Hi there,

Do you happen to have a photo that shows the shrubs in more detail? It is hard to say what it is without clear images of the flowers and foliage.

That said, given the time of year and and the overall shape of the shrub, my best guess would be winter honeysuckle, Lonicera fragrantissima.

Good luck,
Ispahan

was that photo really taken in february or posted to flickr in that month? it looks very green for north carolina in february. if it is a summer or late summer photo, i might guess an elaeagnus since it is an interstate planting. another possibility would be some other type of shrubby lonicera besides l. fragrantissima (which does bloom in feb. here).
osmanthus fragrans blooms here in the late summer/fall but i have not seen them used in highway plantings.
a close-up of the foliage would be helpful.

Wow, if they are winter honeysuckle, they're the fullest, most dense specimens I've ever seen!

How tall were they? Could be sarcoccoca, which also blooms around now and can reach 3 feet in the taller species.

A closeup would be a big help!