Safe Passage

The I-40 Pigeon River Gorge Wildlife Crossing Project

I-40

I-40 rebuild offers rare opportunity for wildlife conservation

Please note: Since this story published in November 2024, North Carolina Governor Josh Stein announced that two lanes of Interstate 40 through the Pigeon River Gorge are expected to re-open March 1, 2025.

Featured in (from left) Asheville Citizen Times, Smoky Mountain Living magazine, Smoky Mountain News, and Knoxville News Sentinel.

By Holly Kays
When the Safe Passage coalition started working in 2017 to make Interstate 40 a safer place for people and wildlife through the Pigeon River Gorge, nobody knew that, in a few short years, entire sections of the critical roadway would vanish in the wake of Hurricane Helene. The scale of Helene’s damage was unfathomable, with 106 people confirmed dead in North Carolina alone and survivors left to contend with tens of billions of dollars in damages to property and infrastructure. The region is in mourning—but the rebuilding process may offer a once-in-a-generation opportunity to save the lives of future travelers.

“If we want to look for silver linings, I think there is a chance that we could use this long pause in traffic on I-40 to create some win-wins for wildlife, driver safety, and flood resilience along the road,” said Ron Sutherland, chief scientist for coalition partner Wildlands Network.

The 28-mile stretch of I-40 that passes through the Pigeon River Gorge bisects a rugged landscape that falls mostly within the Pisgah National Forest, Cherokee National Forest, and Great Smoky Mountains National Park. It’s one of the most biodiverse places on the planet, and before Helene, the road handled about 26,500 vehicles every day—a formidable barrier to natural wildlife movement across the landscape. Between 2018 and 2020, researchers Liz Hillard of Wildlands Network and Steve Goodman of National Parks Conservation Association analyzed 304 collisions between vehicles and large animals like bear, deer, and elk. Nationwide, wildlife–vehicle collisions kill more than 200 people annually and cost over $10 billion, according to a 2023 report from the Federal Highway Administration.

Through collaboration with government agencies and efforts to secure funding for wildlife crossings, Safe Passage has been working toward infrastructure solutions that would prevent such crashes from happening. Thanks to the group’s partnership with the NC Department of Transportation, the designs for five I-40 bridges up for replacement were amended to include wildlife-friendly modifications, and the agency was poised to use a $2 million wildlife-crossing allotment from the NC General Assembly to install fencing and evaluate Wildlands Network’s and NPCA’s research-based proposals for improving connectivity in the gorge.

Then Helene struck.

The hurricane hit the Gulf Coast as a Category 4 storm and then moved north, dropping record-setting amounts of rain on communities across Southern Appalachia. A gauge on the Pigeon River just below the power plant at Waterville, located along the I-40 corridor, jumped from its normal level of four feet up to nearly 22 feet before the river tore the gauge out around 10 a.m. September 27, as the worst of the flooding unfolded. Three of the five bridge replacements were completed, or nearly so, when the hurricane arrived, and they came through mostly unscathed. However, other areas of the road incurred catastrophic damage. Eastbound lanes in the four-mile stretch between the Tennessee–North Carolina state line and North Carolina mile marker 4, where both east- and westbound lanes of traffic disappear into a tunnel, bore the brunt of the destruction. In some places, the shoulder is gone. In others, one lane crumbled, and in some, both lanes are missing. The road saw significant damage on the Tennessee side of the state line too, with the eastbound lanes damaged in multiple locations from mile 446 to the state line at mile 451.

“Because of the alignment of the river versus the road coming in from an angle, the water got in behind walls,” explained Wanda Payne, Division 14 engineer for NCDOT. “And so once it got behind those walls, it just ate out the dirt. It’s like ‘between a rock and a hard place,’ except our hard place wasn’t as hard as we thought it was, so the rock won.”

In the most-affected areas of I-40, entire lanes of highway were carried away, as was the soil on which they once rested. Photo provided by NCDOT.

The highway between Maggie Valley and the state line has been closed since the storm as NCDOT develops plans for both emergency stabilization and long-term repair, while the adjoining five miles in Tennessee are open only as a two-lane road for local, noncommercial traffic. As of February 10, there were still 172 road closures in effect across North Carolina, with roughly 8,000 sites damaged, including at least 140 bridges in need of replacement. NCDOT continues to chip away at this massive to do list.

“I definitely sympathize with the DOT, because they’re in a position where they feel like they need to be racing ahead to get all these things put back in place, but at the same time, I hope that the public can see the opportunity here,” said Sutherland. “We can make it so that the next time a big storm like Helene comes through, our infrastructure actually survives.”

For this, Sutherland sees Vermont as a role model. Hurricane Irene inflicted massive damage on the state in 2011, and afterward Vermont invested nearly $230 million in 130 infrastructure projects designed to withstand similar weather events in the future. The state saw another round of major flooding in 2023, and those sites were either undamaged or minimally impacted.

Any bridge or culvert that can survive a storm like Helene will need to be “absurdly big and strong,” Sutherland said, ensuring space to install culverts or underpasses large enough for bear, deer, and other animals. Wildlands Network recently completed an analysis of North Carolina bridges damaged by Helene that prioritizes their importance for wildlife connectivity.

Two bobcats climb into a culvert that runs under I-40. They will use the pipe to reach the other side of the highway without crossing traffic. Photo provided by National Parks Conservation Association, Wildlands Network.

“If we’re able to put in better bridges that are more floodproof and stronger and bigger on even a quarter or half of those sites,” Sutherland said, “that’s going to have huge benefits for wildlife.”

But it’s a time-sensitive issue. The DOT is working to restore the state’s transportation infrastructure as quickly as possible, an undertaking expected to be extremely expensive, even without considering wildlife crossings. The Safe Passage group is working hard to offer planners its input and help secure funding for installations that could benefit wildlife for generations to come.

“If we miss this opportunity, then Hurricane Helene could have the counterintuitive result of foreclosing on the likelihood for wildlife improvements at hundreds of sites over the next 50 years,” Sutherland said. “Who will want to tear out shiny new bridges and culverts?”

NCDOT structures destroyed by Helene had an average age of 60, meaning that many of them would have been up for replacement in the coming years. Losing the opportunity to improve their utility for wildlife post-Helene would be a “serious setback,” Sutherland said.

The Pigeon River Gorge continues to be a top priority for Safe Passage. The area damaged by Helene includes four sites in Tennessee and three in North Carolina that the research from Wildlands Network and NPCA flagged for wildlife-crossing concerns. In any highway project, rerouting traffic comprises a significant percentage of the budget—but if wildlife-crossing structures could be dropped in while the road is still closed, these improvements could be made with less hassle or expense than will likely be possible again anytime soon.

Safe Passage’s earlier efforts to coordinate with transportation planners have paved the way to make such an outcome more likely than it would have been prior to the group’s formation—Payne said that NCDOT’s plans will address wildlife concerns mentioned in the report. But what that repair might look like is still an open question. In many places, the entire bedrock on which the road rested is gone. NCDOT may decide against rebuilding I-40 exactly as it was before.

Due to potential difficulty in securing reimbursement from the Federal Highway Administration, it’s unlikely NDOT will choose to reroute the entire corridor. However, realignment within the most-affected area is a possibility, as are walls, viaducts, and bridges. The NCDOT awarded Wright Brothers Construction an $8.5 million contract to perform temporary emergency repairs on the road and had expected to open the westbound lanes for two-way traffic by New Year’s Day. However, that timeline was delayed when a large chunk of concrete fell from one of the eastbound lanes, NCDOT announced December 20. The road is now expected to accommodate two-way traffic starting March 1, with a speed limit of 40 miles per hour.   Tennessee is working to reopen all lanes of I-40 in its jurisdiction by the end of the year, and NCDOT expects to do so by October 2026. It has hired Ames Construction as contractor, RK&K as designer, and HNTB as project manager. Payne wants all three parties to meet with Safe Passage early in the process to discuss how wildlife crossings should factor into the design.

Rebuild stronger infrastructure now so NC can save later, featured in Raleigh News & Observer

By Ron Southerland

The Pigeon River damaged or destroyed the eastbound lanes of Interstate 40 in several places after the remnants of Hurricane Helene dropped historic amounts of rain on Western North Carolina. This photo was taken about four miles from the Tennessee line. Photo courtesy of NCDOT.

When Vermont was hit by Hurricane Irene in 2011, its infrastructure was shattered, just as ours in North Carolina is now. Someone up there had the wisdom to make sure every culvert, bridge and building that was destroyed was replaced by a version that was bigger, stronger and more resilient to flooding. I suggest North Carolina take the same approach, with substantial support from the federal government and our own General Assembly. It may be expensive up front but provides significant savings and much faster recovery from storms down the road.

Read the full Raleigh News & Observer feature here.

Creating Safe Passage, featured in Blue Ridge Outdoors

By Holly Kays

Photo by Michele Sons.

Extensive efforts to add highway wildlife crossings near the Smokies aim to protect animals and people

Editor’s Note: This story was published in the October issue of Blue Ridge Outdoors before Hurricane Helene devastated portions of western North Carolina and surrounding areas. Due to extensive flood damage on Interstates 40 and 26, the Safe Passage Fund Coalition is adapting its ongoing work to include assessing the affects of the storm to recently installed crossing improvements and working to collaborate with environmental and government partners to prioritize animal and human safety as these highways are being repaired and rebuilt.

By 10 p.m., interstate 40 was dark and deserted as North Carolina State Representative Sarah Crawford and her husband Dan cruised east past Morganton, N.C. They were eager to reach their hotel for some rest between the wedding they’d just attended and the comedy show and baseball game planned for the next day. 

Then the car stopped “like we had hit a brick wall,” said Sarah Crawford, a Wake County representative in the North Carolina General Assembly. 

In fact, they’d hit a 200-pound bear. Every air bag deployed, the front fender crumpled, and the car was left motionless in the dark—on a road where most people drive 70 miles per hour or more. Though the couple managed to escape mostly unscathed, the car was totaled, and the bear was dead.

It was a “pretty scary incident” that sent Crawford “down a rabbit hole” searching for information about how to make roads safer for both human travelers and native wildlife. That journey led her directly to the Safe Passage coalition, a group of people and organizations that has been working since 2017 to make wildlife crossings safer not only in its focus area of the Pigeon River Gorge, but also in hotspots across North Carolina and Tennessee. 

“We at Safe Passage often use the tagline, ‘what’s good for wildlife is good for people,’” said Tim Gestwicki, the coalition’s steering committee chair and CEO of the North Carolina Wildlife Federation. “And clearly, if they run into a large animal, the danger is there for people too. So it’s a perfect nexus of people and wildlife safety.”

Photo courtesy of NPCA/Wildlands Network.

Over the years, Safe Passage has become an increasingly organized collaborative of dedicated partners involved in everything from transportation planning to educational outreach and lobbying efforts—work that is predicated on foundational research it conducted starting in 2018. Coalition partners Wildlands Network and National Parks Conservation Association hired researchers Liz Hillard and Steve Goodman to tackle the project, and the pair placed 120 cameras along the 28-mile Pigeon River Gorge corridor. This stretch of Interstate 40 straddles the North Carolina-Tennessee line, bisecting a rugged landscape that falls mostly within either the Pisgah National Forest, Cherokee National Forest, or Great Smoky Mountains National Park. 

View the full Blue Ridge Outdoors feature here.

Wildlife Conservation Spotlight: UT researcher Kristin Botzet contributes valuable data to bear movements in Pigeon River Gorge

By Kimberly Smith
EBCI Citizen, Southern Appalachian Representative for The Wilderness Society and Safe Passage Outreach Committee member

In March, we celebrated Women’s Herstory Month and recognized the invaluable contributions of women in the field of science and conservation. As a member of the Safe Passage Outreach Committee and a graduate of the University of Tennessee Knoxville (UTK), I am excited to shine the spotlight on a remarkable woman, Kristin Botzet, a UTK MS candidate, whose groundbreaking research is shaping the future of wildlife conservation in the Safe Passage I-40 Pigeon River Gorge project area and throughout the Southern Appalachian Mountains.

As we know, the Pigeon River Gorge is a critical corridor for wildlife and human movement. Here, Kristin and her team researched bear movement patterns. “While conducting my graduate research assessing the movements and outcomes of relocated black bears, I observed a remarkable occurrence,” she said. “One of the bears managed to navigate across I-40 an astounding seven times in a single month. Anyone familiar with the area, and that route knows what a feat that is; many bears don’t share that kind of luck.” Their findings are not only shedding light on the behavior of these iconic creatures but also informing conservation efforts to protect their habitat.

Beyond research, Kristin is passionate about engaging local communities and raising awareness about wildlife conservation. She gives presentations on bear biology and wildlife career opportunities to school groups at the Tremont Institute in the Great Smoky Mountains National Park. Through outreach activities and educational programs, she aims to inspire a new generation of conservationists. Safe Passage’s collaboration with grassroots organizations and Indigenous communities further amplifies their impact, fostering a deeper connection between people and nature. By being stewards of the land, we become the voices for those without words, the advocates for ancient trails, animals, plants and waters. Safe passage isn’t just about roads for two-legged; it’s about access for all, ensuring all creatures on this land and in these waters can journey unimpeded, that their habitats are intact, and their futures intertwine with ours.

Adult bears that become accustomed to foraging for human food or garbage may grow bold or persistent, prompting park rangers to capture and relocate them outside the park, hoping to help mitigate any potential human–bear conflicts. 

But what happens to bears after they are relocated? 

Recently, a research team from the University of Tennessee in Knoxville (including graduate student lead researcher Kristin Botzet) set out to answer that very question — and they found that these bears often die within a few months of being moved. Many are struck by vehicles while attempting to cross roadways, including I-40, as they try to make their way back to the park.

University of Tennessee researcher and graduate student Kristin Botzet with an immobilized 393-pound male black bear, known as UT11 in the study.

Kristin’s journey into wildlife research is a testament to the power of passion and perseverance. Inspired by her childhood love for the outdoors, she embarked on a quest to explore her curiosity of animal movement patterns. “I have always been intrigued by the natural world, but in ways beyond thinking animals were cute and cuddly,” she said. “My childhood was devoured by endless hours playing ‘Zoo Tycoon’ and studying my grandpa’s animal encyclopedia. I even repeatedly rented the same ‘Really Wild Animals’ VHS tapes.” From her early days exploring nature to her current role as a M.S. candidate, Kristin has overcome challenges and blazed a trail for women in science. “Today, my 8-year-old self would be very proud. She answered the famous ‘What do you want to be when you grow up’ question in my third grade yearbook with ‘wildlife biologist,’ and here I am.”

As Kristin continues her research journey, her vision for the future is clear: to bridge the gap between science and advocacy. “I hope that my work inspires not only women but anyone who has a spark of interest in the field of natural resources and ecology,” she said. “The field of wildlife research is small, but critical, especially today. We need more people willing to contribute to meaningful change, and frankly, it’s a career path often overlooked because it really isn’t talked about in our primary education system.” With Safe Passage’s support, she hopes to translate her findings into actionable solutions, advocating for wildlife conservation at the local, state, and national levels. Together, we are building a more sustainable future for wildlife and humanity alike.

Habituation at Harmon Den: Next steps for wildlife after crossing construction

After crossings are constructed, how soon can you expect wildlife to adapt to use new, safer passages?

Though infrastructure has been installed at the Harmon Den bridge in North Carolina (pictured above), more still must be done to attract wildlife to use the safer crossing. 

Progress is being made at the Harmon Den bridge in North Carolina, where our partners at the N.C. Department of Transportation recently constructed infrastructure for wildlife. Since then, we’ve begun some early monitoring of how wildlife are interacting with the new crossings, which include wildlife-friendly benches and cattle guards and will, in the future, include fencing.

Of course, it may take some time for wildlife to habituate to this improved crossing opportunity in the landscape, especially while vegetation in the area is still recovering from the recent construction. To improve success, it’s important that creekside vegetation — like fast-growing tulip popular, black birch, and red maple — continues to reestablish, as it will provide important cover and protection for traveling wildlife. Consideration should also be given, however, to restricting tractor trailer parking along the on- and off-ramps, which — because engines are often left running — creates noise and garbage (including human waste) that may potentially deter wildlife movement toward the new crossings. Another opportunity to encourage wildlife to use the crossings would be to clean up the crushed concrete spill that occurred during bridge construction along the bank of Cold Springs Creek.

Finally, it is important to note that although the opportunistic wildlife improvements at Harmon Den are important for wildlife connectivity and reducing vehicle collisions long-term, there are limitations to combined human–wildlife structures when compared to standalone structures for wildlife only. The Safe Passage Fund Coalition has made several research-based recommendations for standalone wildlife structures north and south of Harmon Den.

— Steve Goodman, Safe Passage Co-Research Lead

Day versus night view from the wildlife crossing at Harmon Den. Trucks parking on the on- and off-ramps can discourage wildlife from making the safe trip under the highway.

North Carolina House includes $5 million for wildlife crossings in 2023/2024 budget

Safe Passage Fund Coalition encourages state senate to appropriate full amount

The Safe Passage Fund Coalition applauds the North Carolina House of Representatives for appropriating $5 million in funding for infrastructure to help reduce wildlife–vehicle collisions across the state. This infrastructure — which includes overpasses, underpasses and fencing along roads and highways — is critical in increasing safety along roadways for wildlife and humans alike. 

“We are so grateful that the House has prioritized funding to reduce wildlife–vehicle collisions on Interstate 40 near the Smokies and elsewhere around North Carolina,” said Jeff Hunter, Southern Appalachian director of National Parks Conservation Association, a Safe Passage Fund Coalition member. “This is a win-win for wildlife and the motoring public. We encourage the Senate to appropriate $5 million in their budget to help leverage federal dollars to address this issue statewide.” 

According to the North Carolina Department of Transportation, 20,331 wildlife–vehicle collisions were reported across the state in 2019, and 18,607 such collisions were reported in 2020 — a decrease the NCDOT largely attributes to reduced travel during the COVID-19 pandemic. A 2021 release from the department additionally estimated that 7% of all reported vehicle crashes in the state involve animal strikes, with almost half occurring in the twilight hours or at night, between October and December. 

Safe Passage urges our North Carolina supporters to contact their state senator today to encourage them to request $5 million in the budget for wildlife crossings.

CONTACT YOUR SENATOR

“North Carolina’s funding to support wildlife safe passage across roads will help provide habitat connectivity essential for the persistence of healthy North Carolina wildlife populations, especially in the face of environmental changes that are increasingly transforming and fragmenting landscapes,” said Liz Hillard, Safe Passage co-research lead and senior wildlife biologist at Wildlands Network, a member of the coalition.  

All appropriated funds will help leverage unprecedented federal resources and could help complete projects currently underway. In the Pigeon River Gorge, one such project, along I-40 at Exit 7 near Harmon Den, has seen progress recently with the installation of wildlife benches and cattle guards to deter wildlife from making dangerous crossings into traffic. But critically important fencing to funnel wildlife under the highway has not yet been installed due to lack of funding.

Earlier this year, members of the Safe Passage Fund Coalition issued an action alert to their supporters to urge N.C. Governor Roy Cooper to allocate funding to protect wildlife from roadway collisions, citing President Joe Biden’s Bipartisan Infrastructure Investment and Jobs Act, which included $350 million for wildlife crossing construction over and under roadways. 

“Protecting wildlife from roadway collisions is critical for infrastructure, the safety of motorists, natural ecosystems, and maintaining a positive image for North Carolina,” said Tim Gestwicki, CEO of North Carolina Wildlife Federation and chair of Safe Passage Fund Coalition’s Steering Committee. “As roadway construction creates new barriers to long-established wildlife corridors, inevitably animals are increasingly encountering humans and their vehicles. These encounters result in animal and human injuries and fatalities, as well as increased costs for motorists and insurers, and litter our highways with decaying carcasses. Safe Passage Fund Coalition members encourage, and in fact urge North Carolina to join other states across the country to take proactive steps to reduce these wildlife–vehicle collisions.”