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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2019. Landscape Development and Management Practices for Urban Freeway Roadsides. Washington, DC: The National Academies Press. doi: 10.17226/25508.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2019. Landscape Development and Management Practices for Urban Freeway Roadsides. Washington, DC: The National Academies Press. doi: 10.17226/25508.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2019. Landscape Development and Management Practices for Urban Freeway Roadsides. Washington, DC: The National Academies Press. doi: 10.17226/25508.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2019. Landscape Development and Management Practices for Urban Freeway Roadsides. Washington, DC: The National Academies Press. doi: 10.17226/25508.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2019. Landscape Development and Management Practices for Urban Freeway Roadsides. Washington, DC: The National Academies Press. doi: 10.17226/25508.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2019. Landscape Development and Management Practices for Urban Freeway Roadsides. Washington, DC: The National Academies Press. doi: 10.17226/25508.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2019. Landscape Development and Management Practices for Urban Freeway Roadsides. Washington, DC: The National Academies Press. doi: 10.17226/25508.
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Suggested Citation:"Front Matter." National Academies of Sciences, Engineering, and Medicine. 2019. Landscape Development and Management Practices for Urban Freeway Roadsides. Washington, DC: The National Academies Press. doi: 10.17226/25508.
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Landscape Development and Management Practices for Urban Freeway Roadsides A Synthesis of Highway Practice Beverly J. Storey John Habermann Texas a&M TransporTaTion insTiTuTe College Station, TX 2019 Research sponsored by the American Association of State Highway and Transportation Officials in cooperation with the Federal Highway Administration Subscriber Categories Highways • Maintenance and Preservation N A T I O N A L C O O P E R A T I V E H I G H W A Y R E S E A R C H P R O G R A M NCHRP SYNTHESIS 539

Published reports of the NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM are available from Transportation Research Board Business Office 500 Fifth Street, NW Washington, DC 20001 and can be ordered through the Internet by going to http://www.national-academies.org and then searching for TRB Printed in the United States of America NCHRP SYNTHESIS 539 Project 20-05, Topic 49-06 ISSN 0547-5570 ISBN 978-0-309-48040-6 Library of Congress Control Number 2019943237 © 2019 National Academy of Sciences. All rights reserved. COPYRIGHT INFORMATION Authors herein are responsible for the authenticity of their materials and for obtaining written permissions from publishers or persons who own the copyright to any previously published or copyrighted material used herein. Cooperative Research Programs (CRP) grants permission to reproduce material in this publication for classroom and not-for-profit purposes. Permission is given with the understanding that none of the material will be used to imply TRB, AASHTO, FAA, FHWA, FMCSA, FRA, FTA, Office of the Assistant Secretary for Research and Technology, PHMSA, or TDC endorsement of a particular product, method, or practice. It is expected that those reproducing the material in this document for educational and not-for-profit uses will give appropriate acknowledgment of the source of any reprinted or reproduced material. For other uses of the material, request permission from CRP. Cover photo credit: Ethan Beeson, Texas Department of Transportation NOTICE The report was reviewed by the technical panel and accepted for publication according to procedures established and overseen by the Transportation Research Board and approved by the National Academies of Sciences, Engineering, and Medicine. The opinions and conclusions expressed or implied in this report are those of the researchers who performed the research and are not necessarily those of the Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; or the program sponsors. The Transportation Research Board; the National Academies of Sciences, Engineering, and Medicine; and the sponsors of the National Cooperative Highway Research Program do not endorse products or manufacturers. Trade or manufacturers’ names appear herein solely because they are considered essential to the object of the report. NATIONAL COOPERATIVE HIGHWAY RESEARCH PROGRAM Systematic, well-designed, and implementable research is the most effective way to solve many problems facing state departments of transportation (DOTs) administrators and engineers. Often, highway problems are of local or regional interest and can best be studied by state DOTs individually or in cooperation with their state universities and others. However, the accelerating growth of highway transporta- tion results in increasingly complex problems of wide interest to high- way authorities. These problems are best studied through a coordinated program of cooperative research. Recognizing this need, the leadership of the American Association of State Highway and Transportation Officials (AASHTO) in 1962 ini- tiated an objective national highway research program using modern scientific techniques—the National Cooperative Highway Research Program (NCHRP). NCHRP is supported on a continuing basis by funds from participating member states of AASHTO and receives the full cooperation and support of the Federal Highway Administration, United States Department of Transportation. The Transportation Research Board (TRB) of the National Academies of Sciences, Engineering, and Medicine was requested by AASHTO to administer the research program because of TRB’s recognized objectivity and understanding of modern research practices. TRB is uniquely suited for this purpose for many reasons: TRB maintains an extensive com- mittee structure from which authorities on any highway transportation subject may be drawn; TRB possesses avenues of communications and cooperation with federal, state, and local governmental agencies, univer- sities, and industry; TRB’s relationship to the National Academies is an insurance of objectivity; and TRB maintains a full-time staff of special- ists in highway transportation matters to bring the findings of research directly to those in a position to use them. The program is developed on the basis of research needs identified by chief administrators and other staff of the highway and transportation departments, by committees of AASHTO, and by the Federal Highway Administration. Topics of the highest merit are selected by the AASHTO Special Committee on Research and Innovation (R&I), and each year R&I’s recommendations are proposed to the AASHTO Board of Direc- tors and the National Academies. Research projects to address these topics are defined by NCHRP, and qualified research agencies are selected from submitted proposals. Administration and surveillance of research contracts are the responsibilities of the National Academies and TRB. The needs for highway research are many, and NCHRP can make significant contributions to solving highway transportation problems of mutual concern to many responsible groups. The program, however, is intended to complement, rather than to substitute for or duplicate, other highway research programs.

The National Academy of Sciences was established in 1863 by an Act of Congress, signed by President Lincoln, as a private, non- governmental institution to advise the nation on issues related to science and technology. Members are elected by their peers for outstanding contributions to research. Dr. Marcia McNutt is president. The National Academy of Engineering was established in 1964 under the charter of the National Academy of Sciences to bring the practices of engineering to advising the nation. Members are elected by their peers for extraordinary contributions to engineering. Dr. C. D. Mote, Jr., is president. The National Academy of Medicine (formerly the Institute of Medicine) was established in 1970 under the charter of the National Academy of Sciences to advise the nation on medical and health issues. Members are elected by their peers for distinguished contributions to medicine and health. Dr. Victor J. Dzau is president. The three Academies work together as the National Academies of Sciences, Engineering, and Medicine to provide independent, objective analysis and advice to the nation and conduct other activities to solve complex problems and inform public policy decisions. The National Academies also encourage education and research, recognize outstanding contributions to knowledge, and increase public understanding in matters of science, engineering, and medicine. Learn more about the National Academies of Sciences, Engineering, and Medicine at www.national-academies.org. The Transportation Research Board is one of seven major programs of the National Academies of Sciences, Engineering, and Medicine. The mission of the Transportation Research Board is to increase the benefits that transportation contributes to society by providing leadership in transportation innovation and progress through research and information exchange, conducted within a setting that is objective, interdisciplinary, and multimodal. The Board’s varied committees, task forces, and panels annually engage about 7,000 engineers, scientists, and other transportation researchers and practitioners from the public and private sectors and academia, all of whom contribute their expertise in the public interest. The program is supported by state transportation departments, federal agencies including the component administrations of the U.S. Department of Transportation, and other organizations and individuals interested in the development of transportation. Learn more about the Transportation Research Board at www.TRB.org.

C O O P E R A T I V E R E S E A R C H P R O G R A M S CRP STAFF FOR NCHRP SYNTHESIS 539 Christopher J. Hedges, Director, Cooperative Research Programs Lori L. Sundstrom, Deputy Director, Cooperative Research Programs Jo Allen Gause, Senior Program Officer Deborah Irvin, Program Coordinator Eileen P. Delaney, Director of Publications Natalie Barnes, Associate Director of Publications Kami Cabral, Editor NCHRP PROJECT 20-05 PANEL Joyce N. Taylor, Maine DOT, Augusta, ME (Chair) Socorro “Coco” Briseno, California DOT, Sacramento, CA Anita K. Bush, Nevada DOT, Carson City, NV Joseph D. Crabtree, University of Kentucky, Lexington, KY Mostafa “Moe” Jamshidi, Nebraska DOT, Lincoln, NE David M. Jared, Georgia DOT, Forest Park, GA Cynthia Jones, Ohio DOT, Columbus, OH Jessie X. Jones, Arkansas DOT, Little Rock, AR Brenda Moore, North Carolina DOT, Raleigh, NC Ben T. Orsbon, South Dakota DOT, Pierre, SD Randall R. “Randy” Park, Avenue Consultants, Bluffdale, UT Jack Jernigan, FHWA Liaison Stephen F. Maher, TRB Liaison TOPIC 49-06 PANEL David W. Crawley, AECOM, Tampa, FL Amanda A. Fowler, Texas DOT, Austin Valerie Friedmann, Auburn University, Auburn, AL Scott Lucas, Ohio DOT, Columbus Kevin Schot, Florida DOT, Miami Raymond Willard, Washington State DOT, Olympia Morgan Kessler, FHWA Liaison Carolyn Nelson, FHWA Liaison Nancy M. Whiting, TRB Liaison AUTHOR ACKNOWLEDGMENTS The work to produce this synthesis report was performed under NCHRP Project 20-05 by the Texas A&M Transportation Institute, a member of the Texas A&M University System.

ABOUT THE NCHRP SYNTHESIS PROGRAM Highway administrators, engineers, and researchers often face problems for which information already exists, either in documented form or as undocumented experience and practice. This infor- mation may be fragmented, scattered, and unevaluated. As a consequence, full knowledge of what has been learned about a problem may not be brought to bear on its solution. Costly research find- ings may go unused, valuable experience may be overlooked, and due consideration may not be given to recommended practices for solving or alleviating the problem. There is information on nearly every subject of concern to highway administrators and engineers. Much of it derives from research or from the work of practitioners faced with problems in their day-to-day work. To provide a systematic means for assembling and evaluating such useful infor- mation and to make it available to the entire highway community, the American Association of State Highway and Transportation Officials—through the mechanism of the National Cooperative High- way Research Program—authorized the Transportation Research Board to undertake a continuing study. This study, NCHRP Project 20-05, “Synthesis of Information Related to Highway Problems,” searches out and synthesizes useful knowledge from all available sources and prepares concise, docu- mented reports on specific topics. Reports from this endeavor constitute an NCHRP report series, Synthesis of Highway Practice. This synthesis series reports on current knowledge and practice, in a compact format, without the detailed directions usually found in handbooks or design manuals. Each report in the series provides a compendium of the best knowledge available on those measures found to be the most successful in resolving specific problems. FOREWORD By Jo Allen Gause Staff Officer Transportation Research Board The objective of this synthesis is to document practices used by state departments of transporta- tion (DOTs) for designing and maintaining roadsides adjacent to urban freeways. The synthesis focuses on high visibility freeway roadsides with limited pedestrian access. These areas often have wide medians, interchanges, and overpasses. Information used in this study was gathered through a literature review, a survey of state DOTs, and follow-up interviews with selected agencies. Three case examples illustrate agency practice on this topic. Beverly J. Storey and John Habermann of the Texas A&M Transportation Institute collected and synthesized the information and wrote the report. This synthesis is an immediately useful document that records the practices that were acceptable with the limitations of the knowledge available at the time of its preparation. As progress in research and practice continues, new knowledge will be added to that now at hand.

Note: Photographs, figures, and tables in this report may have been converted from color to grayscale for printing. The electronic version of the report (posted on the web at www.trb.org) retains the color versions. C O N T E N T S 1 Summary 4 Chapter 1 Introduction 4 Background 7 Scope and Objectives 7 Method 8 Terminology 9 Organization of Report 10 Chapter 2 Literature Review 10 Sustainable Urban Landscape Development and Maintenance 13 Urban Integrated Vegetation Management Plans 14 Illegal or Unauthorized Use of Urban Roadsides 18 Work Zone Safety for Urban Roadsides 19 Cooperative and Partnering Agreements 22 Chapter 3 State of the Practice 22 Survey Results 27 State Department of Transportation Documentation 31 Chapter 4 Case Examples 31 California Department of Transportation 34 Texas Department of Transportation 39 Washington State Department of Transportation 42 Chapter 5 Conclusions 42 Conclusions 43 Further Research 44 References, Resources, and Examples A-1 Appendix A Survey Questionnaire B-1 Appendix B Survey Respondents C-1 Appendix C Survey Responses D-1 Appendix D State Practices for Illegal or Unauthorized Use of the Right of Way E-1 Appendix E Worker Safety F-1 Appendix F Cooperative Agreements

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Current practices used by state departments of transporttion to design and manage the urban freeway roadsides (UFRs) environment is the focus of National Cooperative Highway Research Program (NCHRP) Synthesis 539: Landscape Development and Management Practices for Urban Freeway Roadsides.

The urban freeway roadsides (UFRs) for this synthesis are those roadsides associated with high visibility urban freeways with limited pedestrian access, such as wider medians, interchanges, and overpasses.

The UFR is part of a greater urban environment with broad social, political, economic, and environmental implications for management. There are numerous UFR stakeholders, such as their respective municipalities, residents, adjacent landowners and businesses, traveling public, and state DOTs, and each has specific requests, requirements, and considerations. Among these are an acceptable level of maintenance and stakeholder expectations for aesthetics.

State departments of transportation (DOTs) recognize their roadway systems are assets that need management and acknowledge that pavements and other infrastructure routinely require resurfacing, restoration, and rehabilitation because their integrity degrades over time. However, the UFR and its respective urban freeway systems may not receive the same routine restoration. The vegetation installed at the time of roadway construction ages with the surrounding infrastructure. Decades after initial installation within the UFR, transportation agencies have mature landscapes that may be near the end of their life cycle.

The inability to adequately access and maintain these areas can result in failure of planted vegetation, loss of investment, and public criticism of state DOTs. The UFR is part of state DOTs’ highway system investment facing many challenges as freeway renovations and expansions encroach on limited right-of-way (ROW) areas available for landscape development. As the size of these areas decreases, so does the ability of maintenance workers and equipment to safely access and maintain them.

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