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Could one of the main reasons for this be the costs of maintaining operations on an existing highway (building detoured right of way and re-establishing original, temporary structures etc.) and staging around that, as opposed to building what is needed, no limits, on greenfield?
That could be part of it, but the costs to work around existing infrastructure, chip away what you want to replace, have what's left evaluated, engineered and remediated, brought up to current standards, then build new around it, is much more expensive that greenfield. Heck, the first time I re-built a deck I learned that lesson. Rip it out - put in new.
