In West Virginia, such complex technical decisions like which type of mower to use by the department of highways is done the old fashioned way. A sales rep takes a politician out to dinner, the opera, a big game, sends wine, gives to reelection funds...you know how that works.
Just kidding of course, but with some of the screwy decisions that get made, you wonder if its not the case /w3tcompact/icons/frown.gif
Kidding aside, I have never seen a flail mower throw a rock, and as you mentioned they use them rain or shine as long as the tractors dont start to sink. I also believe that flail mowers have a lower horsepower requirement, so it may simply be a monitary decision.