existing and proposed policies and activities of the
Federal Government directed to the control of pollution and the enhance-
ment of the environment and to the accomplishment of other objectives
which affect the quality of the environment. This shall include continuing
review of procedures employed in the development and enforcement of Federal
standards affecting environmental quality. Based upon such evaluations
the Council shall, where appropriate, recommend to the President policies
and programs to achieve more effective protection and enhancement of
environmental quality and shall, where appropriate, seek resolution of
significant environmental issues.
(b) Recommend to the President and to the agencies priorities
among programs designed for the control of pollution and for enhancement
of the environment.
(c) Determine the need for new policies and programs for dealing
with environmental problems not being adequately addressed.
(d) Conduct, as it determines to be appropriate, public hearings
or conferences on issues of environmental significance.
(e) Promote the development and use of indices and monitoring
systems (1) to assess environmental conditions and trends, (2) to predict
the environmental impact of proposed public and private actions, and (3)
to determine the effectiveness of programs for protecting and enhancing
environmental quality.
(f) Coordinate Federal programs related to environmental quality.
(g) Advise and assist the President and the agencies in achieving
international cooperation for dealing with environmental problems, under
the foreign policy guidance of the Secretary of State.
(h) Issue guidelines to Federal agencies for the preparation of
detailed statements on proposals for legislation and other Federal actions
affecting the environment, as required by section 102(2)(C) of the Act.
(i) Issue such other instructions to agencies, and request such
reports and other information from them, as may be required to carry
out the Council's responsibilities under the Act.
(j) Assist the President in preparing the annual Environmental
Quality Report provided for in section 201 of the Act.
(k) Foster investigations, studies, surveys, research, and analyses
relating to (i) ecological systems and environmental quality, (ii) the
impact of new and changing technologies thereon, and (iii) means of pre-
venting or reducing adverse effects from such technologies.
SEC. 4. Amendments of E.O. 11472. Executive Order No. 11472 of
May 29, 1969, including the heading thereof, is hereby amended:
(1) By substituting for the term "the Environmental Quality
Council", wherever it occurs, the following: "the Cabinet Committee
on the Environment".
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(2) By substituting for the term "the Council", wherever it occurs,
the following: "the Cabinet Committee".
(3) By inserting in subsection (f) of section 101, after "Budget,",
the following: "the Director of the Office of Science and Technology,".
(4) By substituting for subsection (g) of section 101 the
following:
"(g) The Chairman of the Council on Environmental Quality (estab-
lished by Public Law ^91-190) shall assist'the President in directing the
affairs of the Cabine't Committee."
(5) By deleting subsection (c) of section 102.
(6) By substituting for "the Office of Science and Technology",
in section 104, the following: "the Council on Environmental Quality
(established by Public Law 91-190)"
(7) By substituting for "(hereinafter referred to as the "Commit-
tee")", in section 201, the following: "(hereinafter referred to as the
"Citizens' Committee")".
(8) By substituting for the term "the Committee", wherever it
occurs, the following: "the Citizen's Committee".
RICHARD NIXON
The White House
March 5, 1970
[Filed with the Office of the Federal Register, 2:20 p.m., March 5, 1970]
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Attachment 2; IM 20-6-67
U.S. DEPARTMENT OF TRANSPORTATION
FEDERAL HIGHWAY ADMINISTRATION
BUREAU OF PUBLIC ROADS
REPORT
ON
GUIDELINES FOR MINIMIZING POSSIBLE
SOIL EROSION FROM HIGHWAY CONSTRUCTION
(July 1, 1967)
NATURE AND SCOPE OF PROBLEM
Recent Federal legislation and executive orders have emphasized the
need to conserve our natural resources. Pollution abatement, erosion
control, and beautification of highway rights-of-way are major areas
of concern. The control of soil and water is basic to this conserva-
tion effort; therefore, highway construction and maintenance must be
continually evaluated to minimize erosion that scars the landscape and
creates pollution problems.
All highway agencies recognize the detrimental effects of erosion
within the highway right-of-way and give special attention in design
to preventive measures where such measures are needed. The success of
these measures is evidenced by the many miles of highways now serving
the traveling public without serious erosion scars. Highways not
properly located, designed, constructed, or maintained are at times
subject to erosion and may contribute to stream pollution. Serious ero-
sion not only results in unsightly conditions and increased maintenance
costs, but sometimes causes safety hazards.
A highway built to modern standards has few erosion problems after its
completion, particularly if good maintenance practices are followed.
Highway builders are usually criticized because of erosion during con-
struction, but few data exist to evaluate damages from erosion that
takes place during the construction period. Good engineering demands
an evaluation of the problem as a basis for imposing controls.
Problems encountered in finding feasible ways to minimize erosion are
varied and complex. Several disciplines of science and engineering
are required to reach an acceptable solution to most erosion problems.
Adequate technical competence of both the contracting agencies and the
contractors is necessary. Highway designers, project engineers, and
maintenance personnel need the advice of hydrolegists, hydraulic engi-
neers, soil engineers, soil scientists, agronomists, landscape archi-
tects, and other specialists to minimize erosion problems. Emphasis
must be placed on the extra cost to the contractor for correcting ero-
sion damage resulting from poor construction practices; the economic
effect of occasional pollution of stream, lakes, and water supplies;
and the lower costs of maintaining the roadsides and constructed
slopes of highways built to minimize erosion.
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Development and training of personnel in erosion preventive measures
that should be considered in the location, design, construction, and
maintenance of highway facilities must be increasingly stressed. Much
research information and many practicable techniques for minimizing
erosion are available in research publications and design bulletins
but refresher courses and promotion of the use of these data are badly
needed. Guidelines and design manuals serve an excellent purpose but
they alone are not enough. Adequate technical staffs in the various
highway agencies are necessary to cooperate with agencies at all govern-
mental levels which are responsible for the prevention, abatement, and
control of pollution and soil and water conservation.
The Bureau of Public Roads emphasizes erosion control on Federally
financed highway construction by issuing memorandums and instructional
material, by reviewing plans and specifications, by conducting schools
and conferences, and by making field inspections of construction work
done by State and local agencies. During the past year the Bureau of
Public Roads has requested all State highway departments to review and
revise, if found necessary, all sections of specifications that relate
to control of erosion and pollution during or as a result of highway
construction. Time will be required to inspect construction operations
and evaluate the effectiveness of the States' specifications.
Direct Federal construction of highways is controlled by the Bureau of
Public Roads "Standard Specifications for Construction of Roads and
Bridges on Federal Highway Projects (January 1961)." These specifica-
tions require that the contractor ". . . conduct and schedule his
operations so as to avoid or minimize siltation of streams, lakes, and
reservoirs . . ." (Article 8.3(g), p. 22). Article 102-3.6 (p. 40)
requires that "During the constriction of the roadway, the roadbed
shall be maintained in such condition that it will be well drained at
all times. Side ditches or gutters emptying from cuts to embankments
or otherwise shall be so constructed as to avoid damage to embankments
by erosion." Other sections of the specifications give detailed
requirements to accomplish these objectives.
The policy of the Bureau of Public Roads and of the State highway
agencies is well stated on page 216 of the American Association of State
Highway Officials publication, "A Policy on Geometric Design of Rural
Highways," 1965, as follows:
"Erosion prevention is one of the major factors in the design,
construction and maintenance of highways. Erosion can be
controlled to a considerable degree by geometric design, par-
ticularly that relating to the cross section. In some respects
the control is directly associated with proper provision for
drainage and fitting landscape development. Effect on erosion
should be considered in the location and design stages.
"Erosion and maintenance are minimized largely by the use of:
flat side slopes, rounded and blended with natural terrain;
drainage channels designed with due regard to width, depth,
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slopes, alinement, and protective treatment; inlets located
and spaced with erosion control ira mind; prevention of ero-
sion at culvert outlets; proper facilities for ground water
interception; dikes, berms, and other protective devices; and
protective ground covers and planting."
The quoted publication is used by both the Bureau of Public Roads and
the State highway agencies as a design guide.
GUIDELINES FOR EROSION CONTROL
Although some standardization of methods for minimizing soil erosion in
highway construction is possible, national guidelines for the control
of erosion must necessarily be of a general nature because of the wide
variation in climate, topography, geology, and soils encountered in
different parts of the country. For example, erosion control must be
given careful attention in the design of a highway traversing an area
of rough topography, erodible soils, high and constant wind velocities,
and heavy precipitation. A high degree of erosion control is required
in a watershed that is the collecting area for a public water supply or
a recreational facility.
Erosion control guidelines should encompass all phases of highway engi-
neering to realize economical and effective control of erosion that
might occur. These guidelines are stated under the headings: Planning
and Location, Design Features, Construction Practice, Maintenance,
Research and Development, and Legal Requirements and Responsibilities.
Planning and Location
Effective erosion control begins in the planning and location of a high-
way route. Control of water and knowledge of the soils to be encountered
are basic in determining measures for preventing erosion and the movement
of sediment. A highway location selected with due consideration of prob-
lems associated with these basic elements will greatly reduce erosion
problems during and after construction.
The natural drainage pattern, soils and geology of the area, and manmade
features that are associated with erosion and sediment should be
examined for each route considered and should be a major factor in
selecting the route to be used. Potential landslide areas, stream
crossings and encroachments, and the magnitude of cut and fill sections
should be evaluated relative to construction problems that will arise in
reducing erosion and in preventing sediment and turbid water from entering
streams, water supplies and irrigation systems. Preliminary soil surveys,
geologic investigations, and hydrologic studies are necessary to define
potential problem areas.
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Cooperation with Federal, State, and local agencies having jurisdiction
over water resources, soil conservation, and irrigation should begin in
the planning and location stage. Technical information, data, stand-
ards, and guidelines available from all levels of other agencies are of
considerable value in planning the extent of erosion-prevention meas-
ures deemed necessary and in defining problems likely to be encountered
from erosion and from stream pollution by sediment, other minerals, and
contaminants. Usually only limited sediment and turbidity data are
available for natural streams, reservoirs, and lakes during floods.
Therefore, special effort should be made by the highway agency to docu-
ment the initial conditions in order to fix responsibility if claims and
litigation arise after the construction has begun. Controls or limita-
tions that may be imposed by other agencies on the construction con-
tractor's operations should be investigated early in the planning of a
highway so that necessary modifications in designs and specifications
can be made before the project is advertised for bids.
Design Features
Many problems involving erosion during and after construction can be
avoided by proper design. Careful selection of alinement and grace of
a highway is as important as the general location. Special effort
should be made to minimize disturbance of the soil. Slopes of the road-
way cross sections should be based on soil stability, climatic exposure,
geology, proposed landscape treatment, and maintenance procedures to be
followed. The cross section should be varied, if necessary, on a par-
ticular project to minimize erosion and to facilitate safety and drainage.
Generally, good landscaping and drainage design are compatible with both
erosion control and safety to vehicles.
Erosion is usually caused by concentrated runoff or by the impact of
rain falling on unprotected soil or unstable rock. In some areas, ero-
sion is caused by wind or runoff from snow melt. The erosion potential
should be estimated and measures to prevent erosion selected on the
basis of both the effectiveness of the control measures and the conse-
quences of the erosion. In most instances the designer has a wide range
of choice in type of erosion-control measures; but intensity of rainfall,
the season of the year, severity of erosion, and cost must all be con-
sidered in the design selected. Design for erosion control is complex
and should be done by trained specialists.
Some features of a highway are more vulnerable to erosion than others
and therefore, require special consideration at the design stage. Guide-
lines for the treatment of erosion in several of these critical areas
and for the design of erosion and sediment control structures follow:
a. Earth cut and fill slopes — Severe erosion of earth slopes is
usually caused by a concentration of storm water flowing from the
roadway section or from the area at the top of cut slopes down
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unprotected embankments or other slopes. Preventing concentration
of water in these critical areas is essential. Channels, ditches,
berms, or shoulder dikes for diverting water to satisfactory out-
falls should be constructed at appropriate locations early in the
construction of the project. Rainfall on cut and fill slopes will
cause erosion to varying degrees, depending on the intensity of
rainfall, the type of soil, the degree of slope, the length of the
exposed surface, the climatic exposure, and the effectiveness of
the vegetative or other protective cover. Benches or terraces,
enclosed drainage systems, or the mulching or covering of the soil
with various materials may be required to reduce slope erosion.
The need for and the type of protection should be determined in
the design stage. Protective treatment of cut and fill slopes,
whether temporary or permanent, should be a part of the grading
contract and should be applied insofar as practicable as the
grading operations progress.
b. Waterways or channels — Surface channels, natural or manmade,
are usually the most economical means of collecting and disposing
of runoff in highway construction. Such channels, however, if not
designed properly, can create serious erosion problems.
Care in the location and the design of roadway channels is neces-
sary both for efficient drainage and for traffic safety. A primary
design principle is to provide channels with flat side slopes and
wide bottoms, protected adequately to avoid soil erosion. If
designs, such as rectangular concrete channels, are needed to accom-
modate flood flows, the channel should be placed at a safe distance
from the traveled way or a barrier erected to protect traffic.
Sometimes drainage easements are necessary to provide a well
designed and safe channel.
Protective linings for channels and streams can be very expensive
and a considerable percentage of the highway dollar is spent on
this item of work. Special effort must be made to develop the
lowest-cost type of erosion protection for the particular location.
Channel design and protective treatments are discussed in Hydraulic
Design Series No. 4, "Design of Roadside Drainage Channels," pub-
lished by the Bureau of Public Roads and available from the
Government Printing Office. Field manuals and publications of the
Soil Conservation Service also contain valuable channel design
information. Several research projects are in progress to develop
more economical and satisfactory channel linings.
c. Structures for erosion control — Special structures other than
open channels are used in highway construction to convey water and
to control erosion. Grade-control structures, energy dissipators,
special culverts, and various types of pipelines have been used for
this purpose. These structures are usually costly and are recom-
mended for use only after it has been determined that vegetation,
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rock, or other types of treatment will not control the anticipated
erosion. As a general rule, designers should avoid large accumu-
lations of flowing water and use a type of erosion protection that
keeps velocities to a minimum. Such a guideline will minimize
erosion and avoid the need for costly erosion-control structures.
Where such structures are required, designs should receive care-
ful attention since these structures are vulnerable to failure or
are ineffective if not properly designed and installed. Erosion
caused by high velocity flows at the outlet of highway structures
deserves particular attention.
Most highway departments have standard designs for various types
of erosion-control structures. Considerable use is made of Soil
Conservation Service and Bureau of Reclamation publications con-
taining designs for this purpose. If unusual and expensive designs
are contemplated, model testing is often desirable to study per-
formance. Models frequently show needed modifications or refine-
ments in design that improve performance and effect considerable
saving in the construction costs.
d. Detention or sedimentation basins — Small dams can be placed
in a waterway to form reservoirs or basins for detaining flood
water and trapping sediment caused by erosion. Such dams can be
of the temporary or permanent type, depending on the need. A high-
way embankment can serve as a dam for this purpose at some locations.
The Soil Conservation Service and several highway departments have
developed special culvert designs that control degrading of stream
channels and detain sediment and flood water.
Dams for trapping sediment must be properly located and designed
because failure during a major flood could have consequences far
greater than most sediment problems created by highway construction.
Health and safety hazards, methods of disposing of the trapped sedi-
ment and the future flood potential must also be evaluated.
e. Soil treatment — The use of grasses or other plants for land-
scaping and erosion control which are not ecologically adapted to a
particular area usually results in poor erosion control and increased
maintenance. Every effort should be made to use ecologically adapted
vegetation that will survive in a particular area with minimum main-
tenance. Proven soil conservation practices, including the use of
mulches and temporary protective measures, are all important in
developing permanent vegetative covers. Irrigation is often required
to establish ground cover or maintain a satisfactory stand in semi-
arid areas. With further development, dust palliatives may be
effective in erosion control, particularly in arid areas where wind
erosion is a problem. Agronomists who have a technical knowledge of
soils and plants of the area can be very helpful in suggesting
methods and kinds of treatments. Cooperation with local offices of
the Soil Conservation Service in developing new methods and hardy
strains of grass or other plants to resist erosion has been found
beneficial by the State highway departments.
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Construction Practice
The plans, specifications, and special provisions of a highway contract
should be explicit in showing the location, scope, and manner of per-
forming erosion-control measures. If deficiencies in the design or
performance of these measures are discovered during construction, the
engineer should take immediate steps for correction. Measures left to
the discretion of the engineer should be as few as practicable and the
method of measurement and payment for such work should be stated in the
contract.
Proper planning and scheduling of construction operations are major
factors in controlling erosion. A construction schedule that meets the
highway agency's requirements for erosion control should be made a part
of the construction project proposal or a schedule should be submitted
by the contractor for approval by the engineer. Sufficient erosion-
control measures should be included as a part of the initial grading
contract. On subsequent paving or other contracts, the project engi-
neer should not allow construction operations which contribute to soil
erosion.
Permanent soil protection and drainage facilities should be completed
as early as practicable, particularly intercepting channels and similar
controls that will divert runoff from work areas and unprotected soil.
Sections of bare earth and the length of their exposure to erosion
should be minimized by proper scheduling and limiting the work areas
with consideration of the program of the contractor and climatic condi-
tions. Temporary protection such as fiber mats, plastic, straw, dust
palliatives, and fast-growing grasses may be required in some areas to
prevent erosion from water or wind on newly completed slopes. Partially
completed drainage structures should be inspected carefully during con-
struction to prevent unnecessary erosion and to avoid damage to these
structures.
Special precautions should be taken in the use of construction equip-
ment to prevent operations which promote erosion. Wheel tracks from
heavy equipment are expecially vulnerable to erosion from the concen-
tration of water. Fording of streams with equipment should be kept to
a minimum, and in locations where frequent crossings of streams are
contemplated, temporary bridges or culverts should be constructed if
the sediment created is detrimental to fish and wildlife, water supplies,
or irrigation systems. Plans by a contractor for work roads showing the
method of construction, erosion-control measures, and restoration should
be approved by the engineer.
Although disturbance by highway construction of streams, lakes, or
reservoirs should be avoided, drainage structures, channel changes,
and embankment encroachemnts are sometimes necessary in building a highway.
Specifications or special provisions should include controls for the con-
tractor's operation in performing work in these areas, particularly in
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conforming with regulations of water resource and fish and wildlife
agencies. Some types of construction and stream conditions may neces-
sitate the construction of diversion dikes or other protective measures
to avoid sediment problems. Embankment slopes that encroach on stream
channels should be adequately protected against erosion. Where
practicable, a protective area of vegetative cover should be left or
established between the highway embankment and adjacent stream chan-
nels. At some locations, temporary or permanent training works placed
in the channel can reduce bed or bank scour.
Areas for borrow pits and waste disposal should be selected with full
consideration of erosion control during borrow operations, and the
final treatment or restoration of the area. When it becomes necessary
to locate such areas near or in stream channels, special precautions
should be taken to minimize erosion and accompanying sediment problems.
Regardless of the responsibility for the selection of borrow areas,
whether it be the contractor or the contracting agency, plans of opera-
tion and of restoration, or cleanup and shaping should be approved by
the engineer.
Before borrow or disposal operations are begun, plans for the control
of drainage water must include measures to keep sediment from entering
streams. Diversion channels, dikes, and sediment traps may be used for
this purpose. Good topsoil from the borrow pit area should be saved
for use in restoring the excavated area. Final restoration of borrow
or waste disposal areas should include grading, establishment of vege-
tative cover, or other necessary treatments that will blend the area
into the surrounding landscape. The restored area should be well
drained unless approval is given to convert the pit areas into lakes for
fish and wildlife, recreation, stock water, or irrigation.
Specifications should include adequate control for the prevention of
grass and brush fires since burned-over areas are usually highly vul-
nerable to erosion. In areas where a severe fire hazard exists, fire
equipment should be available for ready use. The contract should pro-
vide for suspending fire-hazardous operations at the direction of the
engineer or local fire control agency and compliance with local fire
regulations should be required.
Maintenance
Preventive maintenance built into the highway in the location, design,
and construction phases will save many dollars in maintenance costs.
Experts in soil conservation, agronomy, and drainage should be available
to assist in maintenance inspections and to recommend appropriate ero-
sion-control measures.
Inspections of drainage and erosion-control measures should be made
shortly after completion of construction to locate and correct deficiencies
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before they develop into major problems. Deficiencies in design or in
construction procedures should be discussed with the engineering staff
so that similar deficiencies can be prevented on future projects.
Coordination of responsibilities for erosion-control measures among
design, construction, and maintenance departments needs to be emphasized.
Because of the rapid turnover of maintenance personnel, frequent training
schools should be conducted in maintenance techniques, including methods
Of making inspections, care or management of vegetative covers and plants,
and measures to prevent and correct erosion.
Maintenance records should give sufficient detail to permit analysis of
maintenance problems, particularly those related to erosion control.
With the advent of the computer, coding of maintenance costs for the
various elements of the highway could serve in tabulating and analyzing
data for use in making changes in design and construction that will
reduce erosion problems and lower maintenance costs.
Research and Development
Although several State highway departments in cooperation with the Bureau
of Public Roads, the Department of Agriculture, and other agencies have
developed economical and practicable measures to control erosion, addi-
tional research is needed to improve present methods and provide even
more economical and effective means for preventing erosion both during
and subsequent to construction.
Methods and sequence of construction require further study in many areas
of the country. Weather conditions, soil characteristics, and types of
effective erosion-control measures vary, thus requiring a different
approach to the erosion problem. Investigations are needed to develop
protective covers and treatment of soils to avoid expensive sodding
practices and to reduce the cost of channel linings. Further develop-
ment in the use of dust palliatives could prove beneficial in areas
subject to wind erosion.
Data on the amount of sediment transported to streams due to erosion
during the construction of a highway are very limited. The increase of
sediment in a stream due to highway construction and its estimated dam-
age over that produced under natural conditions are not well defined.
Such information is necessary to evaluate properly the extent of con-
trols needed for the control of sediment during the construction of a
highway.
The Department of Agriculture, through its Agricultural Research Service
and Soil Conservation Service, has developed methods to prevent soil ero-
sion that are effective in specific areas of the country-. Many of their
designs and procedures are now being used in highway construction. An
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additional cooperative effort between the State highway departments and
the Department of Agriculture, especially in developing vegetation and
in improving soil conservation methods, should be actively promoted.
This cooperation will provide assurance that the best methods for pre-
venting erosion are being used.
Legal Requirements and Responsibilities
Legal requirements and governmental responsibilities in matters related
to water vary throughout the States. The responsibility for damage to
upstream and downstream property must be considered in highway design,
particularly with respect to flooding, erosion, and sediment. Statutes
in some States establish rigid controls in matters related to fish and
wildlife, pollution of streams and water supplies, irrigation, and
diversions of natural stream courses. It is the policy of the Bureau
of Public Roads to participate with Federal highway funds in construc-
tion of highway projects that meet the requirements of other Federal,
State, and local agencies, if such requirements are in accordance with
good design practice and are determined to be the responsibility of the
highway agency.
CONCLUSIONS
The following measures should be taken to minimize soil erosion from
highway construction:
a. The highway should be located to avoid trouble areas where
erosion or landslides may occur.
b. The design of the highway should provide adequate surface
and subsurface drainage.
c. Areas where erosion will occur should be anticipated and
suitable slope and channel protection specified in the construc-
tion contract.
d. Construction operations should be controlled by adequate
specifications and special provisions and by capable supervision.
e.
^. Maintenance forces should recognize deficiencies in drainage
and erosion-prevention works, and take action to correct both
potential and actual deficiencies before they develop into major
problems.
f. Research should be conducted to improve erosion-control methods,
and liasion between design and research engineers and maintenance
forces should be continuous.
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g* Erosion-control specialists should be on the highway
engineering and maintenance staffs to provide competent
direction to erosion—control efforts.
tu The highway agencies should prepare specifications for
drainage and erosion-control measures adapted to conditions
and materials found within the State.
These guidelines are intended to aid in the preparation of appropriate
construction specifications and design procedures. They are not meant
to be directives that apply in all areas and under all conditions.
Effort to prevent erosion during highway construction and on the com-
pleted highway is rewarding both in the enhanced beauty of the highway
and in the contribution of highway agencies to conservation of our land
and water and to the reduction of pollution in our waterways.
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U.S. DEPARTMENT OF TRANSPORTATION
FEDERAL HIGHWAY ADMINISTRATION
BUREAU OF PUBLIC ROADS
WASHINGTON, D.C. 20591
April 30, 1970
INSTRUCTIONAL MEMORANDUM 20-3-70
32-36
SUBJECT: Prevention, Control, and Abatement of Water Pollution
Resulting from Soil Erosion
Instructional Memorandums 20-3-66 (June 7, 1966), 20-2-67 (May 24, 1967),
20-6-67 (December 29, 1967), and 20-1-68 (March 6, 1968) were issued to
implement Executive Order 11258 (November 17, 1965), revised as Executive
Order 11288 (July 2, 1966) and superseded by Executive Order 11507
(February 4, 1970) which pertained to the furtherance of the purpose and
policy of the Federal Water Pollution Control Act, as amended, which is
administered by the Federal Water Pollution Control Administration under
direction of the Secretary of the Interior.
The "Guidelines for Minimizing Possible Soil Erosion From Highway
Construction, July 1, 1967," joint report of the Department of Transpor-
tation and the Department of Agruculture was attached to IM 20-6-67. This
report covered the minimum erosion control guidelines that are needed
during planning and location, design, construction and maintenance and
commented on areas needing further research and development.
In the "Construction Practice" section of the cited guidelines it was
pointed out that "if deficiencies in the design or performance of these
measures are discovered during construction, the Engineer should take
immediate steps for correction." And further that, "Temporary protection
such as fiber mats, plastic, straw, dust palliatives, and fast-growing
grasses may be required in some areas to prevent erosion from water or
wind on newly completed slopes."
Based on our evaluation of contractor's present practices we consider
further emphasis in this area is needed. To strengthen this area, all
future direct Federal and Federal-aid contracts shall include specific
temporary pollution control provisions in the contract documents and pro-
vide for direct payment for the work. Accordingly, there is attached a
special provision for temporary water pollution control which the States
and direct Federal contract administrators shall include in all projects
authorized for advertising 60 days after the date of this instructional
memorandum. Modifications may be made in this special provision to meet
individual State or project conditions. This special provision will give
the Engineer authority to take immediate and effective action to control
water pollution.
Since these temporary pollution control measures are frequently made
necessary by unforeseen work conditions, they normally are not included
as bid items. In the future, the P. S. & E. assemblies and contract
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provisions for all direct Federal and Federal-aid projects involving
earthwork shall contain provisions for a reasonable estimated sum for
payment for work performed for temporary pollution control.
To permit timely action by the Engineer and the contractor, individual
change orders will not be required on either direct Federal or Federal-aid
contracts so long as the basis of payment and cost documentation is
clearly established and the cost of the work involved is within the total
amount originally set up for temporary pollution control in the contract
provisions.
It is expected that liberal use of temporary pollution control measures
will be made to ensure that soil erosion is kept to a practicable minimum.
We emphasize that permanent project pollution control features must be
performed at the earliest practicable time consistent with good construc-
tion practices and that temporary pollution control features are meant
to be supplementary measures and are not meant to be performed in lieu
of permanent pollution control features included in the contract.
It is expected that on existing construction contracts, the States and
direct Federal contract administrators will follow the concepts of these
provisions insofar as possible under the specifications in effect when
the current contract was let. It is recognized that under most current
specifications, the payment for temporary pollution control features is
incidental to other work. Where erosion problems are occurring on
existing contracts, adequate conti I measures that are necessary to
improve the conditions on the project should be used. If project condi-
tions have developed requiring the application of extensive or unusual
measures not reasonably foreseeable at the time of bidding, funding under
extra work or change order should be processed expeditiously.
The BPR inspection program should include requirements to determine that
positive steps are being taken by the contractor to comply with contract
specifications to prevent erosion, pollution and siltation to the maximum
extent practicable.
/s/
R. R. Bartelsmeyer
Director of Public Roads
Enclosure
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SPECIAL PROVISION
TEMPORARY PROJECT WATER POLLUTION CONTROL (SOIL EROSION)
DESCRIPTION:
This work shall consist of temporary control measures as shown on the
plans or ordered by the Engineer during the life of the contract to
control water pollution, through use of berms, dikes, dams, sediment
basins, fiber mats, netting, gravel, mulches, grasses, slope drains, and
other erosion control devices or methods.
The temporary pollution control provisions contained herein shall be
coordinated with the permanent erosion control features specified else-
where in the contract to the extent practical to assure economical,
effective and continuous erosion control throughout the construction and
postconstruction period.
MATERIALS:
a. Mulches may be hay, straw, fiber mats, netting, wood cellulose,
corn or tobacco stalks, bark, corn cobs, wood chips, or other
suitable material acceptable to the Engineer and shall be
reasonably clean and free of noxious weeds and deleterious
materials.
b. Slope drains may be constructed of pipe, fiber mats, rubble,
Portland cement concrete, bituminous concrete, plastic sheets,
or other material acceptable to the Engineer that will
adequately control erosion.
c. Grass shall be a quick growing species (such as rye grass,
Italian rye grass, or cereal grasses) suitable to the area
providing a temporary cover which will not later compete with
the grasses sown later for permanent cover.
d. Fertilizer and soil conditioners shall be a standard
commercial grade acceptable to the Engineer.
e. Others as specified by the Engineer.
PRECONSTRUCTION CONFERENCE:
At the preconstruction conference or prior to the start of the applicable
construction, the contractor shall submit for acceptance his schedules
for accomplishment of temporary and permanent erosion control work, as
are applicable for clearing and grubbing; grading; bridges and other
structures at watercourses; construction; and paving. He shall also
submit for acceptance his proposed method of erosion control on haul roads
and borrow pits and his plan for disposal of waste materials. No work
shall be started until the erosion control schedules and methods of
operations have been accepted by the Engineer.
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CONSTRUCTION REQUIREMENTS:
The Engineer has the authority to limit the surface area of erodible
earth material exposed by clearing and grubbing, the surface area of
erodible earth material exposed by excavation, borrow and fill opera-
tions and to direct the contractor to provide immediate permanent or
temporary pollution control measures to prevent contamination of
adjacent streams or other watercourses, lakes, ponds, or other areas of
water impoundment. Such work may involve the construction of temporary
berms, dikes, dams, sediment basins, slope drains, and use of temporary
mulches, mats, seeding or other control devices or methods as necessary
to control erosion. Cut slopes shall be seeded and mulched as the
excavation proceeds to the extent considered desirable and practicable.
The contractor will be required to incorporate all permanent erosion
control features into the project at the earliest practicable time as
outlined in his accepted schedule. Temporary pollution control measures
will be used to correct conditions that develop during construction that
were not foreseen during the design stage; that are needed prior to
installation of permanent pollution control features; or that are needed
temporarily to control erosion that develops during normal construction
practices, but are not associated with permanent control features on the
project.
Where erosion is likely to be a problem, clearing and grubbing operations
should be so scheduled and performed that grading operations and permanent
erosion control features can follow immediately thereafter if the project
conditions permit; otherwise temporary erosion control measures may be
required between successive construction stages. Under no conditions
shall the surface area of erodible earth material exposed at one time by
clearing and grubbing, exceed 750,000 square feet without approval by
the Engineer.
t
The Engineer will limit the area of excavation, borrow and embankment
operations in progress commensurate with the contractor's capability and
progress in keeping the finish grading, mulching, seeding, and other such
permanent pollution control measures current in accordance with the
accepted schedule. Should seasonal limitations make such coordination
unrealistic, temporary erosion control measures shall be taken immediately
to the extent feasible and justified.
Under no conditions shall the amount of surface area of erodible earth
material exposed at one time by excavation, borrow or fill within the
right-of-way exceed 750,000 square feet without prior approval by the
Engineer.
The Engineer may increase or decrease the amount of surface area of
erodible earth material to be exposed at one time by clearing and
grubbing, excavation, borrow and fill operations as determined by his
analysis of project conditions.
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- 3 -
In the event of conflict between these requirements and pollution control
laws, rules, or regulations of other Federal or State or local agencies,
the more restrictive laws, rules, or regulations shall apply.
METHOD OF MEASUREMENT AND PAYMENT:
In the event that temporary erosion and pollution control measures are
required due to the contractor's negligence, carelessness, or failure
to install permanent controls as a part of the work as scheduled, and
are ordered by the Engineer, such work shall be performed by the con-
tractor at his own expense. Temporary erosion and pollution control
work required, which is not attributed to the contractor's negligence,
carelessness or failure to install permanent controls, will be performed
as ordered by the Engineer.
Where the work to be performed is not attributed to the contractor's
negligence, carelessness or failure to install permanent controls and
falls within the specifications for a work item that has a contract price,
the units of work shall be paid for at the proper contract price. Should
the work not be comparable to the project work under the applicable
contract items, the contractor shall be ordered to perform the work on
a force account basis, or by agreed unit prices.
In case of repeated failures on the part of the contractor to control
erosion, pollution, and/or siltation, the Engineer reserves the right to
employ outside assistance or to use his own forces to provide the
necessary corrective measures. Such incurred direct costs plus project
engineering costs will be charged to the contractor and appropriate
deductions made from the contractor's monthly progress estimate.
Temporary pollution control may include construction work outside the
right of way where such work is necessary as a result of roadway construc-
tion such as borrow pit operations, haul roads and equipment storage
sites.
The erosion control features installed by the contractor shall be
acceptably maintained by the contractor.
127
£ GPO 795-145
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