{RANSPORTA||0N LIBRARY T E 4 + C2, A 13 | 4 || 7 - || 8 * * * • a Biennial Report - , º, ... * ºr’s.” ‘’ * , - *. ** Tº A subdivision of December 31, 1918. of That Department Painting orrics. * A State Highway in San Benito County. FIRST BIENNIAL REPORT California Highway Commission A SUBDIVISION OF THE Department of Engineering OF THE State of California TO ACCOMPANY THE Sixth Biennial Report of That Department December 31, 1918. CAT.IFORNIA STATE PRINTING OFFICE" SACRAMENTO 1 9 1 9 43766 Jansportation - library Te 2-4- •C 2- A \o \aviliz > Trans ExCHANGE º Li BRARY STATE COLLEGE OF WASHINGRN 5’-(4-3| CONTENTS. 'Introductory ---------------- ---------------- - * * * * - - - * * - - - — — .3-- - - - - - - - - - - - The Two Bond Issues------------------------------------------------------ How War Affected Work--------------------------------------------------- United States Highways Council and Capital Issues Committee________________ Work Done and to Be Done--- * - - - * * * * - - * * * * - - - - - - - - - - as IFederal Aid Roads * - * * * * * * * * * * * -- * * * * * * * = ** - - - - - - - - - - - = Convict Labor on State Highways-- - - - - - - - -w ºr Mountain Roads (Special Appropriations) ––––––––––––––––––––––––––––––––––– The $3,000,000 Laterals---------------------------------------------------- Maintenance ------------------------------------ * Special Surveys Ordered in 1917–––––––––––––––––––––––––––––––––––––––––––– The Vehicle Act----------------------------------------------------------- Bridges a-s, a tº * * * * * * * *- * * * * * * * * * * * * * - - - sº * * * * * * * = a- - - * * * - - -, - = <=w = ** - - -e -me Railroad Crossings - - - - - - - - - * = ** - - - - - - 4- - - - - - - - - - - - Accidents on State Highways----------------------------------------------- Special Freight Rates------------------------------------------------------ Portland Cement and Concrete Aggregate Purchases-------------------------- Tree Planting and Camp Sites * * - - - - * * * - - - * * - - - - - * Conclusion --------------------------------------------------------------- APPENDIX A. Roll Of Honor——— - - - - - sm. - - - - - - - - - - - - - - APPENDIX B. Report of Highway Engineer to California. Highway Commission-------------- APPENDIX C. Statement of Condition (Financial Transactions) ––––––––––––––––––––––––––––– APPENDIX D. Legal Department -------------------------------------------------------- General Inspection -------------------------------------------------------- APPENDIX F. Geological Work and Material Tests APPENDIX G. | The Purchasing Department------------------------------------------------ The Accounting Department------------------------------------------------ Analysis of Maintenance Expenditures–––––––––––––––––––––––––––––––––––––– APPENDIX K. Convict Labor * * * * * * - - - - - * * * * * * * * v- - - - - - - - - - - - - - - - - * * = - - - - - - - - - - - - Bridge Work on State Highways–––––––––––––––––––––––––––––––––––––––––––– Mint Canyon Road in Los Angeles County----------------------------------- APPENDIX N. Portland Cement Purchases, 1912, to June, 1918------------------------------ APPENDIX O. Votes on State Highway Bond Issues, 1910 and 1916–––––––––––––––––––––––– APPENDIX P. Apportionment of Receipts by State Motor Vehicle Department, January 1, 1918, to June 30, 1918, inclusive------- - - - - - - - - - - - - - - - * * * * - - - - - - - - - - - Contract Statistics -------------------------------------------------------- APPENDIX F. Map of California, showing State Highways (see pocket inside back cover). ILLUSTRATIONS, y FRONTISPIECE—A State Highway in San Benito County. PLATE I—State Highway, Ventura, County. PLATE II—State Highway, Santa Barbara County, in Gaviota Pass. PLATE III—State Highway, San Luis Obispo County, near Pismo Beach. PLATE IV—State Highway, San Benito County, San Juan Grade. PLATE V—State Highway, Alameda County, Altamont Pass. PLATE) VI—State Highway, Alameda, County, Altamont Pass. PLATE VII—State Highway, Fresno County, 22 : : 38 PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE FT, ATE PLATE FLATE PLATE PLATE PLATE PLATE FIATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE PLATE Tº LATE PLATE PLATE PLATE PLATE PLATE PT, ATE PLATE PLATE PLATE PLATE PLATE PLATE |PLATE PIATE ILLUSTRATIONS-Continued. \ 111—State Highway, Los Angeles County, on the Ridge Route, IX—State Highway, Kern County, near Tějon Pass. X—State Highway, Kern County. XI—State Highway, Mendocino County (convict work). XII—State Highway, Mendocino County (convict work). XIII—State Highway, Santa Clara County, YIV—State Highway, San Mateo County, near Redwood City. XV—State Highway, Napa County. XVI—State Highway, Sonoma County, between Petaluma and Santa Rosa. XVII—State Highway, Ventura County, Conejo Grade. YVIII—State Highway, Ventura County. XIX—A Road Train on the State Highway. XX—A New Use for the Highway. XXI-State Highway, Colusa County, before paving. XXII—State Highway, Colusa County, after paving. XXIII—State Highway, Imperial County, on the desert. XXIV—State Highway, San Diego County, near El Cajon. YXV—Bridge on State Highway, Santa, Barbara County, at Arroyo Quennado. XXVI—Bridge on State Highway, Santa Barbara, County, over Santa Ynez River. XXVII—State Highway, Ventura County, showing under-crossing of Southern Pacific Railroad—Old road on left. XXVIII—State Highway, Sonoma County, showing under-crossing of North- western Pacific Railroad. YXIX—State Highway, Butte County, under construction. XXX—State Highway, San Bernardino County, applying asphaltic carpet. XXXI–State Highway, Colusa, County, showing rice sacks stacked on shoulder. XXXII—State Highway, Colusa County, truck and trailer loaded with rice. XXXIII—State Highway, Colusa County, showing damage done by trucks hauling rice. XXXIV—State Highway, Colusa County, showing conditions due to rice culture—pavement on right. XXXV – Drilling Machine on State Highway. XXXVI—Calyx Core Drill on Truck. * XXXVII—Calyx Core Drill. XXXVIII—Concrete Cores Prepared for Compression Test. DKXXIX—First Convict Camp in Mendocino County (60-man camp). XL–State Highway, Mendocino County (convict work). XLI–Tractor and Grader Trimming Road. XLII—State Highway, Mendocino County (convict work). XLIII—State Highway, Yolo County, Yolo Trestle. XLIV—State Highway, Yolo County, Yolo Trestle During Construction. YLV—Bridge on State Highway, Shasta County, Over Pit River. DKLVI—Bridge on State Highway, Siskiyou County, Over Sacramento |River, at Dunsmuir. DXLVII—Bridge on State Highway, Yolo and Solano counties, Over Putah Creek. XLVIII—Bascule Bridge on State Higaway, Sonoma and Marin Counties, at Petaluma Creek. XLIX—Bridge on State Highway, Santa Clara and San Benito Counties, Over Pajaro River. L—Bridge on State Highway, Yuba County, Over Yuba River at Marysville. ILT—Bridge on State Highway, Humboldt County, Over Eel River near Scotia. LII—Arched Timber Bridge on State Highway, Mendocino County, Over Rock Creek. LIII—Bridge on State Highway, Los Angeles County, Over South Fork of Santa. Clara, River. LIV—Bridge on State Highway, Los Angeles County, Over Santa Clara, River. LV—Bridge on State Highway, Glenn County, Over Stony Creek. LVI—State Highway, Siskiyou County, Along Klamath River. BIENNIAL REPORT OF THE CALIFORNIA HIGHWAY COMMISSION. December 31, 1918. INTRODUCTORY. In 1910 the people of the state of California adopted the “State Highways Act” providing for the issuance of bonds to the amount of $18,000,000 for the construction and acquisition of a system of state highways. It was the mandate of the act that such system should be constructed and acquired by the State Department of Engineering. The Department of Engineering as then constituted consisted of an advisory board composed of the Governor as ex officio member and chair- man, the State Engineer, the general superintendent of state hospitals and the chairman of the State Board of Harbor Commissioners of San Francisco. The functions of this board were advisory in their nature as obviously their members were engrossed with the regular duties of their respective offices. In 1911 the legislature passed what is commonly known as the Chand- ler Act, which added three more members of the Department of Engi- neering designated as the three appointed members. While the Chandler Act did not specifically so declare, yet it was tacitly understood at the time of its passage that the three appointed members were to be chosen primarily for the purpose of actively carry- ing out the eighteen-million-dollar highway trust, and when appointed were named with their qualifications as such trustees in view. Messrs. Charles D. Blaney of Saratoga, Burton A. Towne of Lodi, and Newell D. Darlington of Los Angeles, were in 1911 appointed by Gover- nor Hiram W. Johnson to be the three appointed members. At a meet- ing of the advisory board, held in August, 1911, an enabling resolution designating Messrs. Blaney, Towne and Darlington the three appointed members as an executive committee to be known as the California High- way Commission and vesting in such committee the actual handling of the work of constructing and acquiring the state highway system under the bond issue of 1910, was adopted. The California Highway Commission thereupon organized and Burton A. Towne was chosen to be the first chairman. A. B. Fletcher, appointed by Governor Johnson as Ilighway Engineer of California, became the executive officer of the commission, Wilson R. Ellis, the secretary, and C. C. Carleton, the attorney. () CALIFORNIA HIGHWAY COMMISSION. In the fall of 1911 the members of the commission, with the Highway Engineer, made a comprehensive tour of the state in order to obtain first-hand impressions of the routes to be followed and the needs of the people of the respective communities. In December, 1911, the commission determined to establish seven division offices in different parts of the state, each in charge of a division engineer, and the following appointments of division engineers were made and branch offices established: Francis G. Somner, Willits; T. A. Bedford, Redding; Wm. S. Caruthers, Sacramento; Arthur E. Loder, San Francisco; Walter C. Howe, San Luis Obispo; J. B. Woodson, Fresno, and W. Lewis Clark, Los Angeles. } The Redding office has since been moved to Dunsmuir. * There have been several changes on the staff of division engineers. Mr. Clark has succeeded Mr. Loder as division engineer at San Fran- cisco; W. W. Patch has succeeded Mr. Clark as division engineer at Los Angeles; and Lester H. Gibson has succeeded Mr. Howe as division engineer at San Luis Obispo. George R. Winslow, in January, 1912, became the commission’s office engineer and later, First Assistant Highway Engineer. After the preliminary organization had been completed, actual road building operations were commenced in the summer of 1912. The legislature of 1913 passed California’s first comprehensive act for the registration of motor vehicles and the licensing of operators thereof. This act provided that one-half of the net proceeds should be devoted to the maintenance of state roads and highways. After this act had become effective, the advisory board imposed upon the California Highway Commission the further duty of maintaining the state highways constructed under the “State Highways Act.” In the year 1916 the people adopted the “State Highways Act of 1915” for a second state highway bond issue, in amount $15,000,000 and the expenditure of the proceeds thereof was placed in charge of the California Highway Commission. Finally the legislature of 1917 gave the California Highway Com- mission statutory recognition and a legal entity by an amendment of the Department of Engineering law providing that the three appointed members of the advisory board shall compose a subdivision of the Department of Engineering designated as the California Highway Com- mission and expressly prescribing their powers and duties. This amendatory act also transferred all state roads which had been constructed under special appropriations and which until 1917 had remained in charge of the State Engineer to the jurisdiction of the California IIighway Commission. Thus the California Highway Commission ceased to be an executive committee of the advisory board created for greater convenience in the Plate I. State Highway, Ventura County. Plate II. State Highway, Santa Barbara County, in Gaviota Pass. 43765 FIRST BIENNIAL REPORT. 7 conduct of the state highway work under the bond issues and has become a statutory body in immediate control and supervision of all state road and highway activities of California. In 1914, Mr. Towne resigned as a member of the advisory board and California Highway Commission and was succeeded by Charles F. Stern of Eureka. In 1917, Mr. Blaney, who had served as chairman of the commission after the resignation of Mr. Towne, resigned and was succeeded by Henry J. Widenmann of Vallejo. In October, 1918, after the death of Mr. Widenmann, Charles A. Whitmore of Visalia was appointed to succeed him, and in the same year, Emmett Phillips of Sacramento succeeded Mr. Stern, resigned. The present California Highway Commission therefore is composed of Messrs. Darlington, Whitmore and Phillips, Mr. Darlington being the present chairman. The organization chart on page 8 shows graphically how the different departments of the commission function. THE TWO BOND ISSUES. In 1910 California passed its first state highways act providing for a bond issue of eighteen million dollars to build a specific trunk line sys- tem of highways. This act was passed by a bare majority of the people of the state, being defeated in southern California by an aggregate vote of three to one. In 1916 the second highways act was passed providing for a bond issue of fifteen million dollars. This act was approved by a majority of the people in every county in California and by an aggregate vote of nearly four to one. (See table in Appendix ‘‘O’’ showing the votes by counties on these bond issues.) The original eighteen millions were exhausted by January, 1917. The funds from the new bond issue could not be available under the act until after the beginning of the new fiscal year, July, 1917. At a conference in January, 1917, participated in by all of the state officials concerned, a unanimous decision was reached that the highway work should proceed during the interim, that its cost would be defrayed by borrowing from the Motor Vehicle Fund, and that the state, itself, would guarantee the sale of not less than three millions of highway bonds when their advertisement and sale should be legal under the act. The first block of five million of the new bonds was sold in August, 1917, at a slight premium. Had the law permitted the state to market these bonds in January rather than in August, they would have com- manded a much greater premium. It is to be recommended that in future issues of this description, restrictions be removed as to date of sale. THE PEOPLE [. Legislature | GOVERNOR t ſº | ADVISORY BOARD DEPARTMENT of ENGINEERING | | || | CAL For N1A HIGHvyAY cort Nº Ission | | CH I E. F. keeutive | s=CFEEARY | | HIGHWAY ENGINEER ] | | Assistºrs |ASSTHIGHWAY ENGR.] Nº. 1 N U T E S | | | | | * N AND MAINTENANCE [LEGAIDERE][Disaursing Dept.][Accounting Dept.][Purchasing Dept.] [HEADQUARTERS ENGINEERING ! Locatio N, construcrlº I [. | I TT | DIVISIONTo FFICE’s 7 || | ATTo RNEY || Disaursing offices [CHIEF Accountanſ [Purchasing AGENT [office ENGINEER J Geologist | | | I- | | Division ENGINEER | | | Assistants |[Assistants ſistenographERST [TESTING ENGINEER [FIELD GEology] | YESTING LABORATORY [Assºv. ENGINEER |sionſ of way acts] . [BANK accounts || Aubry of sills D REQUIsrſions —— —a * | T | | [Rigºrs of WAYT | [office Funds TDFINANCIAIREconos'] Taucrations T. [As ºf Engineers][PHonographs ſclerks |[DRAFTSMEN][CHIEFºrty]|REs. Enca. | I CONTRACTs | writing orchecks || Purchases | LPºrtsmen | Blue PRINT* | Gºnographers][computers][SURVEYMEN][Assistan. º I Cºnfuſias JEEEEEEEE| ETE: Iſºſt sºlº) Lºad Plans JLCLErºs ORGANIZATION [sºnsicº | snogºsº | STENOGRAPHERS AN ID) | Estimates T. [ FitEs ACTIVITIES [9]8 Cſ, Plate III. State Highway, San Luis Obispo County, near Pismo Beach. Plate IV. State Highway, San Benito County, San Juan Grade. EIRST BIENNIAL REPORT. 9 The first bond issue of $18,000,000, bearing 4 per cent interest, was hard to market and of the total but $4,280,000 were sold publicly. The remainder, $13,720,000, was sold to the counties which purchased them because otherwise the work could not have gone on. The following table shows the disposition of the bonds: SALES H IGHVVAY BONDS TO COUNT | E.S. Division I. Humboldt ------------------------------------ $600,000 Mendocino ----------------------------------- 445,000 $1,045,000 Division II. Shasta * * * ____ $205,000 Siskiyou -- * * - - - 225,000 Tehama ------------------------------------- 350,000 Trinity –- 15,000 $795,000 Division I I I. Butte –––– - - * * ____ $325,000 Colusa – 486,000 El Dorado ----------------------------------- , 150,000 Glenn ––––––––––– - - - - - 268,000 Placer * 250,000 Solano ------------ – 350,000 Stanislaus –––––––––––––––– - - 210,000 Sutter ---------------- 105,000 Tuolumne ------------------------------------ 100,000 Yolo - - 50,000 Yolo–Sacramento ––––––––––––––––––––––––––––– 627,000 Yuba ---------------------- 40.000 $2.961,000 Division IV Alameda ------------------------------------- $400,000 Contra Costa --------------------------------- 300,000 Marin * - sº- * * * * * - * * * * *- - - - - - - - - - - - - - -º- men ºm mº, ºsmº - - 150,000 Napa ---------------------------------------- 125,000 Santa Clara ––––––––––––––––– ($3S,000 Santa Cruz ---------------------------------- 135,000 San Mateo ----------------------------------- 325,000 Sonoma ------------------------------------- 220,000 $2.293,000 Division V. Monterey ------------------------------------ $5S0,000 San Benito ----------------------------------- 125,000 Santa Barbara ------------------------------- 694,074 San Luis Obispo------------------------------ 385,000 $1.7S4,074 Division VI Fresno -------------------------------------- $150,000 Inyo ------------------ - * * * T00,000 Kern ---------------------------------------- 640,000 Kings --------------------------------------- 105,000 Mariposa ------------------------------------ -------- Merced –––––– - * * * * 220,000 Mono --------------------------------------- 50,000 Tulare -------------------------------------- 265,000 $1,530,000 Division VII Imperial ------------------------------------- $380,000 Orange -------------------------------------- 400,000 Los Angeles ---------------------------------- 1,195,000 Riverside ------------------------------------ 100,000 San Bernardino –––––––––––––––––––––––––––––– 193,000 San Diego ----------------------------------- 522,000 Ventura ------------------------------------- j21,926 $3,311,926 Total ––––––––––––––––––––––––––––––––––––$18,720,000 General --------------------------------- 4,2SO,000 $1S,000,000 I0 CALIFORNIA HIGHWAY COMMISSION. The second issue of $15,000,000 bearing interest at 4% per cent seemed to find a ready market except when the Federal Capital Issues Com- mittee was in operation. Of this issue, bonds have been sold as follows: ; i Date | Purchaser ' Numbers Amount { -------- ------ -- - - ------- ---------- - --- t Aug. 1, 1917 | Nation al City Co. and E. H. Rollins & Son-------------- 1–3000 $3,000,000 00 Sept. 11, 1917 | Teachers' Permanent Fund------------------- 3001–3250 250,000 00 Sept. 8, 1917 | National City Co 3251—5000 | 1,750,000 00 May 8, 1918 National Bank of D. O. Mills & Co.--- 5001—5005 5,000 00 June 22, 1918 National Bank of D. O. Mills & Co.----------------------- 5006—5011 6,000 00 Aug. 5, 1918 General Fund surplus--- * * - 50.12–5311 300,000 00 Aug. 9, 1918 H. J. Aden 5312–5316 5,000 00 Aug. 28, 1918 General Fund surplus--------------------------------------- 5817–5516 200 000 ()0 Oct. 29, 1918 General Fund surplus---------------------------------------- 55.17–5841 325,000 00 Nov. 26, 1918 General Fund surplus 5842–6041 200,000 00 Nov. 30, 1918 General Fund surplus - - 6042–6641 600,000 00 Nov. 30, 1918 Anglo-London-Paris National Bank 6642–71.16 475,000 00 Total - - - $7,116,000 00 Of the total bond issue of $15,000,000 but $7,884,000 remains to be sold. Of this amount $3,000,000 must be reserved for work to be done under the provisions of the law relating to the “$3,000,000 Lateral Roads” discussed on page 25, and it is probable that obligations already incurred will require at least $2,750,000 for their fulfillment so that but little more than $2,000,000 remains for new work. Statements of financial conditions and expenditures will be found in Appendix ‘‘C’’. HOW WAR AFFECTED WORK. In April, 1917, the United States entered the war. Conditions became increasingly abnormal; costs of labor, equipment, materials and subsistence steadily increased. Shortage of skilled labor and transpor- tation developed. None the less, the work progressed to the utmost limit of the facilities available. During this year highway work east of the Rockies was almost entirely suspended—but California kept on. By the fall of 1917 the war conditions developed conspicuously in California. A freight embargo was laid on the use of open cars for highway purposes by the War Industries Board. To meet this situation various transportation expedients were adopted; cement and materials were shipped in open cars or in box cars, were hauled by motor trucks and tractors, and the commission even leased and operated cars of a type exempt from the embargo. As these conditions developed the work had gradually dragged. The state was delayed in the delivery of materials on contracts, due to lack of transportation. Contracts that should have been finished in 1917 remained for completion in 1918, either through the inability of the contractors to finish or due to their deliberate choice of reserving the work for possibly more favorable conditions in 1918. Plate V. State Highway, Alameda County, Altamont Pass. Plate VI. State Highway, Alameda County, Altamont Pass. FIRST BIENNIAL REPORT. 11 The advancing wages paid to laborers had naturally a most serious effect on the unit prices bid by contractors on state highway contracts so that in 1917 and 1918 contracts were let frequently at unit costs from 40 to 60 per cent greater than were used in the preliminary esti- mates, made in 1914 and 1915, on which the second bond issue was based. The engineers uniformly increased their estimates to keep up with the steadily advancing cost of labor and materials but it was a rare contract that was let within the engineer’s estimate. Some contract sections were advertised two and three times and no proposal within reason was received. The years 1917 and 1918 were particularly difficult ones for the con- tractors engaged in state highway work. Contracts taken at a price based on labor at $2.50 to $3.00 per day have been completed with labor at $4.00 to $5.00 per day, and subsistence in proportion. This condi- tion has resulted in a loss to a great many contractors and in great financial distress to a number. The state’s obligation in the premises is a matter for discussion. Cer- tainly the state does not insure contractors’ profits, but it is equally certain that the contractor, as an individual, ought not to be called upon to shoulder all the war burden. Because of delays in furnishing materials to its contractors, due to causes beyond its control in most instances, the commission has some- times approved contractors’ claims for damages, the payment coming from the State Highway Fund. Again, to avoid such claims, in 1917 and 1918 the commission frequently paid a considerable part of the cost of stockpiling materials in advance of their use so that when needed there would be no shortage. But the class of claim first referred to, due solely to advanced prices because of the war, and accruing after the execution of the contracts, the commission believes should be the subject of special consideration. If such claims are to be paid, the general fund of the state and not the State Highways Fund should carry the burden. UNITED STATES HIGHWAYS COUNCIL AND CAPITAL ISSUES COMMITTEE. Complaints from the public were heard at times in 1918 of the slow- ness of progress in state highway construction. It is true that the work seemed to drag but it is also true that east of the Rocky Mountains there was practically no state highway construction whatever. While the highway work in 1918 progressed under every character of difficulty, it did progress. In the early weeks of the year the commission and its engineers care- fully canvassed the situation, with a view to determining upon a con- struction program for 1918 that would comprise only the essential 12 CALIFORNLA HIGHWAY COMMISSION. highway projects. Out of approximately 150 projects all but 31 were eliminated from consideration for the year 1918. s On March 13, 1918, this program was presented to the local committee of the Federal Reserve Bank, representing the National Capital Issues Committee. This committee was then without legal authority, but it was the desire of this department to co-operate, not only in letter but in spirit, with any federal agency. The proposed program was sup- ported with maps, detailed descriptions of individual projects, complete financial statement, and with testimony obtained direct from the com- munities involved as to why their particular projects should be com- pleted under war conditions. Every facility of this department was placed at the disposal of the Capital Issues Committee. Members of this commission, the highway engineer, and the chairman of the State Board of Control were in frequent conference with the local Capital Issues Committee through its chairman and its secretary; every par- ticle of information and all data asked by the committee were promptly and cheerfully furnished. None the less, until September, 1918, no action was taken by this local committee, either granting or denying the request, either approving or disapproving the program, in whole or in part. .* The construction period of 1918 was entered with a considerable num- ber of contracts under way, carried over from 1917, with essential projects which should be undertaken during 1918, and no action, either favorable or unfavorable, from the Capital Issues Committee. In the meantime, California communities were clamoring for their roads; there were ‘‘missing links’’ in the main trunk lines that should not be excluded under any possible definition of war necessity. These trunk lines were needed in complete form to relieve rail congestion and to facilitate the moving of agricultural products. - With a full sense of the responsibility involved, the commission car- ried on but made it perfectly plain that it was prepared to stop the work, in whole or in part, should the government so require. The Capital Issues Committee went out of existence to all practical purposes on December 31, 1918. - In August the United States Highways Council was organized, sup- posedly to clarify the muddled condition into which the highway work of the country had been placed by the conflicting actions and orders of the various national war boards. - - * The clarifying process, however, seemed to consist in an attempt to stop all highway construction regardless of local needs or facilities. The council seemed determined to make a uniform rule applicable throughout the country, and were it not for the armistice in November and the dissolution of the council within a day or two thereafter, it is probable that all highway work in California would have ceased, Plate VII. State Highway, Fresno County. Plate VIII. State Highway, Los Angeles County, on the Ridge Route. FIRST BIENNIAL REPORT. 13 This in spite of the facts that in this state labor could be had, costly and inefficient to be sure; that there was no shortage of road building materials; and that the freight car situation, though not good, was better in the fall months than in the previous year. - Fortunately, the commission proceeded with its work to the fullest extent possible, taking advantage of every condition available, and the armistice came before it was necessary to actually stop the work. WORK DONE AND TO BE DONE. The following tabulation shows the mileage of the several types of work accomplished in constructing the state highway system at the end of the fiscal year 1916, the accomplishment during the biennial period ending June 30, 1918, and the total mileage of each type on the latter date: Juº", 1916-1918 iſº, lºº. . . miles işiš miles miles Cement concrete base with Topeka mixture or sheet asphalt tops.--- 17.01 20.81 37.82 Gement concrete base with thin bituminous tops - 766.76 241.43 11,008.19 Broken stone base with Topeka mixture top 16:21 ---------- * 16.21 Oiled macadam — 129.38 50.91 £180.29 Bituminous. concrete 10.37 8.76 *19.13 Graded, but not paved 323.14 32.62 3355.76 Totals * * * = 1,262.87 354.53 31,617.40 i § ..i.On approximately 480 miles of this type, the thin bituminous top has not been applied. *Includes 166 miles built by the counties, but now under the jurisdiction of the commission. 8This figure does not include nearly 700 miles of graded road taken over August 1, 1917, from the State Engineer's jurisdiction. The figures in the foregoing table do not include unaccepted contracts incomplete on June 30, 1918, at which time the following mileages of road were under contracts let and in progress: Cement concrete base with Topeka mixture tops____________ 2.18 miles Cement concrete base with thin bituminous tops____________ 215.94 miles Graded but not paved-------------- - * ºm 131.25 miles Total ------------------------------- 349.37 miles A very considerable portion of the 349 miles was completed by June 30, 1918, probably not less than 60 per cent. On July 1, 1918, the gaps remaining in the original system (State Highways Act of 1910) are shown in the following table, but work under then existing contract or day labor authorizations is not included . Placer County * ~ ** * -- - -º-º-º-, * * * ***** *-*** Sonoma ----------- Mendocino Mendocino THumboldt * Humboldt Humboldt Del Norte Monterey Monterey Monterey Santa Barbara --- Butte Tehama ----- - = <= = * * Tehama Tehama Shasta ------------ Siskiyou Siskiyou ---------- Sacramento ----- -- ams sm * ºras -º sº wº aw ºr * * * * * * * * * * * * * * ºss ºf m sº * * * * * * * * * * * * * * * ºn º º ºs ºms San Joaquin San Joaquin ------- | Kern --------------- San Joaquin Alameda Alameda -- ~~- - - - - --- - Sacramento Yolo ---------- * * * = Los Angeles San Diego San Diego -------- San Diego N. Imperial y. Imperial ----------- Stanislaus --------- Mendocino --------- I,ake *- :=º º º ºr * * sº me mº ºms amº tº *-* * * * * * * * *s º * * * * * * * am me - ºm m. me tº mº m sº * * * ms ,” * Amº m me tº me ºf as ºne sº as ºn tº Placer ------------- sm, sº * * * * * PORT | ONS OF ORIGINAL SYSTEM UPON V H | CH i Route Section 4 12 12 12 12. 13 16. 17 17 i4 i R 2 -AI 8. A. -E º B D A and B G - At Alpine --- Termini Miles Healdsburg to Cloverdale * * | 16. Hopland to 23 miles north - - ~ 2.6 Arnold to Sherwood-Laytonville Junction------------------ 10.4 Fortuna, to Loleta------------------------------------------- | 3.9 Beatrice to Eureka------------------------------------------- 7.9 Argata to north boundary-------- | 55.1 South boundary to Crescent City--------------------------- ; 30 King City to King City Bridge------------------------------ 1.7 San Lucas to San Ardo----------- 11.1 Three miles north of Bradley to south boundary---------- 10.4 Divide to Orcutt--------------------------------------------- 3.6 Biggs to Nelson---------------------------------------------- 12.4 South boundary to Los Molinos 11.7 At north boundary--- - - i 1 Los Molinos to Red Bluff --- 15.5 South boundary to Redding-----------...--------------------- - 15.6 South boundary to Dunsmuir i 1.5 Weed to Yreka------------- ¥ * -. ! 28.4 Galt to south boundary----- ; 2 North boundary to . Houston School------------------------ 5.3 | Stockton to South boundary------- 18.6 One mile north of Bakersfield to Bakersfield---------------- 1. At French Camp and Banta----- * = - 2.5 Castro Valley Road to Hayward .5 Overacker to south boundary--- -- ", , 8.4 Sacramento River to end of pavement, West Sacramento- .5 Blacks to Woodland .* 11 La Canada to Pasadena----- 3.5 * * .9 Pine Valley to east boundary 35.7 Along San Diego-Imperial County boundary--------------- - 2.8 West boundary to Myers Creek --- 35.1 Oakdale to Knights Ferry 11.6 Hopland to east boundary 10,1 West boundary to Lakeport 9.2 Through Rocklin ---. - 1.5 6.7 Auburn to north boundary --- NO WORK HAS BEEN DONE. Remarks Improved county road to be taken over and align- ment revised. About 1.5 miles improved county road and about 3.8 new construction. * New construction about 3 miles, improved county road 15.6. Improved county road. New construction on revised line. 13-ſº Improved county road. r i Merced ------------ 18 A Merced to east boundary 14.9 Shasta. ------------ 20 A and B | Redding to West boundary &= 26 Trinity ----------- - 20 | A and B | East boundary to Weaverville 27 Butte -------------- 21 A. Shippee Road to Oroville 6.7 | San Joaquin ------ 24 B Lodi to Clements 3. 12.3 || Improved county road. San Joaquin ------ . 24. A Clements to east boundary- - ° 4.3 - Calaveras ---------| 24 A West boundary to Valley Springs 10 Nevada ----------- 25 A. Nevada City to North San Juan 14 Shasta ------------ 28 *A to E | Redding to Lassen County line---- 35 . Lassen ---------- 28 B | Bieber to north boundary - 13. Modoc --------- --- 28 A and B | South boundary to Alturas * = 41 Tehama ----------- 29 A, B, C, Red Bluff to east boundary * * *s sº #2.5 Plumas ------------ 29 A. Tehama County line to Lassen County line---------------- | 23 Lassen ------------ 29 A. West boundary to Coppervale--- - 1() Lassen ------------ 29 B Coppervale to Susanville 15 Butte ------------- | 30 A and B | Oroville to east boundary----------------------------------- 35 Plumas ----------- 30 A and B | West boundary to Quincy A 30 *. Sacramento ------- 34 F3 Al'no to Clay- 9.3 | Under construction by county. Sacramento. ------- | 34 A Clay to Amador County line----. 8.5 - - Amador ----------- 34 A and B | Sacramento County line to Jackson 16.6 Total.---------------------------------------------------- 829.8 *Inclusive. S. 16 CALIFORNIA HIGHWAY COMMISSION. Of the foregoing gaps, the following have been provided for since June 30, 1918: -- . . . . . . *-ºs----------as-mºssm- County Iłoute | Section Termini - -- -- Miles Mendocino -------- 1 G Arnold to Sherwood-Laytonville Junction-------- 10.4 Monterey --------- 2 : G San Lucas to San Ardo -------- * 11.1 Monterey --------- 2 I i Three miles north of Bradley to south boundary 10.4 Butte ------------- 3 B Biggs to Nelson: -- -------- 12.4 . Siskiyou ----------- 3 A South boundary to Dunsmuir + - 1.5 San Joaquin ------ 4 A and B Stockton to sounth boundary------------------- 18.6 Alameda ---------- 5 : C Overacker to south boundary -: , 8.4 . Butte ------------- 21 A ; Shippee Road to Oroville - ºf 6.7 Calaveras --------- 24 A West boundary to Valley Springs * & , 10 I,assen ------------ 29 B Coppervale to Susanville- ----------- 15 | Totall. - 104.5 t ; - - - The previous tables do not include the roads contemplated in the “$3,000,000 lateral” feature of the second state highways act. These roads are here listed together with certain other sections, the authority for the construction of which is not so clearly defined but is found by construing both state highways acts together: i County Route | Section Termini Miles } . Remarks Monterey ---------- 10 ---------- San Lucas to east boundary 27 Fresno ------------ 10 *A to F | West boundary to southeast boundary-------------------- 54 Rings -------------- 10 B West boundary to Hanford 19.5 Mariposa ---------- 18 *D to H | Mariposa to El Portal.--------------------------------------- 32.6 Trinity ---4-------- 20 *C to F | Douglas City to west boundary----- --- 60 - Humboldt --------- 20 All Trinity County line to Arcata--- as sº 50 *. - f Los Angeles ------- 23. A. Saugus to Santa Clara River 4.8 Improved county road, IOS Angeles ------- 23 B Santa Clara River to Sec. 15, T. 4 N., R. 15 W.------------- 1.9 - - Los Angeles ------- 23 C Sec. 15, T. 4 N., R. 15 W. to Seeley’s Ranch----------------- 8.4 Improved county road. Los Angeles ------- 23 E Acton to Vincent 3.3 & & Los Angeles ------- 23 F and G | Palmdale to northern boundary---, sº me * * ,16 ** Kern --------------- 23. All Los Angeles County line to Inyo County line-------------- 80 Inyo --------------- 23 *G to M | Southern boundary to Independence 79 Inyo --------------- 23 A Independence to Division Creek - º 1().2 Inyo --------------- 23 *C to F | Fish Springs School to northern boundary----------------- 36.2 Mono ------------- 23 *B to E | Sherwin Hill to Deadman Creek amºs ºs 27.7 Mono ------------- 23. H and I | Tioga Pass Junction to Bridgeport 26.3 San Bernardino --- 26 | A and B | San Bernardino to southern boundary 12.4 Improved county road. Riverside ---------- 26 *A to E | Northern boundary to Indio-------------------------------- 51.8 t Riverside ---------- 26 F. Indio to Sec. 6, T. 7 S., R. 8 E.------------------------------ 8.6 5.5 miles under construction by county. Riverside ---------- 26 G Sec. 6, T. 7 S., R. 8 E. to Imperial County line------------ 14.3 Imperial ---------- 26 C, D, E | North boundary to Kane Springs--- gº ºn ! 26.3 Imperial ---------- 26 A, F,G,H º Canal to El Centro------------------------------- | 26.3 Imperial ---------- 27 C, D, A El Centro to The Well--------- ------------------------------ | 36,8 -- Imperial ---------- 27 B The Well to Yuma Indian Reservation--------------------- 7.5 5.1 miles plank road on part of Section B. San Bernardino --| 31 A and B | San Bernardino to Summit--------------------------------- 24 Improved county road. *. San Bernardino -- 31 *C to F | Summit to Barstow------------------------------------------ ſ 52.4 Santa Clara ------ 32 A, B, C Gilroy to Merced County line------------------------------- : 26.1 Merced ------------ 32 A, B, C Santa Clara County line to Madcra County line----------- | 4.1.8 Madera. ------------ 32 A Merced County line to Califa------------------------------- 15.7 San Luis Obispo_- 33 A, B, C | Paso Robles to Kern County line--------------------------- | 33 Kern --------------- 33 || A and B | San Luis Obispo County line to Hart Station------------- ; 31.8 Kern --------------- 33 C Hart Station to Wasco-------------------------------------- | 19 Improved county road, Kern --------------- 33 T) Wasco to Famosa.------------------------------------------- 7.5 Total----------------------------------------------------- 972.2 *[j] oltışiyo. º 18 CALIFORNIA HIGHWAY COMMISSION. The special “$3,000,000 laterals” will be discussed under that caption. It is obvious that the gaps in the state highway system, exclusive of the special laterals, can not be constructed with what remains of the bond issue money and have the results satisfactory to anybody. The main trunk lines will be left in good condition with few, if any, important links missing, but the extraordinary advances in the costs of labor, materials and transportation which have resulted from the war conditions have vastly lessened the purchasing power of the bond issue. The figures upon which the second bond issue was based were made up in the fall of the year 1914 and early spring of 1915. The money became available in August, 1917, except that $700,000 was transferred in the spring of that year from the Motor Vehicle Fund, which sum was returned to the Motor Vehicle Fund when the first block of the second state highway bonds was sold in August, 1917. It is doubtful if any contract has been let since the beginning of the year 1917 which has not cost at least 50 per cent more than was esti. mated in 1914–15 to be required for the work. - FEDERAL AID ROADS. In 1916, Congress passed an act, sometimes called the “Bankheati Act,” by virtue of which the United States co-operates with the severai states in highway construction. The law was construed at first somewhat narrowly as concerns the type of road which might receive aid from the government, and unless it could be shown that the road was used in the carriage of United States mail, little consideration was paid to it. However, later, more latitude was given in this particular and it is now understood that almost any main road over which the mails are carried or over which, when improved, the mails are likely to go, will receive consideration. California is unfortunate in the federal aid matters so far as its trunk lines of highway are concerned in that the most important roads usually parallel the railroads. This fact, however, may promote the earlier completion of certain mountain laterals elsewhere discussed. Of the total sum appropriated by the Bankhead Act, California is entitled to the following amounts: Fiscal year ending June 30, 1917––––––––––––– $151,063 92 Fiscal year ending June 30, 1918––––––––––––– 302,127.84 Fiscal year ending June 30, 1919––––––––––––– 456,167 32 Fiscal year ending June 30, 1920––––––––––––– 609,699 32 - Fiscal year ending June 30, 1921––––––––––––– 755,000 00 (Estimated) Total --------------------------------- $2,274,058 40 The following projects have been approved by the Secretary of Agriculture, who has jurisdiction in federal aid matters, and the Plate IX. State Highway, Kern County, near Tejon Pass. Plate X. State Highway, Kern County, FIRST BIENNIAſ, REPORT. 19 amounts stated are the sums which the government is expected to pay over to the state: No. 1–Beresford to Redwood City, 4.24 miles_-___________ $ 35,327 20 No. 3—Southerly boundary of Contra Costa County to Rich- mond, 2.55 miles------------------------------- 24,244 56 No. 7—Redding to Tower House, 16 miles_________________ 105,334 24 No. 8—Douglas City to McDonald’s Ranch, 48 miles________ 255,227 72 No. 9—Tecate Divide to easterly boundary of San Diego County, 15 miles------------------------------- 150,000 O() No. 10–Adin to Canby, 10.93 miles----------------------- 34,594 17 Total ----------------------- -- * $604,727 89 Of the foregoing, Nos. 1 and 3 have been completed and the sum of $59,571.76 paid into the state treasury. It is expected that the remaining approved projects will be prosecuted in the year 1919, it not having been possible during 1918 to commence any new federal aid projects on account of the war and the rulings of the United States Highways Council. In addition to the post road feature of the Bankhead Act, the law provides for another class of co-operative work in the national forests. Under section 8 of the law California is entitled to approximately $140,000 per year for ten years, beginning June 30, 1916. The commission has entered into co-operative agreements with the Department of Agriculture for the following work in the national forests: § Klamath River Road (Happy Camp-Somes Bar Section, , Klamath National Forest, Siskiyou County, approximately 45 miles in length, to be constructed by the U. S. government, the state of California to contribute $40,000 towards its cost. Trinity River Road, Trinity National Forest, approximately 34 miles in length, 13 miles in Trinity County, 21 miles in Humboldt County, 5 miles of the work (between Gray's Ranch and McDon- ald’s Ranch) to be built by the U. S. government, and 13 miles (between Gray's Ranch and Redwood Creek) by the state of California, the 5-mile section to be built by the federal govern ment to be considered a national forest project, and the 29-mile section to be built by the state of California a co-operative project. As in the case of post roads, because of the war, it was not possible to undertake these constructions in 1918. -- An important road which it is expected may benefit by the national forest co-operative money is the road in Mariposa County extending from Mariposa, the county seat, to El Portal, the gateway to Yosemite Valley. Negotiations for co-operative funds with the Secretary of Agriculture for expenditure on this road have failed thus far but it is hoped that with the war over arrangements may be made for its construction in part as a mational forest road. 20 CALIFORNIA HIGEIWAY COMMISSION. Congress, the President, and the heads of several of the departments at Washington are showing much more interest in highway construe- tion than heretofore, and there is much discussion of huge appro- priations to be spent under government auspices in the building of a system of national highways. This enlivened interest is because of several influences. The people have realized the great value of the highly improved European roads in the prosecution of the war. The motor truck industry has expanded greatly during the last year or two and, to some extent, the motor truck will supplant the railroad in the future, at least in short hauls for less-than-carload freight. Also, it is thought by many that a vast amount of public work should be provided for the soldiers returning from the war and, naturally, the infantile state of the highway improve- ment of the country offers a ready opportunity for the employment of many men, not only on the roads themselves but in the manufacture of tools and equipment and supplies, the need for which would develop rapidly should national highway work be undertaken on such a scale as seems to be contemplated. CONVICT LABOR ON STATE HIGHWAYS. The convict labor act of California was passed in 1915 (Chapter 124) and has been in operation for more than three years. Work has been done by the convicts in Mendocino, Sierra, El Dorado and Calaveras counties, and in general the work has been excellent and the results economical as compared with the work of free labor camps. It has been possible to do work in localities where it would have been exceedingly difficult, if not impossible, to employ free laborers, and in no case has the cost of the work equaled the cost of free labor. As conducted, the savings have not been so great as were anticipated at the time of the passage of the act but nevertheless the plan has been beneficial, both to the state and of course to the convicts. The Mendocino camps have used at one time or another about 770 men, many of whom have since been paroled. All of these men came from San Quentin. The other camps were manned from Folsom Prison. Apparently the best results attained were on the Downieville lateral in Sierra County, both in the cost of the work performed and in the general morale of the camp. - - The worst results were on the Placerville highway in El Dorado County where the men slept each night in Folsom Prison and were taken back and forth to and from the road each day. - The act provides definitely for dual responsibility in the management of the prison camps. The State Prison Board is responsible for the Plate XI. State Highway, Mendocino County, Convict Work. Plate XII. State Highway, Mendocino County, Convict Work. - FIRST BIENNIAL REPORT. 21 discipline of the camps and the California Highway Commission for the work performed. This dual authority has resulted in friction at times. The prison representatives at the camps have thought that they should have something to say as to the doing of the work and the high- way representatives have tried to dictate in matters of camp manage- ment which did not concern them particularly. Such difficulties are inevitable with human nature as it is but the Highway Commission and the Prison Board have never failed to adjust these troubles whenever they have been of sufficient magnitude to require their action. The present policy is to allow the highway representatives to have complete control of the camps and the work, and the prison officiais police the camps and look after the welfare of the men. The highway fund pays nearly every expense of the work including transportation, clothing, and feeding the prisoners, paying the medical bills and even caring for their teeth. It would seem that there should be some rebate on these expenditures since the prisons are relieved of practically all expense for the men after they leave the prison. The prison guards are on the highway commission pay roll, which also carries all costs of escapes of prisoners and rewards for their capture. - Doubtless it would not be fair to rebate the cost on the basis of the per diem cost per man at the prisons since the use of the men on the highways does not lessen in direct ratio the cost of the prison adminis- tration but surely the prison fund should bear some charge on account of the lessened expense brought about by the absence of the prisoners. During the period of the war, the convict work has been of very great economic value to the state. . In the Mendocino camps the division engineer reports that since the work began the cost per “effective man day” has been $2.53. While in normal times this would show little if any profit, during the war free labor received at least $3.00 per day net. In Sierra County the cost for a period of five weeks in August and September, 1918, was $1.46 per “convict work day,” a much better showing than in Mendocino County, but the period, it should be noted, is extremely short compared with the length of time included in the Mendocino case. - In Appendix ‘‘K’’ will be found some interesting reports by the division engineers of the commission under whose direction the convict work is in progress. 2 2 CALIFORNIA HIGHWAY COMMISSION. MOUNTAIN ROADS (SPECIAL APPROPRIATIONS). It was the habit of the legislatures previous to that of 1917 to pass each year special appropriations for the construction or improvement of roads, chiefly in the mountainous counties where the counties were not able financially to provide the money themselves. - Many of the roads so improved were well worth the expenditure but as should be expected when there are no maps or proper estimates or even adequate reports available, some errors were made and certain roads were taken over by the state which are of little general benefit. It would seem that strictly local benefits should not be the subject of special appropriations by the state. At least there should be some extraordinary impelling reason in such cases. - The 1917 legislature called a halt to such indiscriminate appropria: tions and as stated under the caption, “Special Surveys,” there is now available much information concerning the most important of the projects proposed in that year. - In August, 1917, the State Engineer passed to the commission the jurisdiction formerly held by him over the special appropriation roads, and they have been cared for since by allotments from the State Motor Vehicle Fund. With one or two exceptions the former superintendents were retained under the new management. The following table shows the distribution of these roads by counties and the mileage together with the divisions to which the roads are attached. The mileage of the several roads is somewhat approximate but in most cases the data are from the records of the State Engineer's office: DIVISION I. Miles None in this division. _* Total for Division I-------------------------------------------- 0.0 DIVISION II. Lassen County—Route 28–Lassen state highway________________________ 29.0 Sierra County (a)—Route 36—Sierra state highway_____________________ 2.9 Trinity County—Route 35—Trinity-Humboldt state road_________________ 33.0 . Total for Division H---------------------------------- * * * - - - - - 64.8) DIVISION III. Alpine County— - Miles Route 34—Carson Pass Branch_ * * - - - - - - - - - * * * * * - - - - - - - * *m-. 14.1 - Route 23–Trunk line, El Dorado County line to Pickett's______ 2.3 - Route 23—Pickett's to Woodfords - - ––– 6.3 Route 23—Woodfords to Loop------------------------------- 12.5 Route 24—Calaveras Branch Junction of Alpine trunk to Cala- Veras County -------- 31.S Route 13—Sonora-Mono road, Sonora Pass to Brightman's Flat - 12.5 Total ---------------------------------------------------------- 79.5 Amador County—Route 34—Alpine road, Carson Pass Basin––––––––––––– j7.8 Calaveras County—Route 24—Big Trees to Alpine County line_-__________ 22.6 (a) 14.5 miles additional surveyed but not built. Plate XIII. State Highway, Santa Clara County. Plate XIV. State Highway, San Mateo County, near Redwood City. FIRST BIENNIAL REPORT. 23 DIVISION III—Continued. El Dorado County— Route 11—Placerville to state line_- * * __ 65.0 Route 38—Myers-McKinney’s 24.0 Route 23—Osgood's to Alpine County line __ 10.7 Total --------------------------------------------------------- _ 99.7 Mariposa County—Route 40–Tioga road------------------------------ 2.2 Nevada County— - Route 37—Emigrant Gap * - - - - - - * * * - - - - - - - 11.1 Route 38—McKinney’s-Donner Lake ------------------------- 5.6 Total - - - - * = - _ 16.7 Placer County— Route 37–Auburn-Emigrant Gap ---------------------------- 43.85 Route 37—Emigrant Gap 14.7 Route 38—McKinney’s-Donner Lake - 21.8 Route 38—Myers-McKinney's * —— 1.25 Route 39—Tahoe City-Crystal Bay - * *-* –– 11.2 - Total — - - - * *-* = 92.8 Tuolumne County— Route 13—Sonora-Mono –––––––––– * = - – 31.5 Route 40–Tioga road (exclusive of Yosemite Park) --__________ 50.8 Total - ----------------------------------------------------- 82.3 Total for Division III------ - - ------------------- 453.6 DIVISION IV. Santa Cruz County—Route 42 California Redwood Park______________ 16.0 Total for Division IV------------------------------------------ 16.0 DIVISION V. None in this division. | Total for Division V------------------------- 0.0 DIVISION VI. f Fresno County (a)—Route 41—Kings River Canyon (built) --___________ 14.5 Mono County— Routes 13 and 23—Sonora Pass to Bridgeport - — 34.0 Route 40–Mono Lake Basin–––––– 12.3 Route 40–Tioga Pass to Mono Lake Basin River______________ 1.0 Route 23—Alpine County line to Little Antelope Valley_-_______ 9.4 Route 23—Little Antelope Valley to junction Sonora-Mono road_- 17.0 Total -------------------------------- - 73.7 Total for Division VI –– * * * * * * * * * * - - - * * * - - - - - - - - - - - - - -, sºme 88.2 DIVISION VII. - San Bernardino County—Route 43—End of county pavement to most easterly point Great Bear Lake, say 60 miles. Total for Division VII––––––––––––––––––––––––––––––––––––––––– 60,0 RECAPITULATION Miles Division I-------------------- 0.0 Division II-------------------- 64.9 - Division III–––––––––––––––––––– 453.6 Division IV-------------------- 16.0 Division V-------------------- 0.0 Division VI-------------------- S8.2 Division VII-------------------- 60.0 Total------------------------ 682.7 (a) On this road 32.8 miles were surveyed but the construction was stopped after 14.5 miles were built because of lack of funds. 24 CALIFORNIA HIGHWAY COMMISSION. The 1917 legislature by chapter 697 made a state highway of a por- tion of the so-called 101 mile drive in San Bernardino County, thus adding 60 miles to the mountain roads (nonbond issue roads) formerly under the care of the State Engineer but made no appropriation for its improvement. Nearly all of this mileage of mountain roads, totaling 682.7 miles, is unpaved, the only exceptions being a few miles of rudimentary macadam work; much of it is too narrow for safety unless the motor car driver has had experience in mountain driving, and altogether these roads present a serious problem and one which enlarges as time goes On. There is urgent need for expensive improvements on some of the more important of these roads, as for example, the Placerville-Lake Tahoe state road; the road passing Emerald Bay and extending to Tahoe Inn following in general the westerly margin of Lake Tahoe;- also the road from Auburn to Lake Tahoe. (Myers-McKinney's, Mc- . Kinney’s-Donner Lake, and Emigrant Gap state roads.) t These roads, making as they do a circuit for travelers by motor to and from Lake Tahoe, are not suitable for the great and increasing traffic passing over them. - It is doubtful if they should be paved expensively at the present time as the season during which they are traveled is short, lasting from the time the snow leaves, usually in June, until the latter part of Septem- ber, but much should be done to widen them and to ease the sharp curves and corners and to provide a wearing surface which will be comparatively free from the dust which now forms in many places almost as soon as the Snow melts. Such roads as the Kings River Canyon Road, which begins on the far side of General Grant National Park, in Fresno County, and goes part way toward the Kings River Canyon and ends nowhere, should be abandoned. Before one may travel this road he must pay a toll to the United States government since he must go through the Park to have access to the state road. Also, a part at least of the Sonora-Mono state road where the grades are so steep that high power automobiles go over them with great difficulty, if at all. At the summit on this road the elevation is 9,624 feet. A portion of this road is used mostly for the passage of cattle and sheep and should be abandoned to the county. - - Also, the so-called Sierra state highway of which 2.9 miles have been built out of the 20 miles contemplated by the 1907 legislative act. Of this road, State Engineer W. F. McClure in his biennial report for 1914–16 said, “This road would be about 20 miles long if completed. Less than three miles have been constructed at a cost of nearly $12,000. In its incomplete condition it does not afford convenience to any con- siderable number of people and if completed would not connect any Plate XV. State Highway, Napa County. Plate XVI. State Highway, Sonoma County, Between Petaluma and Santa Rosa. IFIRST BIENNIAL REPORT. 25 important centers of population or industrial activity; nor will it afford Downieville a good means of reaching the Sacramento Valley * * *. The suggestion is here made that the road be abandoned as a state road.” Investigation by the engineers of the commission confirms Mr. Mc- Clure’s judgment. The road seems to serve only a partly abandoned mine. THE THREE-MILLION-DOLLAR LATERALS. The second state highways act (1915; Chapter 404) sets aside the sum of $3,000,000 for the construction of the following projects, all to be “by the most direct and practical route’’: An extension connecting the interior and coast trunk lines in northern Cali- fornia through Trinity and Humboldt counties: An extension connecting the San Joaquin Valley trunk line at a point between the city of Merced, in Merced County, and the city of Madera, in Madera County. with the coast trunk line at or near the city of Gilroy, in Santa Clara County, through Pacheco pass; - An extension of the Mariposa County state highway lateral to or near the railway station, El Portal, in Mariposa County : An extension connecting the San Joaquin Valley trunk line in Tulare County with the coast trunk line in Monterey County by the continuation of the lateral between the cities of Visalia and Hanford through Coalinga , An extension connecting the San Joaquin Valley trunk line at or near Bakers- field with the coast trunk line in San Luis Obispo County, through Cholame pass : An extension of the San Bernardino County state highway lateral to Barstow, in San Bernardino County; An extension connecting Antelope Valley, in the county of Los Angeles, with the city of Los Angeles; i An extension of the San Bernardino County state highway lateral to the Arizona state line near the town of Yuma, Arizona, via the cities of Brawley and El Centro, in Imperial County. The act, however, provides that the ‘‘expenses of the acquisitiou, construction and improvement of the extensions enumerated and the acquisition of rights of way therefor, shall be partly borne by the county or counties in which such extensions lie, the extent and character of such division of expenses between the state and county shall rest for final determination with the State Department of Engineering and said department is hereby authorized to enter into such agreements and undertakings as are necessary to properly carry out the intent of this section.’’ - These several extensions were included in the second state highways act during the last stages of its passage by the legislature and without knowledge of the probable cost entailed, there being neither surveys, maps nor estimates available upon which accurate judgment could be based. Not even the lengths of the several roads included were known, even approximately. So soon as might be after the passage of the act, the commission ordered surveys made of the several roads together with reports and estimates. The surveys were more or less of a preliminary nature, the 26 CALIFORNIA HIGHWAY COMMISSION. idea being to have some reasonable basis upon which to discuss the relative shares which the state and the counties involved should con- tribute toward the cost of the projects. - It is manifest that some of the counties through which the proposed routes pass are unable to contribute much, if anything, toward the cost of the projects, and while it is generally understood that the legislature intended that the counties and the state should each bear one-half of the cost, it is difficult to see how such counties as Trinity and Mariposa, the former in 1916" having a total valuation of $3,431,979 and the latter of $3,795,101, can pay anything toward the amount required for the costly work proposed within their boundaries. There was one fixed feature in the act. The state can spend but $3,000,000. The reports and estimates of the engineers made in September, 1917, indicated a total length of 679.71 miles for seven” of the projects and a total cost of $8,963,675 as the cost of building them. . . The following table shows the estimated length and cost of each of the seven laterals: Per- * State’s * -- ~ * Estimated centage i. Cºnties lº. ". € o,lº § Pºiº Of COS OTegOiD total pºs lateral Trinity lateral 102 $1,175,000 .13108 $393,240 $781,760 Pacheco Pass t 83.45 1,618,413 ,18055 541,650 1,076,764 MaripOSa - 32.60 533,554 .05952 178,560 354,997 Coalinga 98.25 1,502,538 ,16762 502,860 999,678 Cholame Pass — 91.22 1,339,596 .14944 448,320 891,275 San Bernardino to Barstow---------------- 76.33 534,112 .05959 178,770 355,342 San Bernardino to Yuma. 195.86 2,260,462 .252:17 756,510 1,503,949 Totals 679.71 $8,963,675 .99997 || $2,999,910 $5,963,765 At this stage of the study the supervisors of the several counties interested were invited to Sacramento to confer with the commission in order to establish the general principles to be followed. The conference was held on September 26, 1917, and representatives from all but one of the counties were present. At the meeting the following understanding was arrived at : 1. That the moneys should be expended in permanent types of construction in the discretion of the commission as far as it would g0. 2. That it was the sense of the meeting that the plan of appor- tionment of funds proposed by the commission of the $3,000,000 be approved. (See foregoing table.) Both of these votes were unanimous. aSee Schedule “8,” reported by County Auditors to the State Tax Commission for 1916. Tax Commission, 1917, page 175.) bThe eighth project, here omitted, is “An extension connecting Antelope Valley in the county of Los Angeles, with the city of Los Angeles.” - Why this project is onnitted is explained in Appendix “M.” Summary of Assessed Values of nonoperative property as (Report of State Plate XVII. State Highway, Ventura County, Conejo Grade. Plate XVIII. State Highway, Ventura County. IºIRST BIENNIAL REPORT. 27 It was also arranged that the commission should later go to the localities to discuss the details of each project with the supervisors, and such meetings were held at San Bernardino, Bakersfield, and Fresno in the fall of 1917. The estimates of cost shown in the foregoing table are based upon the joint wishes of the commission and the county officers in so far as the types of road are concerned. In some cases paved roads are contem- plated while elsewhere graded roads only are provided. Also, so far as the commission understands the case, there is no lack of agreement as to the locations of the projects. However, to November 30, 1918, there has been almost no activity as concerns these special laterals. It is true that in Riverside County both the state and the county have done or have made arrangements for the building of short sections of the San Bernardino to Yuma project. Also, that San Luis Obispo County desires to proceed and is said to have set aside a small allotment for a portion of the Cholame Pass lateral, but these are but small undertakings in a total project involving nearly $9,000,000. It is probable that the war has played some part in the delay but the fact remains that the counties can not afford to pay their share on any such basis as is apparently contemplated in the act. The estimates for these laterals were prepared in the summer of the year 1917. At that time it was apparent that the counties would have to bear two-thirds of the cost of the roads but at the present time, at the prevailing cost of labor and materials, both much increased since 1917, the counties must bear a considerably greater share of the cost. As before stated, the state can spend but $3,000,000 as its share of the cost. The roads included in the ‘‘$3,000,000 laterals” are all important ones. The commission sees no reason why they should not be con- structed and paid for by the state as are the other roads in the system. In general, they are of much greater importance to the state at large than are some of the laterals to the county seats provided for in the first state highways act. MAINTENANCE. The maintenance of the state highways is of ever growing im- portance. * - At the close of the fiscal year in 1918, there were under maintenance 1,450 miles of highways constructed by the commission, 167 miles of paved highway which were on state highway routes and which had been taken over from various counties, and 683 miles of mountain roads, most of which were under state control prior to the formation: 28 CALIFORNIA HIGHWAY COMMISSION. of the California Highway Commission, a total of 2,300 miles of roads and highways. - - , - . The highways built by the commission have always attracted travel to them and in a number of instances, much money should be spent now in widening the pavement and in constructing shoulders to take care of the greatly enhanced traffic. - Not only have the vehicles increased greatly in number but the loads carried have increased enormously in weight and because of the non- enforcement of the terms of the Motor Vehicle Act, it is the rule rather. than the exception to overload the motor trucks, and the roads are doing much more duty than they were intended to do when constructed. The state highway maintenance work is financed wholly by the Motor Vehicle Fund which is derived from the fees paid annually by motor vehicle owners and operators into the state treasury. . Under the present law (Vehicle Act of 1915, amended 1917, Chapter 218), after deducting from the total receipts of the Motor Vehicle Department the operating expenses of that department, the balance remaining is divided into two equal parts, one part going to the State Motor Vehicle Fund for use in maintaining the state highways, the other part being paid to the several counties of the state for their use in maintaining the county roads. - - - Following is a tabulation showing the amounts available for state highway purposes from the State Motor Vehicle Fund for each of the several calendar years since the Motor Vehicle Fund has been operative: (*) 1914-------------------------------------- $591,228 57 (*) 1915-------------------------------------- 932,492 78 (*) 1910--------------------- __ 964,784 65 (*) 1917-------------------------------------- 1,247,268 80 (0) 1918-------------------------------------- 1,395,817 S9 (a) Total - - - - - - * * * *- - - - - - - - - - * * * $5,131,592 69 Assigned to State Engineer---------------------- 586,450 86 Total available for use of California Highway Commission ----------------------------- $4,545,141 83 During the same period the counties have had available the sum of $5,131,592.69 for expenditure on county roads. In Appendix “P” will be found a table showing how the sum of $1,395,817.89 for the first six months of the year 1918 was distributed among the several counties. - • *Includes amounts allotted to State Engineer. bThe sum for 1918 is for the first six months only. Plate XIX. A Road Train on the State Highway. Plate XX. A New Use for the Highway. FIRST BIENNIAL REPORT. s 29 The expenditures for state highway maintenanee and improvements for the several years during which the Motor Vehicle Fund has been in existence follow: - Eppenditures by California IIighway Commission from Motor Tehicle Fund. CALENDAR YEARS. 1914-------------------------------------- $83,935 S.5 1915–––––––––––––––––––––––––––––––––––––– 454,894 40 1916––––––––––––––––––––––––––––––-------- 1,189,812 10 (a) 1917---- emº sºme -s sm- amº amº sº amº - * *-* * * * 772,483 15 1918 (first six months)--------------------- 406,552 28 (b) Total to June 30, 1918––––––––––––––––– $2.907,677 TS In Appendix “J” will be found a table showing an analysis of the maintenance expenditures for the calendar years 1914 to 1917, inclusive. It is becoming increasingly apparent that more money will soon be needed for the upkeep of the state highways than is provided by the existing law. - It is interesting to note that other states as well as California are suffering from the selfish overloading of vehicles. In a recent paper written by H. Eltinge Breed, First Deputy Commissioner of Highways, New York State, he says: “Second, we must definitely eliminate our worst unknown factor—the weight of the load. For the past fifteen years we have built roads that have attracted to themselves traffic far greater than they were designed to bear, to the alarming depreciation of the investment in the road. The faster we build roads, and the better, the greater and heavier will be the traffic put upon them, until thousands of miles are destroyed, and millions of dollars lost. Only within the past year have we in New York State caught up with the demands of the passenger car for completed through routes, and now the truck is upon us, and roads designed for three tons are having twenty put upon them. They are going to pieces. Five millions a year are being spent in repairs, where at least half of it should be going for new construction. The thing is inevitable until we agree upon some arbitrary limit of load for which we are to design the highways. “It was exactly the same with the railroads, the track and the engine forever outstripping each other with enormous economic loss, until an arbitrary limit of load and speed was determined upon. Increases upon it since then have had to be of proved economy from the point of view of considering both the ‘tool’ and the ‘way.” In any system of transportation, those two must be reconciled before we can derive full benefit. “Look at our latest traffic reports on fifteen highways in various parts of New York State. There is an increase in truck tonnage varying biennially from 50 to 400 per cent and an average increase of 150 per cent over the tonnage of 1916. To try to build highways in pace with a continuous advance of that kind would bankrupt the public. “The Wiser motor-truck manufacturers have themselves adopted the broad policy of selling transportation service, rather than the exclusive one of selling motor trucks. These men, who have had every opportunity to study the economics of the problem, have agreed upon the desirability of the five-ton load as a standard unit. This should now be established by law, and our highways designed to meet it. It will mean a total maximum load of about 123 tons, of which approximately nine shall be applied to the rear axle. There shouid *In August, 1917, the California. Highway Commission assumed charge of certain mountain roads formerly under the jurisdiction of the State Engineer and thereafter the expenditures therefor are included in this table. bIn addition to this total expenditure the sum of $549,000 in round numbers was allotted but not expended by June 30, 1918. 30 º CALIFORNIA HIGHWAY COMMISSION. also be general regulations for other destructive factors, such as inadequate tires and springs. - “We can build roads economically for the five-ton load. We can not afford to have them disrupted by a few excessively large trucks. Nor should we design them extravagantly to meet the requirements of a few individuals. The maximum loading must be restricted to the economic standard suggested by the manufacturers and desired by the big majority of truck users. Then will the highway be able to give to the motor and to the community its most efficient service.” Subsection ‘‘c’’ of section 15 of the California Vehicle Act before referred to reads as follows: “Motor vehicle weight limitations. “(c) No motor or other vehicle or other object or contrivance for moving loads, except as hereinafter otherwise provided, shall be operated or moved upon or over any public highway or bridge, the weight of which resting upon the surface of said highway or bridge, exceeds eight hundred pounds upon any inch of width of tire, when said vehicle is equipped with tires made of other material than metal ; and no motor or other vehicle, object, or contrivance for moving loads shall be operated or moved upon or over any public highway or bridge, the weight of which resting upon the surface of said highway or bridge exceeds six hundred pounds upon any inch of width of tire, roller, wheel or other object supported on the surface thereof when such tires or the rolling surface of such rollers, wheels or other objects are made in whole or in part of metal, without first obtaining a permit as hereinafter in this section provided : provided, however, that traction engines or tractors the propulsive power of which is exerted not through wheels resting upon the ground but by means of a flexible band or chain, known as a movable track, shall not be subject to the foregoing limitations upon permissible weights per inch of width of tire if the portions of the movable tracks in contact with the surface of the highway present plane surfaces; and provided, further, that cities heretofore or hereafter organized under freeholders' charters may permit or prohibit the increase, beyond the maximum weight per inch of width of tire hereinabove prescribed, of the weight of loads carried within the limits of such cities in or upon metal tired vehicles drawn by muscular power, but where any such city has not by proper and suitable ordinance or other regulation permitted or pro- hibited such increase of maximum weight of loads, the regulations and limitations prescribed by this act shall not apply.” Here is a law very much like what New York state is asking for but of what avail is it? There is no real attempt to enforce it here nor will there be until the state has an adequate force of inspectors. SPECIAL SURVEYS ORDERED BY THE LEGISLATURE OF 1917. At the 1917 session of the legislature, a large number of bills were presented calling for special appropriations from the General Fund for the improvement of a number of roads in widely-scattered localities. The total sum asked for was impressive in magnitude. The Roads and Highways Committee had little or no information on which to base its judgment in acting upon these proposed appropriations. In most cases no surveys or estimates of cost worthy of the name had been prepared and as a result, but one road appropriation bill was passed and signed by the Governor.” *The single exception was the Susanville-State Line road in Lassen County, for which $60,000 were appropriated conditioned upon a like appropriation by the county. ºnty has not been able yet to finance its part of the cost and the project is 1In a GUIVé. * "Tº - Plate XXI. State Highway, Colusa County, Before Paving. Plate XXII. State Highway, Colusa County, After Paving. FIRST BIENNIAL REPORT. 31 The legislature, however, did pass an act (1917, Chapter 746), which, together with certain other features, calls for the survey and estimates of cost of such of the projects which had been presented to it as the committee considered to be worthy of investigation. These roads were: An extension of the Trinity-Humboldt state road, from its westerly end. in a westerly direction, to the town of Bridgeville, in Humboldt County; . A highway beginning at or near Oxnard, in Ventura County, California, and extending to a point near San Juan, in Orange County, California ; A highway from Jackson's Ranch, near Pescadero, in San Mateo County. California, to Governor's Camp, in the California Redwood Park, Santa Cruz County, California ; A highway beginning at Carmel, in Monterey County, California, and running thence in a southerly direction to San Simeon, in San Luis Obispo County, California, and a lateral highway from a point most feasible thereon to a point at or near Jolon, in said Monterey County; A bridge to span San Francisco bay at or near Dumbarton Point ; And a highway from the western boundary line of Kern County, California, to the state highway near the city of Santa Maria, Santa Barbara County, California. The surveys and estimates have been made by the commission of nearly all of these proposed projects and the plans and reports are on file in its office. THE VEHICLE ACT. The Vehicle Act (Chapter 218, Statutes of 1917) is a very important piece of legislation in its effects on the work of the commission. From the Motor Vehicle Fund which it creates the state derives all its money for the maintenance of the state highways (see section 34). The act specifies in section 15 the permissible loads which vehicles may carry on the highways. Section 22 provides for special speed regulations on the state highway when ordered by the commission. The commission, in section 32, is given certain jurisdiction over operators of motor vehicles when they misbehave under certain con- ditions. In section 34 the county supervisors are required to make reports annually of the expenditures made by them out of the county road funds derived from the Motor Vehicle Fund. The commission has no particular comment to make concerning the Motor Vehicle Fund save that as stated under the captain “Mainte- nance,’’ the portion which the commission receives for state highway maintenance is not sufficient to make the necessary repairs and im- provements. The needs due to increasing traffic are advancing faster than the fund increases. The commission believes that in general the provisions of section 15 concerning the permissible loads which may be carried are reasonable - for all parties concerned. The difficulty is in the nonobservance of the rules prescribed by the act and the inability and in some cases the negligence of the police authorities in their enforcement. *; 32 CALIFORNIA HIGHWAY COMMISSION. - s The commission believes that until a number of inspectors are appointed by the state to enforce the law, and the number need not be very large, the highways are bound to suffer from the selfishness of the owners of trucks and tractors. Such owners represent an extremely small proportion of the users of the highways and there is no good reason why they should be permitted to overload their vehicles or cut the roads with their tractors. A force of a dozen state inspectors whose sole duty is to enforce the provisions of the Motor Vehicle Act would correct these evils quickly. * The local authorities can not do it. Acting under that portion of section 22 which permits the commission to lessen the permissible speed on a bridge, dam, trestle, culvert, cause- way or viaduct as well as the maximum rate of speed over any state highway or portion of state highway, the commission on petition has passed the necessary orders and caused to be erected signs in the fol- lowing localities: On either side of the Davis subway, Yolo County; On either side of the Andora subway, Placer County ; At Salida, Stanislaus County ; At Newcastle, Placer County : - In the vicinity. Of the main entrance to the Napa State Hospital, Napa County; On the trestle approach to the municipal wharf at Martinez, Contra Costa County; - At Camp Fremont, San Mateo County ; At the intersection of the Saratoga road with the state highway, Santa Clara County; On the concrete bridge between Eagle Rock and Pasadena, Los Angeles County. This section which does away with the old ten-mile-per-hour speed on bridges, etc., is a marked improvement. The lack of necessity for such a low speed limit in such cases is apparent since this commission in the year and a half period since the law became effective has had but two applications for restricted speeds on bridges. The thirty-mile-per-hour speed now generally allowed on bridges seems to be reasonable. The provisions of section 32 require the commission to hold hearings to determine whether the licenses of operators or chauffeurs convicted of driving motor vehicles while intoxicated, or convicted for the third time in a calendar year of speeding, shall be revoked or suspended. The same jurisdiction is given to the commission in cases of reckless drivers or of persons incompetent or unfit to operate motor vehicles because of a mental or physical infirmity or disability. r To take care of these matters promptly the commission has decided to have a single commissioner, usually the member residing nearest to the operator involved, hear the case and report thereon to the full board at its next meeting thereafter. - Plate XXIII. State Highway, Imperial County, on the Desert. Plate XXIV. State Highway, San Diego County, near El Cajon. FIRST BIENNIAL REPORT. No formal complaints under this section reached the commission until late in the year 1918, since which time the following cases, all based on court convictions of driving while intoxicated, have been heard: ; ; Defendant Judgment Nov. 7, 1918 Sacramento ------ John Rothwell ------ Judgment withheld p en d in g good behavior of Offender. Nov. 7, 1918 Sacramento ------ Allen Harris -------- No cause found for revoking or suspend- ing license. Nov. 8, 1918 Modestol--------- J. H. Boren --------- I,icense revoked for remainder of 1918. Nov. 8, 1918 || Modesto_--------- Robt. Clairn -------- License revoked for remainder of 1918. Nov. 14, 1918 San Luis Obispo- Dennis M. Herrold---| License revoked for remainder of 1918. Nov. 18, 1918 Sacramento ------ C. D. Judd ---------- Judgment withheld p en d in g good behavior of Offender. Nov. 18, 1918 Sacramento ------ R. E. Allen ---------- License revoked for remainder of 1918. Nov. 19, 1918 San Francisco-i--| Geo. W. Browne----- Ilicense revoked for remainder Of 1918. Nov. 19, 1918 San Francisco----| Felix Boswell ------- Action suspended. Nov. 19, 1918 San Francisco----| John E. Keer-------- Action suspended. Nov. 19, 1918 San *w- John R. Dyer------- Action Suspended. It is the opinion of the commission that this right of revocation of operators’ licenses properly belongs to the original licensing authority. If all the cases which could properly come to the attention of the present reviewing authority, were referred to it, the highway commissioners would have time for little except license hearings. w The commission realizes the value of applying restraints upon intoxi- cated drivers, and believes that the question is of sufficient importance to warrant providing the Motor Vehicle Department with the machinery for strictly enforcing compliance with the law, the expense to be met from the Motor Vehicle funds. - The provision of section 34 which requires the county boards of supervisors to report their expenditures out of the county road funds derived from the State Motor Vehicle Fund became operative for the first time on March first of the year 1918. Most of the counties reported promptly but some were very slow and one county, Mono, has not reported to date. - The law provides that the reports shall be made on forms prepared by the State Department of Engineering. The forms so prepared were somewhat complicated and the returns made thereon were extremely crude in many instances and generally disclosed the fact that in most instances the money paid over to the counties by the state was merged with other county road funds and no special account kept of it. This was more or less expected and the reports were not examined Overcritically. Few of the county officials knew the law was in existence and in several cases better reports were promised for the year 1919. One fact stands out, however. It seems to be a rather general prae- ti e for the counties, particularly the smaller ones, to divide the money 3–437 (6 34 CALIFORNIA HIGHWAY COMMISSION. received from the state into five equal parts, one for each supervisor, thus dissipating the fund and accomplishing little useful work. - The law apparently intended that the money should go into a special road fund, perhaps a general fund, and be used for specific work. In Appendix “P” will be found a table showing how the counties’ share of a portion of the 1918 receipts (Period January 1 to June 30, inclusive) of the State Motor Vehicle Fund was divided among the counties. - - . . . . . . ... 2 It is interesting to note that Los Angeles County receives nearly 15 per cent of the total net receipts earned by the Motor Vehicle Depart- ment for the period stated, and nearly 30 per cent of the total sum paid over by the state to the counties. - . . . . . . . . . . . ... • BRIDGES. . . . S. . . . Most of the large bridges on the state highways have been built or paid for by the counties in which they are located, and estimating roughly it is conservative to say that not less than $3,000,000 have been spent by the counties in this manner for the benefit of the state as well as for their local use. - •, The plans for these bridges in nearly all cases were either made by the Commission's engineers or the plans and estimates were checked by the engineers at the headquarters office. In Appendix “L” will be found a statement by R. E. Dodge, office engineer, who has had direct charge of the bridge work, together with descriptions of some of the larger of the bridges referred to. - After their completion and acceptance these bridges become a part of the state highway system and are maintained by the state. RAILROAD CROSSINGS. The elimination, or at least the greater safeguarding of railroad . crossings, has been the aim of the California Highway. Commission in its development of the state highway system. . - ! Surveys have been made with these objects in view, as for illustration, between Redding and the north boundary of the state some thirty grade crossings have been eliminated, and when the plans of the commission fully mature there will not be a main line railroad grade crossing on the state highway between the south line of Tehama County and the - Oregon line. * . . . . . . . - A number of overhead crossings and subways have been installed at the joint cost of the state and counties and the railroad companies, and other such structures are projected for the near future. - . The work of installing such improvements has been temporarily sus- pended, however, on account of the United States Railroad Administra- tion not at present devoting funds for the purpose, but an early Plate XXV. Bridge on State Highway, Santa Barbara County, at Arroyo Quemado. Plate XXVI. Bridge on State Highway, Santa Barbara County, over Santa Ynez River. FIRST BIENNIAL REPORT. 35 p- resumption of co-operation on the part of the railroad authorities is hoped for. California has no statutes fixing a basis for the division of costs in cases of separation of grades as between the railroads and the state or counties. The matter of the division of costs is left to the determination of the Railroad Commission of California. - -- While the elimination of all grade crossings on the state highway would be most desirable, yet the cost thereof would be absolutely prohibitive. - Therefore, it has been the endeavor of the California Highway Com- mission to eliminate crossings which have constituted the greatest menace and to rectify the others as far as possible. The railroad com- panies and the commission have co-operated to the latter end by the installation of automatic flagmen, removing obstructions to view and otherwise improving safety conditions at grade crossings. Ordinarily the commission and the railroad companies have been able to agree in advance upon the division of costs in the construction of overhead crossings and subways, which preliminary agreements have always been ratified by the Railroad Commission. The usual practice in such cases has been for the railroad companies to bear one-half, the public the other half, of the cost of installation. In several places the commission, believing that such a course was for the best interests of the traveling public, has planned what are com- monly known as “skew’’ subways instead of right angle crossings. In Decision No. 2026 of the Railroad Commission on the application of the state for permission to construct a ‘‘skew’’ subway under the track of the Southern Pacific Company near Andora about one mile north of Roseville, Placer County, Railroad Commissioner Gordorr was of the opinion that a 45° ‘‘skew’’ subway was safer than right-angle undercrossing. However, he advanced the theory that a right-angle crossing would serve the purpose of a grade separation just as well as a “skew” crossing as far as the railroad company was concerned, the ‘‘skew’’ crossing, in his judgment, being but a refinement in the inter- est of vehicular traffic on the highway. Accordingly, he held that the public should bear a greater share of the cost of a ‘‘skew’’ undercross- ing than the railroad company. • The Railroad Commission issued an order in this case that the railroad company and the state should each pay one-half of the estimated cost of a right-angle crossing and the railroad company one-fourth and the state three-fourths of the difference between the estimated cost of a right-angle crossing and the actual cost of the “skew’’ crossing. The California Highway Commission has never been satisfied with this ruling as it feels that the cost of a ‘‘skew’’ crossing should be 36 CALIFORNIA HIGHWAY COMMISSION. divided equally between the railroad companies and the state just as in the case of a right-angle crossing, and do not propose to permit Decisioni 2026 to become a settled precedent without further objection. - The railroad companies have co-operated with the California High- way Commission in joint enterprises for the mutual protection of the railroads and the traveling public. Two notable instances have been the construction of seawalls and the installation of two subways between Ventura and Santa Barbara where the state and the Southern Pacific Company shared the expense, and in northern California the construction by the Southern Pacific Com- pany of an overhead crossing at Black Butte and a subway at Bailey Hill, both in Siskiyou County, in consideration of the state constructing overhead bridges over the Southern Pacific Company tracks at Dulis- muir, Siskiyou County, and Salt Creek, Shasta County. The Railroad Commission has ordered the elimination of two danger- ous grade crossings—One east of Altamont, Alameda County, and the other west of Altamont—at the joint expense of the Southern Pacific Company and the county of Alameda, and the construction of two overhead crossings at an estimated cost of about $75,000 at these two points. This important work will probably be commenced just as soon as the United States Railroad Administration acquiesces in the com- mencement of operations. - Another important subway under the tracks of the Southern Pacific Company near Red Bluff on the state highway has been ordered built by the Railroad Commission, one-half the cost chargeable to the South- ern Pacific Company, one-fourth to the county of Tehama, and one- fourth to the state of California. This needed improvement is also awaiting action by the United States Railroad Administration. Among some of the other structures on the state highway which have been installed to eliminate grade crossings are the following: Subway, Grant Station south of Healdsburg, Sonoma County, one-half cost borne by state of California, one-half by Northwestern Pacific Railroad Company. Overhead bridge crossing Southern Pacific Railroad near Ellwood, Santa Barbara County, built by the county. Subway, Coyote Wells, Imperial County, constructed at the joint expense of the state of California, and the San Diego and Arizona Railroad Company. Overhead bridge, Riverbank, Stanislaus County, one-half cost chargeable to Atchison, Topeka and Santa Fe Railroad Company, one-fourth to county of Stanislaus, one-fourth to state of California. -. Subway, Davis, Yolo County, one-half cost borne by state of California, one- half by Southern Pacific Company. Subway, Las Flores, north of Oceanside, San Diego County, one-half cost borne by state of California, one-half by Atchison, Topeka and Santa Fe Railroad Company. Pit River bridge, Shasta County, crossing Sacramento Valley and Eastern Railroad, built by state of California, part of expense being paid by county. Crossing of railroad incidental to crossing of river. Eel River bridge, Scotia, Humboldt County, crossing Northwestern Pacific Railroad, built by state of California, part of expense being paid by county. IRailroad crossing incidental to river crossing. - Subway, near Niles, Alameda County, under Southern Pacific Railroad, built by county of Alanneda. Plate XXVII. State Highway, Ventura County, Showing Undercrossing of Southern Pacific Railroad—Old Road on Left. Plate XXVIII. State Highway, Sonoma County, Showing Undercrossing of Northwestern Pacific Railroad. FIRST BIENNIAL REPORT. 37 ACCIDENTS ON STATE HIGHWAYS. It has been the endeavor of the California Highway Commission to so plan the state highways and so conduct construction work that acci- dents to the traveling public may be reduced to a minimum. It has been a noteworthy fact that in the entire history of this com- mission’s activities that only in one instance has the commission been made a party to a suit for damages for personal injury, and in only two or three instances have the state highway contractors been defend- ants in similar cases. The contracts between the state and its contractors are very rigid ill their requirements that the contractors shall provide adequate warning signs, barriers and lights, and the burden of properly safeguarding the traveling public is imposed upon the contractors in such forceful terms that the contractors have rarely failed to faithfully perform their duties in this respect. - The only personal injury case in which the commission was joined with one of its contractors as a defendant was recently decided in favor of the commission and the contractor by the Third Appellate District Court, Buckingham vs. Commary-Peterson Company, Vol. 27, California Appellate Decisions, page 844. This case is of interest for the principles which have been recognized thereby. } The plaintiff in this case was injured by the automobile in which me was riding in the early hours of the morning being driven into a culvert excavation which had been left in a section of state highway in course of construction. . Plaintiff resided near the work and had in fact for a time previous to the accident operated a pumping plant on the very road being built. . He admitted knowledge of the several barriers and signs directing traffic off this particular road, which he had to pass before he reached the culvert in question; and that the machine had followed a very rough and meandering course over torn-up roadway before it reached the portion of the highway in which the culvert was encountered. Plaintiff urged that notwithstanding these facts that the contractor and commission should have erected formidable barriers and maintained lights at the particular excavation itself. Plaintiff admitted that his machine was running at a rate of twenty- five or thirty miles an hour at the time it struck the excavation, but that he had heard rumors that the stretch of highway at the culvert hole was ready for traffic. Justice IIart, of the Appellate Court, held that there could be no recovery against either the contractor or the commission because plain- tiff had been guilty of contributory negligence. 38 CALIFORNIA HIGHWAY COMMISSION. Moreover, the commission could not be held liable for any damage to third parties which might follow from acts of negligence by a state highway contractor, committed in the performance of his contract, the contractor being an independent contractor and alone responsible. The court further held that as plaintiff knew the general condition of the highway it was unnecessary to maintain barriers and lights at the culvert hole, and moreover, that any person who uses and is injured on a defective highway, knowing or having reason to know that it was then in process of construction and for that reason is not open to general use by the public, is himself guilty of negligence unless he has used such highway because it was necessary to do so, and even in such case, he must exercise great care. • The commission believes that the reasonableness of the opinion that the commission should not be responsible for the omissions and commis- sions of independent state highway contractors is apparent. - At times scores of contracts are in progress in widely-separated por- tions of the state and if the commission was liable in case of every dereliction of the state’s contractors, the burden of responsibility would be intolerable. SPECIAL FREIGHT RATES. From the beginning of its active work of construction until August, 1918, the commission was favored by special freight rates made by nearly all of the railroads of the state. As a rule the commission paid . but one-half of the class rates and special commodity rates were allowed which were often considerably less than one-half of the traffic rates on such items as cement, rock, sand, gravel, oil and asphaltum. No accurate summing up of the savings due to these reduced freight rates has been made but several hundred thousand dollars were doubt- less conserved thereby for other uses. - On August 5, 1918, these special rates were abolished by order of the United States Railroad Administration and full tariff is now paid on all shipments. - The purchasing agent in his statement in Appendix “G” estimates that the total average increase in rates on all shipments will equai perhaps 250 per cent. PORTLAND CEMENT AND CONCRETE AGGREGATE PURCHASES. 3. During the period from the beginning of the work to June, 1918, the commission bought for its state highway construction a total of 1,780,000 barrels of cement. Under an unwritten agreement, the companies agreed with the com- mission that during the life of the work the price should not exceed $1.40 per barrel at the mills. This special price, far below the general FIRST BIENNIAL REPORT. 39 market price, was made to encourage the use of cement in highway construction. . After the first bond issue of $18,000,000 was exhausted, the companies felt that their obligation should end and thereafter the price increased steadily until the government fixed the price for cement bought by it during the war. From that time the commission paid the government price, which at the end of 1918 is $1.95 per barrel at the mills. In Appendix ‘‘N’’ will be found a full statement of the commission’s transactions with the cement companies for the period 1912 to 1918. The average price per barrel during this entire period is shown to be $1.345 per barrel at the mill. - * In 1912 the commission made two large contracts for the supply of concrete aggregates for use in the central and northern parts of the state where such materials are not so well distributed as in the south. The largest of these contracts was with the Natomas Consolidated of California for 500,000 tons at the rate of 45 cents per ton; the other with the Grant Gravel Company and Russian River Gravel Company for 175,000 tons at 27% cents per ton. The Natomas supply came from Fair Oaks, in Sacramento County, and from Oroville, in Butte County, The Grant Gravel Company is located in the Livermore Valley in Alameda County, and the Russian River Gravel Company at Healdsburg, in Sonoma County. All of the material contracted for and more was used in the work, and because of the reduced freight rates established by the railroads, the commission was enabled to ship the stone and sand to unusual distances. Some of the Natomas product was carried as far as Malaga in Fresno County, a distance of 192 miles. - After the expiration of these contracts for aggregates the prices advanced slowly until in 1918 both companies charged 60 cents per ton. The purchases from these two companies were but a fraction of all the requirements for these materials, but the contracts tended to fix a low price, which had its influence on other producers of concrete aggregates throughout the state. TREE PLANTING AND CAMP SITES. The commission believes that much more should be done to beautiſy the roadsides than has been attempted heretofore. - In many instances county officers or improvement clubs have planted trees along the state highways and the commission has co-operated with them in caring for the trees. - In Kern County on the long tangent" south of Bakersfield trees were planted by the county several years ago and the commission has been . . "It is believed that this is the longest stretch of road without a curve or angle in the state. , From the foot of the grade near the General Petroleum Company’s oil ºne plant the road extends northerly in a perfectly straight line for seventeen IYll IGS. * 40 CALIFORNIA HIGHWAY COMMISSION. looking after them. About ten miles of water pipe was purchased from the contractor who built the highway to supply the trees with water. The road is in the desert, and when grown, the trees will make a magnificent avenue of what is now a long, straight, tedious, desert road over which everybody now drives at top speed to get over it as quickly as possible. - Much remains to be done, however, and the commission hopes in the immediate future to set out many trees, particularly in the valleys. Already it is arranging with State Forester Homans for the installa- tion of a tree nursery where young trees may be planted and cared for until they are ready for setting along the roadsides. Mr. Homans’ recent recommendation to the legislature for such a nursery is heartily endorsed by the commission. Many of the roads now under the care of the commission are in the mountains and lead to ideal places for camping. In many places the roads cross streams excellent for fishing. - It is the opinion of the commission that when rights of way are being secured for highway purposes it would be often an easy matter, at small cost, to secure additional land for camp sites in such localities, not necessarily large areas but sufficient in size to accommodate several camping parties at one time, and the engineers of the commission have been instructed to keep their eyes open for such opportunities. CONCLUSION. To the California Highway Commission was entrusted the construc- tion of the state highway system. The accomplishments which have attended its efforts are herein reviewed, and the obstacles which it has encountered in its activities explained. The framers of the original “State Highway Act” conceded that $18,000,000 would not finance the system therein prescribed, but not- withstanding the admittedly impossible task, the commission endeavored by the employment of every honorable expedient to obtain the greatest possible return in roads for the money thereby provided. The people by an overwhelming majority at the general election of 1916 evidenced their confidence in the good faith of the California. " Highway Commission by ratifying a second state highway bond issue of $15,000,000. But the untoward conditions accompanying the world war soon set at naught the expectation of completing the state highway system with the proceeds of the second bond issue, and the commission for a second time, confronting an impossible task in so far as finishing the work is FIRST BIENNIAL REPORT. 41 concerned, is again forced to the only alternative, namely, to secure the greatest value receivable with the funds at its command. The present state highways are being subjected to constant abuse by too heavily loaded trucks and other agencies. The statute books of California already contain sufficient legislation to regulate and penalize these violations, but the delinquency lies in the enforcement of these laws. The commission is of the opinion that the most effective policing of these evils will result from the establishment of a state motor police limited both in numbers and authority, under the jurisdiction of the Motor Vehicle Department, who could apprehend both motor vehicle offenders and persons injuring the improved highways of the state. The data embodied herein may suggest still further legislation and any co-operation by the legislature of 1919 tending to the betterment of state highway work will be appreciated by the commission. Respectfully submitted. NEWELL D. DARLINGTON. CHAs. A. WHITMORE, EMMETT PHILLIPS. Sacramento, December 31, 1918. 42 CALIFORNIA HIGHWAY COMMISSION. APPENDIX A. . THE COMMISSION'S ROLL OF HONOR. . . By W. R. ELLs, secretary. When this country declared war against Germany in April, 1917, there were on the staff pay roll of the California Highway Commission 279 men and 21 women. How badly this organization was disrupted may well be imagined when it is understood that by the close of the war. 188 of these original employees, and of those hired to fill vacancies, had joined the army. In one division where the initial pay roll numbered 33 names, a total of 40 men enlisted or were drafted. The losses among the day labor forces were likewise heavy, particu- larly in superintendents, foremen, and skilled mechanics. At times it was very difficult to maintain even a minimum working organization. Of those whom the California Highway Commission released to the army and navy, three qualified as majors, sixteen as captains, fourteen as first lieutenants, twenty-one as second lieutenants, one as master engineer, twenty as sergeants, eight as corporals, and one as ensign. Eighty of the men joined engineer regiments, many of them being in combatant or ‘‘pioneer” companies. Twenty-six entered the air service, fifteen the artillery, eleven the infantry, six the navy, three the medical corps, and three the marines. - Eight golden stars on the service flag of the commission tell of the sacrifice made by some of these men. B. E. Patterson, a clerk, left early and went to the front. He fell as he was going “over the top.” L. B. White, an instrumentman with the commission, serving overseas with the quartermaster’s corps, also fell in action. H. G. Collins, a rodman, training at Camp Lewis; Leon L. Clarke, a resident engineer, commis- sioned first lieutenant Co. 3, E. O. T. S.; W. H. Hanvey, a clerk, a corporal in the air service; R. R. Hatchett, a resident engineer, serving as first lieutenant with the 403d Engineers; and L. E. Jenkins, a chain- man, and H. E. White, a rodman, both privates, all died of sickness while in training. The commission deeply feels the loss, but it glories in their heroic spirit. * - The commission is proud indeed of its men in war service, and will welcome their return. • FIRST BIENNIAL REPORT. 43 Following is the roll, complete in so far as the data have been avail- able to the department: CALI FORN | A HIGH WAY COMMISSION ROLL OF HONOR. Ennis, Chas. M.------ *Died in the Service of their country. Name Occupation Division Grade Branch Araujo, E. A.--------- Rodman -------------- III | Private-...------- Engineers. Andrews, W. J.------- Draftsman ------------ TV ------------------| 23d Engineers. Anderson, Clay ------ Resident engineer. ----- TV Major---------- 2d Engineers. Avery, H. T.---------- Draftsman ------------ V | Captain -------- 1st Engineer Replace- - ment Regiment. Armstrong, Floyd --- Asst. accountant ----- Hdqrs. Sergeant -------| Quartermasters Corps. Argall, Clarence B.---| Draftsman ----------- IV Private--------- Quartermasters Corps. Argall, Robert W.---- Rodman --------------- III 2d lieutenant---| Infantry. Albert, Leo A.-------- Stenographer --------- V Sergeant ------- Quartermasters Corps. Bass, Benonia -------- Chainman ------------ II Private--------- 319th Engineers. Barnum, Leo ---------| Rodman --------------- VI Private--------- -ms Baillie, D. G., Jr.----- Instrument man ------ II 115th Engineers. Baber, W. F.--------- Rodman --------------- V : Private--------- -*- Barber, J. F.---------- Transit man ---------- I 1st sergeant----| 23d Engineers. Belknap, F. R.--------| Instrument man ------ II Private--------- Co. B, 23d Engineers. Balsz, H. F.----------- Rodman --------------- III Private_--------| — Blackburn, T. R.------ Rodman -—----------- IV Private---------| — Bowen, N. J.---------- Draftsman ------------ TV 1st lieutenant -- 23d Engineers. Baker, R. L.---------- Truck driver ---------- VI Private--------- Infantry. Bartell, H. W.-------- 'Chief of party--------- III Private_--------| Co. 1, E. O. T. S. Bertaud, Lloyd ------ Axman ---------------- VT ----------------- Air Service. Baker, C. C.-------- -- Timekeeper ------------ I 1st sergeant----| Quartermasters Corps. Brown, H. T.---------| Resident engineer ----- IV Private--------- 43d Engineers. Brett, G.M.----------- Axman ---------------- I ---— *------------- -*m-mm-mm- Bigelow, H. T.-------- Rodman ------------- -*. II ------------------ Quartermasters corps. Beuthel, R. L.-------- Draftsman ------------ VI Private---------| Canadian 18th Training Battalion. Brannan, J. H.------- Instrument man ------ II ------------------ Quartermasters Corps. Beard, A. A.---------- Instrument man ------ IV 26 lieutenant___ — Brilley, Howard ------ Chief of party--------- III | 1st lieutenant -- Co. 3, E. O. T. S. Breuning, O. D.------- Instrument man ------ II Private--------- 37th Field Artillery. Compton, W. W.----- Instrument man ------ ; I | Corporal ------ _| 347th Field Artillery. Coburn, H. A.-------- Rodman --------------- i II : Private__------ Quartermasters Corps. Collins, H. G.”-------- Rodman --------------- II ------------------ Camp Lewis. Craddock, A. R.------ Chainman ------------- II ------------------ -** = Cole, A. T.------------| Asst. Superintendent -- VI | 1st lieutenant -- Air Service. Crowell, Geo. W.----- Chief of party-------- II 2d lieutenant---| 117th Engineers. Cummings, L. W.---- Resident engineer ----- VII Captain-------- 23d Engineers. Clay, J. H.----------- Foreman -------------- VII Corporal -------| 363d Infantry. Calavan, P. C.-------- Instrument man ------ II Private--------- Co. D, 41st Engineers. Chase, W. H.--------- Draftsman ------------ II Master engineer | 115th Engineers. Christy, W. J.--------| Draftsman ------------ IV Private--------- 20th Engineers. Coonrod, Almon -----| Instrument man ------ VI Private------- __| 20th Engineers. Crespo, S. ------------| Rodman --------------- II | Private--------- -*- Crouch, K. W.--------| Chainman ------------- VII ----------------- -*msºmºsºm. Clair, C. -------------| Foreman -------------- VII Private--------- 319th Engineers. Carbee, G. W.-------- Draftsman ------------ VII ------------------ Air Service. Comly, H. S.---------- Asst. division engineer II Private---------| Air Service. Clarke, Leon L.”----- Resident engineer ----- TV 1st lieutenant -- Co. 3, E. O. T. S. Cuff, R. E.------------ Laborer -------------- II -----------------| Bat. A, 143d Field Art. Darling, H. C.-------- Resident engineer -----j III | 1st lieutenant --| 20th Engineers. Daily, W. T.---------- Draftsman ------------ V : Private--------- 23d Engineers. Dunshee, B. K.--------| Draftsman ------------ i V Captain-------- 316th Engineers. Dron, John ----------- Rodman --------------- | VI 2d lieutenant---| Co. A, 37th Machine Gun | | Battalion. DeCeW, Llewellyn ----| Chainman ------------- IV 2d lieutenant---! — Davis, Harry B.------ Asst. resident engineer : VI ----------------- Air Service. Davidson, J. B.------- Draftsman ------------ . II Sergeant ------- 20th Engineers. Dingle, C. O.---------- Instrument man ------ II Private--------- -*-*m- Dyer, F. C.----------- Instrument man ------ } VI Sergeant ------ Dias, Joe A.----------- Asst. resident engineer V 1st lieutenant -- Duffy, W. T.---------- Rodman ---------------' II ------------------ --- Dunham, Ray -------- Rodman --------------- I Private--------- 13th Infantry. Draftsman ------------ IV tº 2d lieutenant--- 44 COMMISSION. CALIFORNIA HIGHWAY CAL | FORN IA HIGH WAY COMMISSION ROLL OF HONOR-Continued. Name Occupation | \ivisiot: Grade Branch Epperly, F. C.-------- Foreman -------------- | V | Private---------| Coast Artillery. Evans, L. C.---------- Rodman --------------- | II | 1st Sergeant----| Air Service. Eastman, Phillip ----- Rodman --------------- ; V ------------------ Marine Corps. Ellis, W. D.----------- Chief of party-------- IV | 1st lieutenant -- || 4th Engineers. East, E. E.----------- Asst. Division Engineer VII | Captain -------- 403d Engineers. Fenton, J. H.--------- Draftsman ------------ III | Ensign --------- Navy. Elood, T. B., Jr.----- Draftsman ------------ IV ------------------ Naval Air Service. Finch, R. D.---------- Rodman --------------- II ------------------ 63d Infantry. Granger, Earle G.---- Chainman ------------- VI 2d lieutenant--_ ] — Gronlund, Carl ------- Asst. resident engineer VI ------------------ *========sº Gretlein, E. A.--------| Patrolman ------------ t VI Sergeant -------| 23d Engineers. George, A. N.--------- Chief of party--------- VII | 1st lieutenant -- || Air Service. Guyot, Stanley ------ Chainman ------------- VII ------------------ Navy. Greene, J. D.---------- Superintendent -------- IV 2d lieutenant--- || 43d Engineers. Godfrey, D. E.-------- Draftsman ------------ VII | Captain ------- Co. 4, E. O. T. S. Gardner, E. D.-------- Instrument man ------ T ----------------- -— Gregg, John L.------- Foreman -------------- VII ------------------ — . * Greene, C. H.--------- Rodman --------------- II ------------------ Quartermasters Corps. Gifford, L. D.--------- Asst. resident engineer VII ------------------ Artillery. Gilroy, U. B.---------- Draftsman ------------ I ----------------- E". A. O. T. S. Greer, W. W.--------- Rodman --------------- III | Private--------- S. A. T. C. Hellesoe, GeO. F.----- Transit man ---------- I ------------------ -— Henry, B. H.--------- Chief of party--------- : II ------------------ Air Service. Hanvey, W. H.”------ Clerk ------------------ III | Corporal------- Air Service. Haskett, V. L.-------- Chainman ------------ I Corporal ------- 316th Engineers, 91st Div. Halbedl, R. J.-------- Draftsman ------------ I ------------------ *-*m-m-m-m-m-mm-mm. Halter, Regis ---------| Chainman ------------ II | Private--------- *-*m. Haviland, J. T.------- Superintendent -------- II | Sergeant ------- 23d Engineers. Hawthorne, T. J.----- Instrument man ------ : II | Sergeant ------- 316th Engineers. Hewitt, F. C.--------- Chief of party--------- III | Private--------- 23d Engineers. Hughes, R. L.-------- Draftsman ------------ III | Captain -------- 117th Engineers. Hampton, Geo. ------ Instrument man ------ III 2d lieutenant_-_ ! Engineers. Hancock, C. A.------- Foreman ------------- III | Private--------- -º-º-º-º-mºmºmºsºmsºmºmºm-ass Haines, H. S.---------| Draftsman ------------ TV Private_-------- House, Frank M.----- Draftsman ------------ i IV 1st lieutenant — Herbage, W. J.------- Draftsman ------------ V | Private------- __ Medical Corps. Hutchins, R. D.----- — Axman ---------------- VII Private_________ Air Service. Harper, F. G.--------- Superintendent -------- III Captain -------- Air Service. Hodges, J. M.--------- Chainman ------------- VII Lieutenant ----- Engineers. Hawkins, C. E.------- Laborer --------------- V | Private--------- Coast Artillery. Hamaker, C. M.------ Asst. resident engineer V ------------------ Navy. Hilby, Geo. R.-------- Draftsman ------------ Hdqrs. 2d lieutenant---| Air Service. Hodges, J. B.--------- Instrument man ------ IV 2d lieutenant___ ! —— Henry, Hugh -------- Foreman -------------- VII | Private--------- *====ses-sºms. Herring, Ed D.-------- Rodman -------------- W Truck driver ---| Quartermasters Corps, Henry, A. R.--------- Patrolman ------------ VI Corporal ------- 23d Engineers. Hatchett, R. R.”------ Resident engineer ----- III | 1st lieutenant -- 403d Engineers. Haverstick, R. M.----- Chief of party--------- VII ------------------ Artillery. - Holt, Frank ---------- Chainman ------------- I ------------------ *-ºs-ºs-m-m- - Houston, Harold ----| Foreman -------------- II ----------------- Co. B, 12th Infantry. Irish, A. C.----------- Rodman --------------- III ------------------ Air Service. Irish, W. H.---------- Chainman ------------ III ----------------- Air Service. Judkins, W. L.-------, Asst. resident engineer V : Private--------- 23d Engineers. Johnson, W. H.------ Chief of party--------- II | 1st lieutenant -- Co. 1, E. O. T. S. Jenkins, L. E.”-------| Chainman ------------- VII Private--------- *m-m-m-m-m-m-m-ems Kohner. O. ---------- Instrument man ------ II ------------------ -*-ºsmºsºme ſeys, Wm. J.--------- Draftsman ------------ IV Captain -------- Quartermasters Corps. Rh1app, L. J.---------. Truck driver ---------- III Private--------- *========== . Kinyon, Carl --------- Rodman --------------- II Private--------- 72d Infantry. Lewis, W. D.---------- Instrument man ------ II 2d lieutenant--- — L Owden, P. R.--------| Rodman ------------- - II : Private--------- 23d Engineers. Tuttrell, J. C.-------- Rodman --------------- V 2d lieutenant---| Air Service. Layman, H. I.------- ASSt. resident engineer V | Private-------- 23d Engineers. Izarkin, M. F.--------- Rodman --------------- III | Private--------- Marine Corps. Lanzendorf, O. W.--- Resident engineer ----- IV 26 licutenant--s 43d IEngineers. Tangtre, T. F.-------- Clerk ------------------ VII Captain -------- Quartermasters. Corps. Ilal'Orge, E. C.------- Chainman ------------- VII | Private_________ Modical Corps. …” Massa, T'rank -------- Foreman -------------- II Sergeant ------ 20th Engineers, *Died in the service of their country, FIRST BIENNIAL REPORT. 45 CAL FORN IA HIGH WAY COM M ISSION ROLL OF HONOR-Continued. , Name Occupation Division Grade I}ranch • *-* ~~~~~ * | - McCush, J. E.--------. Rodman --------------- - I Private--------- 319th EngineerS. Millard, B. T.--------- Asst. resident engineer III | Private--------- Co. 3, E. O. T. S. Miller, C. H.---------- Mechanic -------------- III | Mechanic *----- Air Service. McEwen, A. R.-------- Instrument man ------ ! III | Private--------- Air Service. McKeever, Geo. V.---- ‘Rodman --------------- II i Private--------- Frngineers. McNeeley, Geo. E.----| Draftsman ------------ III | Private--------- 23d Engineers. McAndrew, S. --------| Rodman --------------- W Private--------- 144th Field Artillery. Mitchell, D. H.-------- Rodman --------------- V | Private--------- Air Service. Mack, Geo. ----------- Rodman -—------------ VI Private_________ 18th Railroad Engineers. More, J. C.----------- Resident engineer ----- VII | Captain -------- Engineers. - Marshall, L. G.-------| Asst. resident engineer V Sergeant ------- 20th Engineers. Mason, W. A.--------- Resident engineer ------ III Major---------- 1I'7th Engineers. McLennan, G. -------- Rodman --------------- º II | Private--------- 20th Engineers. McMains, F. L.------- Rodman --------------- i IV ------------------ Navy. Mahon, John --------- Asst. resident engineer VI Private_-------- -º-º-º-º-º-º-º-º-º-º-º-º-º: McMillan, F. C.------- Draftsman ------------ | VII Captain -------- Co. I, E. O. T. S. Merritt, F. C.--------- Chief of party--------- V Private_________ 1st Engineers Replace- - ment Regiment. Malm, Geo. --------- —l Rodman --------------- VI 2d lieutenant---! — Nelson, LeRoy -------| Draftsman ------------ III | Private--------- Ambulance Service. Nielsen, Fred --------- Draftsman ------------ III | Sergeant ------- 316th Ammunition Train. O’Connell, M. J.------ Rodman --------------- II ------------------ sº-º-º-º-º-º-º-º: O'Shaughnessy, T. ---| Timekeeper ----------- } II | Private---------| Air Service. Odett, Joe ------------ Rodman --------------- | II ------------------ 49th Co., 13th Bat., - ~. 166th Depot Brigade. Parker, R. N.--------- ASSt. resident engineer VII Mechanic ------- Air Service. Peery, W. ------------ Asst. Tesident engineer I Sergeant ------- 23d Engineers. Porter, C. O.--------- Rodman --------------- : II Sergeant Patton, R. D.--------- Chainman ------------- | V | Sergeant -------| Coast Artillery. Peck, R. S.------------ Foreman -------------- V Corporal ------- Infantry. Peters, A. A.----------| Asst. division engineer V Major ---------- 23d Engineers. Powell, Russel -------- Axman ---------------- ! VII | Private--------- pArtillery. Patterson, B. E.”----| Clerk ------------------ i II | Private_________ I16th Engineers. Price, W. J.---------- Rodman --------------- f I Private--------- 319th Engineers. Paul, E. S.----------- Clerk ------------------ VII Corporal ------- 50th Engineers. Patterson, H. C.----- Truck driver ---------- VI | Private---------| 91st Infantry. Pierce, R. E.---------- Office engineer -------- III || 1st lieutenant --| Co. 3, E. O. T. S. Parks, R. N.---------- Asst. resident engineer VII | Private_-______ Navy. Potter, C. A.---------. Instrument man ------ I | Private--------- 472d Engineers. Reupke, H. T.-------- Rodman -------------- VI Corporal Roberts, E. W.------- Draftsman ------------ III | 2d lieutenant--- Rampone, L. F.------- Rodman --------------- V : Private_________ àir Service. Rosenberg, C. M.----- Rodman --------------- VI Private________ 117th Engineers. Rice, W. L.----------- Foreman -------------- VII | Private_________ *mº-º-º-º Reilly, W. H.--------- Truck driver ---------- VII | Truck master --! — Richards, C. O.------- Instrument man ------ VI | Private--------- 115th Engineers. Roth, L. E.----------- Truck driver ---------- II | Private--------- 319th Engineers. Sanson, T. A., Jr.---- Chainman ------------- VII | Private--------- 143d Field Artillery. Stover, Harvey ------ Draftsman ------------ III | Sergeant ------- Ordinance Depot. Scott, E. T.----------- Asst. Superintendent -- VII 2d lieutenant--- 23d Engineers. Strickland, C. C.----- Rodman --------------- VII | Private_________ Artillery. Saul, C. M.----------- Draftsman ------------ Hdqrs. 2d lieutenant---| Canadian Engineers. Sapp, D. N.----------- Instrument man ----- I ------------------ *=s*-*- Simmins, H. C.------- AsSt. resident engineer TV Private--------- 12th Infantry. Seymour, L. W.------- Laborer --------------- III | Sergeant ------- Artillery. Scott, Harold -------- Chainman ------------- VII Private--------- - -** Schumacher, E. M.----| Rodman --------------- I Private---------| Marine Corps. Stuckey, A. ---------- Truck driver ---------- VII | Private_________ smsm-mºmºsºmsºmº-º-º-º: Seitz, E. L.------------ Instrument man ------ II Wagoner ------- Co. A, 316th Ammuni- tion Train. Tremper, R. A.-------- Instrument man ------ II | Private---------| 23d Engineers. Thomas, F. M.-------- Axman ---------------- II ------------------ ---> Tandy, Wm. B.------- Chainman ------------- III | Seaman -------- Navy. Taylor, D. B.--------- Asst. resident engineer IV 2d lieutenant---| – Turner, M. M.-------- Instrument man ------ IV 2d lieutenant___| Air Service. Thompson, C. H.----- Chainman ------------- V | Private--------- Medical Corps. Taylor, W. B.------- - Asst. resident engineer V | Private--------- smºmº--º-º-º: Taylor, L. H.---------| Superintendent --_____ TT | Captain -------- 42d Fngineers. Superintendent *Died in the service of their country. 46 CALIFORNIA EIIGHWAY COMMISSION. CAL FORN IA HIGH WAY COMM ISSION RO LL OF HONOR-Concluded. i Name Occupation Division Grade - Branch Turner, R. L.--------- Rodman --------------- Private--------- 166th Depot Brigade. Thurston, C. M.------ Chainman ------------- VII i Private--------- *-*-* * Vogliotti, P. --------- Subfoſeman * * - - - -s sº amº--- V : Private--------- Air Service. Varain, C. A.------- --| Foreman -------------- III iPrivate---------| Ordnance Department. Walther, L. H.-------- Draftsman ------------ II Private--------- Naval Res. Air Service. White, L. B.”--------- Leveler --------------- I --------.* * * * * * * * * * * Quartermasters Corps, White, J. G.---------- Rodman ------------- -- I Air Service. Weeks, C. H.--------- Chainman ------------- III i Private---------. | 18th Engineers. Welch, E. A.--------- Instrument man ------ III Captain -------- 113th Engineers. Wallace, J. G.--------- Clerk ------------------ V | Captain --------| Quartermasters Corps, Wason, T. F.--------- Rodman ------------- -- V 2d lieutenant---| Engineers. - White, J. J.----------- Resident engineer ----- VI Private--------- 316th Engineers. Wheeler, F. S.--------. Instrument man ------ VI 2d lieutenant---| 115th Engineers. Wyatt, Victor -------- Steam roller engineer—- III 1st Sergeant----| 117th Engineers. White, F. D.---------- Asst. resident engineer I Private--------- 319th Engineers. Wiley, Arthur R.------ Rodman --------------- V ------------------ -*-*. Weeks, G. W.--------- Rodman --------------- I Private--------- 319th Engineers. Wanzer, J. O.--------- Chief of party--------- III | 1st lieutenant -- 47th Engineers. Wallace, A. ---------- Instrument man ------ III Private--------- Wood, GeO. L.-------- Truck driver ---------- VI Private-------- O. A. C. Training Det. Wagner, A. J.-------- ASSt. engineer --------| Hāqrs. Captain-------- Co. 3, E. O. T. S. Wegner, W. W., Jr.--| Rodman --------------- II ------------------ -*-* Woodin, C. F.-------- Draftsman ------------ II | Private---------| Co. A, 1st Replacement Regiment. White, H. E.”--------- Rodman --------------- IV Private--------- 23d Engineers. Zeigler, R. ------------ Truck driver -—------- VI | Private_-------- -*-* *Died in the service of their country. Plate XXIX. State Highway, Butte County, Under Construction. Plate XXX. State Highway, San Bernardino County, Applying Asphaltic Carpet. FIRST BIENNIAL REPORT. 47 rºy APPENDIX B. REPORT of HIGHWAY ENGINEER TO CALIFORNIA HIGHWAY j & COMMISSION. * # December 15, 1918. 'California Highway Commission, * Sacramento, California. 2 ; : GENTLEMEN: The active construction work of the commission began in the spring of the year 1912 so that at this date seven years have elapsed during which the state highways have been building. The work has gone haltingly at times because of the lack of funds, and other obstacles, but on the whole the years have been active and much has been done. * In the biennial report now in preparation will be printed tables in considerable detail indicating the accomplishments of the commission, and in the appendices special articles will be included showing how the work is conducted. This report, therefore, will be limited mostly to the discussion of types of work and general features. Widths of Right of Way. Nearly all of the state highways have rights of way at least 60 feet in width although there are a few miles where 40- and 50-foot widths were all that could be secured without an unwarranted delay which would ensue were litigation resorted to. The 60-foot width appears to be ample under the present conditions. Unlike some of the Eastern states, California has generally required the electric railways to secure private rights of way and they do not have to be provided for within the highway location, but telephone lines are frequent, and to some extent, power lines. The high voltage lines along some of the roads are more or less of a menace to the public but, especially in the more thickly settled parts of the state, it is difficult to see how the cities can be lighted and the power used for manufacturing without permitting the electric companies to use the highways for their poles and lines. The commission has always tried to adjust the grades of its roads so as to avoid unsightly borrow pits but sometimes the borrow pits are unavoidable in the valleys where the country is flat and the roads must be turnpiked to keep them above the general level in wet weather. In such cases it is usual to secure more than 60 feet of right of way so that sufficient earth may be available to throw up the grade without making too deep pits alongside. 48 CALIFORNIA HIGHWAY COMMISSION. *. Cross Sections. The cut on page 49 shows the typical sections used in the work of the commission, the sections being self-explanatory. On most of the paved work the concrete has been laid to a width of 15 feet with shoulders on each side not less than 3 feet in width, but in certain localities where the traffic is greater, notably on the road down the Peninsula south of San Francisco in San Mateo and Santa Clara counties, the pavement has been laid to a width of 24 feet at the north- erly end and 20 feet at the southerly end, a few miles south of San Jose. In the open country the 15-foot pavement seems to be adequate for the traffic but in many places, as the roads approach the cities, it has already been necessary to construct the shoulders of broken stone or concrete to provide for the constantly increasing traffic. Mountain laterals which have not been paved have been graded to various widths, depending upon the importance of the roads, but as a rule a minimum width of 16 feet has been required. - This width is none too great for any road in the mountains but the Commission has been compelled, because of the great cost of grading in Some localities, to construct the roadway at a lesser width than it would like. - On sharp curves in the mountains the road has always been graded wider for the sake of safety and in such places as the road could be Widened without greatly increased cost, the widening has been made notwithstanding the general width of the grading adopted. Superelevation. There is much demand by motorists for the superelevation of the roads on curves, or in other words, the construction of one side of the road at a higher elevation than the other so that vehicles may go around curves with greater speed and less danger of overturning. There are at least two phases of this question worth discussing. In the valleys and on moderate grades the commission has done but little of this kind of work. In no case outside of the towns and villages has any curve been constructed around which it is not safe to drive at the rate of 30 miles per hour, the maximum speed which the vehicle law of the state permits under any circumstances. Fifteen miles per hour is as fast as a machine ever should be operated under any conditions where the view of the traffic is obstructed. It is notorious, however, that on the smooth surfaced roads con- structed by the commission the vehicles are often operated at a much greater rate of speed than the law sanctions. Whether or not these excessive speeds can be controlled is doubtful but up to the present time comparatively little effort has been made by the local authorities to keep the speed down to the rate permitted by the law, especially in sparsely-settled localities. 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Z ºwo/goes ºyed：27/y • • • • • • • • 3/2/20/oo oz//o4/dsp.ſ/2 3，7577ā3：（$№ț¢&#№ģ • -º--º---， &- • •©7."， ºzavodoo 24/º/ºsſº ſo ſºygsvø24s,ſ/- -Çës“ V B d \L S N O || LO E S T W O | d J）.L. 50 CALIFORNIA HIGHWAY COMMISSION. Laz ---- — Z2°0′→ — |-- -*- —aloa- – *-* - ... - - 2.92* * 2ézz?: &se on 7379erzºs & Carves over 300' rººzs *~ - . . Cºzzº& Zºo Aze T.: /2-O "→ → /2462 “ –––. z/sca/ ºv/?ere e? 20:-- — — Z54 O'Azu'ezzazz - | /7ecess2/y £iº #Tº ſo" J/oze#". oer jº Azyzz?cz, Zºz/24- #s pºstºniº 7?o/77 Pv2s/?. 7TYA-XC4/-.5A, CZZO/V-AZZZ &se on 7377e.7/s & Cz-ves over 500 zaa’as | |-- — /2-6 – gTz. — /2-0" — . º /5 " |A-22 ve/226>/2,f —- |Zºº .5/22e 2s 22/r 7:24%/e ====ºzº; 7TV2/CAZ-5A;&7/O/V 2/se on Corves zzzzzer – 300 zºo/Zs corzczve zºo czzº | &//r4, 27.2/ He—— Z0-6" º | /?-62 -— == cz/rves A312 — £5* o'Arezzez; zo: ſº S/22e Ž | |- | -- 21 //227 .322 rº sarº. ſº 3. C. O/~ 14%a/7 - -- f Zºzzº& Po 7TYP/CAA SAFC7/O/V $3. (/se or Corvas ºzaer 300 zºos cozczve 2 /27/ TABLE OF CROSS SLOPES - STATE of cALIFoRNA DEPARTMENT OF ENGINEERİNG *...*** *. 2 CALFORNA HIGHWAY COMMISSION 75' 7"o /O O’ %. . . TYPICAL ROAD SECTIONS /oo’ 72 /50 " 3% . /5 O' zºo 225 %. . . TO ACCOMPANY GENERAL 22.5 zºo 300' %" . . INSTRUCTIONs “ 355 - scale # = - July 25, 1917 sº. FIRST BIENNIAL REPORT. 51 It is probable that at the present time at least 95 per cent of the traffic over the rural highways in California is motor-driven. A superelevated road is not needed by or adapted to horse-driven traffic but since there is so little of that sort of traffic at the present time it may be almost omitted from this consideration. - It is possible that in the future, recognizing the practical impossibility of rigidly enforcing the speed laws, the commission will be forced to superelevate the roads on all curves of less than, say, 250 feet radius. The other phase of the question that should be discussed is the treat- ment of the roads in the mountains, both on curves and on tangents. There it is not so much a question of speed as of safe operation when the roads are slippery. The commission has many miles of road, some paved and some unpaved, where side-slipping off the road means certain death to the occupants of the vehicle. The wooden guardrails frequently erected at especially dangerous points are safeguards more imaginary than real in value. They warn the driver to keep away from the edge of the bank but if the machine skids against the guardrail, while the fence may retard the motion and often stop the machine, it should not be relied upon too much. - In a tentative way to make these roads safer, the following instruc- tions were issued in 1917 to the division engineers of the commission. The typical sections referred to are shown on the cut on page 50: Concrete Pavements on Mountain Roads. Attached hereto is a blue print showing typical sections for concrete pave- ments on mountain roads. These sections are to be considered as more or less tentative, but they will govern until further orders. While the sections show only fifteen-foot pavements, with suitable modification, they will be used for greater or lesser widths when the approved plans so indicate. On tangents and curves with radii over 300 feet, the pavement will slope downward toward the cut bank at the rate of one-eighth an incli per foot, regardless of the direction of the curve. Where a tangent has fill slopes on both sides, the slope will be downward toward the more suitable side for drainage. Where a curve has fill slopes on both sides, the pavement inclination will be downward toward the concave side. The pavement on curves with radii less than 300 feet will slope downward toward the concave side, the rates of slope being as follows: (a) For radii of 75 feet or less, # inch per foot; (b) For radii of 75 feet to 100 feet, 3 inch per foot; (c) For radii of 100 feet to 150 feet, $ inch per foot; (d) For radii of 150 feet to 225 feet, # inch per foot; (6) For radii of 225 feet to 300 feet, $ inch per foot. A concrete curb, six inches wide on top and with an exposed face ten inches in height, will be placed at the outer edge on curves where the pavement inclines downward toward the fill slope at a rate in excess of one-fourth inch to the foot. Curbs will not be placed on tangents nor on curves unless the slope of the pave- ment is greater than one-fourth inch to the foot except where it is necessary to protect a fill slope from wash and then only upon specific authority from the Highway Engineer. Wherever curbs are installed suitable openings for drainage 52 CALIFORNIA HIGHWAY COMMISSION. must be provided, together with proper protective devices against discharge through such openings. - Pavements having a normal width of less than 18 feet will be widened two feet on the concave side on curves of 150 feet radius or less, the length of such crescent shaped widenings being limited by the natural “track” of the traffic. Two feet of extra width will be placed also at other points where curbs are installed on pavements less than 18 feet wide. The transition between curved sections and tangent sections will ordinarily be made in a length of 30 feet, one-half on the curve and one-half on the tangent, but the transition between reverse curves having pavement slopes of more than one-fourth inch per foot may be made longer up to a maximum of 50 feet. Tangents less than 100 feet long connecting curves on which the slope is toward the fill will be considered exceptional cases and the pavement will slope toward the fill at the rate of one-eighth inch per foot. - These instructions, already spoken of as tentative, are probably too conservative and it is likely that they will be succeeded by others pro- viding for greater degree of superelevation. - It has been found that roads built in accordance with these instruc- tions offer no difficulty in driving and the driver has a feeling of safety which is absent on the center crowned road. Types of Work. No other state highway department in the United States has dealt with a greater variety of road than has the California Highway Com- mission. Included in the list are the mountain roads in the Sierra, built under special legislative appropriations; the carefully-engineered graded roads in the mountainous parts of the state which the commis- sion has built under the state highways acts; the water-bound macadam type with surface application of asphaltic oil; the concrete base type with and without the carpet covering of bitumen and stone screenings; the broken stone base type with Topeka mixture tops; the concrete base with sheet asphalt and Topeka tops; and the so-called bituminous macadam roads, some built by the commission but mostly by the counties and afterwards taken over by the state. The underlying philosophy of the work has been to avoid waste. The commission has in all cases attempted to build the road to suit what it thought was the need of the traffic, making reasonable allowance for the increased traffic which an improved road always attracts to itself. Graded Roads. In the mountains the grading is always expensive and the traffic relatively less than in the valleys. For these reasons, save in certain cases, the mountain roads built by the commission have not been paved. This is not universally true since in the case of the Ridge Route in Los Angeles County, on the main road from Bakersfield to Los Angeles, the traffic is so great that nothing but a well paved road will serve. It is also expected that some other portions of the main routes, notably in the Sacramento River Canyon and between Willits and FIRST BIENTNIAL REPORT. 53 Eureka, will require paving within a very few years to make them really serviceable. The graded roads have been planned carefully; all the culverts and drains needed have been installed, and in fact, in all particulars except the lack of paving they are as good as the rest. On no main route of travel is the grade in excess of 7 per cent, and on the laterals 8 per cent has been fixed as the maximum. - On curves the grades have been compensated, the roadway widened, and the radii limited to 50 feet although so short a radius is a rarity. In the later work the mountain grades have been “superelevated” always on the curves and sometimes on the tangents as well. Water-Bound Macadam With Surface Application of Asphaltic Oil. In an attempt to minimize the first cost of the work on two stretches of road, one in El Dorado County and one in Mendocino County aggre- gating about 10 miles in length, the commission in the early years tried the water-bound macadam road with surface application of asphaltic oil. The traffic on both roads is relatively light and the roads have lasted fairly well with moderate maintenance costs, but it is apparent that for general use with average traffic such roads would not be practicable in these days. i Bituminous or Oil Macadam (Penetration Method). In the early days of the work some 30 miles of bituminous macadam roads were built, chiefly to influence the cement companies to be reason- able in their bids on their products. The commission has also taken over from the counties about 166 miles of roadway so constructed. Where the traffic is not too heavy and the pavement is well built these roads have given good service and were it not for the fact that almost without exception after four or five years of use under modern traffic conditions such roads become wavy and develop corrugations like a Washboard, the commission would doubtless have built a greater mileage of this type since they are cheaper to construct than the concrete base roads. - The bituminous macadam roads taken over from the counties have all reached the period when the corrugations develop rapidly and the main- tenance of these roads is a difficult problem and the cost excessive. One of the much traveled roads in Los Angeles County, now maintained by the state, is said to have cost the county in excess of $800 per mile per year to maintain it. The state has surely spent as much as that per year since it assumed the burden. Perhaps the best example of this type of road which the commission 54 CALIFORNIA HIGHIWAY COMMISSION. can show is in Madera County between Califa and Madera, a stretch of nearly 10 miles. This road was completed in October, 1913; it has cost little for maintenance; and has few corrugations. Concrete Bases. The commission has more than 1,000 miles of concrete base road of which more than 600 miles have been covered with the thin bituminous tops or carpets. This type of pavement may be called the “standard’’ of the commis- sion and is worthy of a detailed description. The concrete base is generally 15 feet in width and of a minimum thickness of 4 inches. Where necessary, the roadway has been often further widened by 3-foot macadam or gravel shoulders on each side of the pavement, making the hard surfaced roadway 21 feet in width. The thin bituminous wearing surface is about one-half an inch in thickness and is composed of heavy asphaltic road oil and screenings. Except under very heavy traffic conditions, this surfacing has proved satisfactory in protecting the concrete pavement from wear. Grading. The specifications for excavations and embankments require the removal of all trees, stumps, roots, and vegetation within the roadbed and slopes as directed by the Engineer, the removal of all soft or unsuit- able material and, where required, the refilling with good earth or gravel. Embankments are made of suitable material carried up for the full width in layers not to exceed one foot in thickness and the teams are made to travel as evenly as possible over the whole surface of each layer, both going and coming. All hard lumps or clods are required to be broken before being placed on the embankments. After the excavations and embankments are made, the entire width of roadway is thoroughly watered and rolled with a roller weighing not less than 200 pounds per inch width of tire until the surface is smooth and unyielding. * Cement. All cement used is required to meet the specifications of the American Society for Testing Materials. It is purchased in large quantities and a tested stock is kept at the different mills to be drawn on as needed for the work. - Fine and Coarse Aggregates. The sand or fine aggregate used for the concrete construction is tested for its strength in compression and tension in a 1: 3 mortar and this strength reported in comparison with Standard Ottawa sand mortar made up of the same brand of cement at the same time. The sands FIRST BIENNIAL REPORT. 55 acceptable for the concrete highways are required to show a mortar strength at least 100 per cent of the strength shown by the Standard sand mortar. In the grading test the sands are required to have at least 50 per cent and not more than 85 per cent retained on a 30-mesh sieve. - The coarse aggregate used for the concrete pavement is sound gravel or broken stone clean and free from foreign matter and of uniform grading from 4 inch to 24 inches. The abrasion test is made on crushed rock samples and a coefficient of wear of 9 is the minimum that has been acceptable. On a few isolated sections of the system where local sup- plies of rock were the only possible sources at a cost within reason, rock having, a coefficient of wear of 7.5 to 8 has been used. These supplies of rock were not a mixture of hard and soft material but were of a uniform hardness and have given satisfactory pavements. The concrete is made up of measured quantities of cement, fine and coarse aggregate in a ratio of 1:2:4.” Prior to the letting of a contract the sand and rock proposed for use are tested for compressive strength in a 1:2:4 mix and at the end of 28 days a strength of at least 2,000 pounds per square inch is acceptable. Before the pavement or shoulder material is placed, the roadbed is graded to a true cross-section conforming to the proper grade called for in the plans and this thoroughly watered and rolled until the surface is Smooth and unyielding. When a uniform and unyielding surface can not be otherwise obtained, the surface is cultivated and again puddled with water and rolled until a true and firm foundation is secured. The subgrade has the same crown as that of the concrete pavement. The pavement is required to be of a minimum thickness of four inches. In some sections of California there is a heavy black clay soil known as adobe; it is generally the alluvial deposit of decomposed basic lava. This adobe soil has a very high shrinkage upon drying and where such a Subbase exists it will shrink away from the concrete pavement and would Support possibly only the center of the pavement. The 4-inch concrete is not thick enough to resist breaking in long longitudinal cracks under these conditions and it has generally been the practice in building over adobe regions to thicken the pavement or reinforce it to prevent longi- tudinal cracking. - Placing the Concrete. Planks 2" by 4” placed on edge and securely nailed to the inside of supporting stakes are used for headers on each edge of the pavement. These headers are of a good grade of timber and great care is taken where one header joins the next so that the upper surface is a true smooth line. The tamping templets ride on the headers and any *Prior to the year. 1917 the mixture used was somew') it leaner. It was called 1:23 :5 but had somewhat more cement than those proport; ): s indicate, 56 CALIFORNIA HIGHWAY COMMISSION. irregularities in the surface of the headers will produce a mound or hollow in the finished pavement that is not likely to be removed by the floats or other instruments used to finish the surface of the concrete. Prior to the placing of the concrete the subgrade is checked by means of a heavy wooden templet which rides the headers and has at 6-inch intervals spikes set true to the crown of the roadway and of such a length that any of the subgrade more than $–inch too high will be scratched. In this way the minimum thickness of 4 inches of pavement is practically assured, by the subsequent use of proper tamping tem- plets on the concrete. The concrete pavement is laid on the damp subgrade. It is tamped with heavy crown grade tampers, which tampers, when resting on the header boards, fit the crown of the finished road. After the concrete has been tamped to the designed shape the surface is finished by means of wooden floats. Any little imperfections in the surface can be remedied by the man handling the finishing float. The coficrete is mixed with just enough water to produce a jelly-like consistency. The desired amount of water produces a mixture that is plastic and will readily flush with light tamping, but which can be handled without causing a separation of the fine aggregate from the COa]’SČ. The concrete materials are required to be in the mixing machine for at least one minute and to receive at least ten complete revolutions after all of the ingredients are in the machine, and the maximum speed of the drum not to exceed sixteen revolutions per minute. After the concrete pavement is placed it is kept damp by sprinkling during the first twenty-four hours and then cured under water for ten days. The road is checked by low earthen dams into a series of shallow reservoirs from twelve to fifteen feet square. These reservoirs are kept filled with water for ten days. This method of curing has been very satisfactory, as it is sure, and also the curing can be so easily inspected. The pavement is protected from traffic for one month after laying. The Thin Bituminous Wearing Surface. The road oil used for this surfacing is of an asphaltic base and contains approximately 90 per cent of 80° penetration asphalt. In California the road oil companies classify this product as a ‘‘90-80’’ road oil. This method of classifying the oil does not, however, insure like physical properties for oils from different companies or from different oil fields. Two oils, both containing the same percentage of 80° penetration asphalt, may show very different physical properties. One may be so viscous it is a semisolid substance at ordinary tempera- tures, while another may be of such viscosity that it will be liquid, FIRST BIENNIAL REPORT. 57 One oil may be sticky or cementing, while the other may be lubricating in its action. In the building of the thin bituminous wearing surface for concrete pavements two physical properties of the road oil are of greatest importance. The oil must be of such a viscosity that when applied to the road it will readily combine with the screenings that are thrown upon its surface. A very viscous oil will form a hard surface and the screenings will not be absorbed and to a large extent be thrown off the road by the passing traffic. Only a small amount will settle or be forced into the oil. Such an oil will not build up a satisfactory protecting wearing coat. gº The road oil must also be cementing or adhesive so that it will stick tightly to the concrete surface and bind together all of the fragments of stone screenings. It should be an active cement, and if it is not sticky then the wearing surface will not be firm enough to resist the push and pull of the passing traffic. All road oils submitted for this type of surfacing are tested for viscosity and adhesiveness, and must show in these two physical tests that they fall within the limits specified. The oils are also tested for percentage of asphaltic volatility, flash and burning point, specific gravity, and solubility in the usual solvents. The oldest thin bituminous surfacing laid by the California Highway Commission has been under traffic for more than five years on the main San Joaquin Valley highway just north of Fresno. This surfacing has in this length of time required little attention, and today, while it shows its age, it still has a year or two more of useful life. The use of the heavy asphaltic road oil in this type of construction has produced a wearing surface in which the cementing material is very much “alive.” It readily mends if cut or broken. The thin bituminous wearing surface is about half an inch in thick- ness when completed. After it has been under traffic for a few months it is found to contain a fairly uniform mixture of mineral aggregate and bituminous binder consisting of about 8 per cent to 11 per cent of bitumen and the balance mineral aggregate of a fairly uniform grading running from dust to rock of one-half inch maximum diameter. This surface looks much like sheet asphalt, is firm under traffic and gives good traction. It shows little or no tendency to flow or creep and the surface remains true and free from rolling. The concrete base, how- ever, must be finished with a true, smooth surface to make a good riding highway, as this type of surfacing is not thick enough to smooth up to any considerable extent a concrete pavement whose surface is TIn €Verl, * 58 CALIFORNIA HIGHWAY COMMISSION. The procedure in laying this thin wearing surface is as follows: First, the surface of the concrete is cleaned of dirt, dust films and any thin coat of laitance. This is best accomplished by opening the bare concrete to traffic for a month or two. The ironshod traffic and the rapidly-moving rubber tires are of greatest help in breaking any weak layers of dirt or laitance and exposing the surface of the concrete proper. This “traffic cleaning” is followed by brushing with revolving street brooms and hand brooms. In some cases a flushing of the .sur- face with water is a help in washing off any thin coat of clay. It is of greatest importance that the asphaltic oil bind to the solid concrete and not to any overlying weak film of dirt. The care taken in getting a clean concrete is without doubt in a large measure responsible for the success of this surfacing because of the strength of the bond between the concrete and the bituminous wearing coat. After the concrete has been cleaned the asphaltic oil, at a temperature of from 250° to 500° Fahrenheit, is applied by a pressure distributor at the rate of one-fourth of a gallon per square yard. This oil surface is immediately covered by a layer of mineral aggregate, either crushed rock screening or fine gravel of a maximum diameter of one-half inch and a minimum diameter of about one-eighth inch. This material may contain some fines and dust, but should be a fairly clean material. The screenings are applied by shoveling from piles placed at frequent intervals alongside of the road. The shovelers can be taught to so throw the screenings that they will cover the road surface with a fairly uniform thickness. The road can now with advantage be given a light rolling, but this is not necessary. Any excess of screenings should be swept into piles alongside of the road, to be used on the second applica- tion of road oil. This is applied to the road at the same rate as before, one-fourth of a gallon per square yard, and is covered with screenings as before. The road is then thrown open to traffic and during the first few weeks may require further screenings to take up any excess of oil. The traffic is of great assistance in forcing the screenings into the oil and compacting and making a homogeneous bituminous carpet on the GOn Crete. Expansion Joints. As a rule the so-called expansion joints have been omitted except at the end of the day or half day run of the concrete. As all the concrete bases are intended to be covered with some sort of an asphaltic top, the inevitable lateral cracks, joints or no joints, cause little or no trouble and it is believed that a smoother riding road is secured without the joints. FIRST BIENNIAL REPORT. - 59 In cases, in the hot central valleys, there has been some trouble from “buckling” due probably to the absence of elastic joints frequently placed but this is considered a minor trouble. As the cracks develop they are cleaned out and filled with asphalt. Sheet Asphalt and Topeka Tops. The commission has 16.21 miles of state highway in San Mateo County consisting of a broken stone base with a one and one-half inch Topeka mixture top. In San Mateo, Santa Clara, and Orange counties there are 37.82 miles with concrete bases and either sheet asphalt or Topeka mixture tops. - The broken stone base was an old macadam road of the water-bound variety, worn thin from long use, and so much work had to be done on it and so much new material added it is probable that the road cost nearly, if not quite, as much as if a concrete base had been put in. Good work was secured but it is not expected that further work of the kind will be attempted. On State Highway Contract No. 1 a sheet asphalt surface 1 inch thick with a paint binder was laid on a cement concrete base 5 inches thick and 24 feet wide for a length of 5.4 miles. This road was com- pleted in 1913 and has remained in excellent condition with small repair COStS. This road takes all the heavy traffic from San Francisco down the Peninsula. The concrete bases with the one and one-half inch Topeka mixture tops have also been successful and it is probable that much more of this type of work will be done in the future. Thickness of Concrete Base. Most of the concrete road bases have been built from four to four and one-half inches in thickness." It has always been the plan ultimately to cover the concrete with bituminous material but for the two years past little of such sur- facing has been done. It was recognized early that the second bond issue would fall far short of completing the roads contemplated and the bituminous top was one item which could be omitted, temporarily at least. - • , - It must be admitted that a concrete base so thin as four inches would not be at all suitable in localities where the frost penetrates deeply into the ground and nowhere in California has concrete been laid under such conditions. *South of San Francisco on the road to San Jose there are about 23 miles where the concrete base is 5 inches thick. 60 CALIFORNIA HIGHWAY COMMISSION. It must also be admitted that experience has shown that over adobe Subgrade it is not wise to lay so thin a base unless it is reinforced with steel. Even with such reinforcement longitudinal cracks develop which widen year by year despite frequent filling with asphalt, and a weakened pavement results. The reinforcement, without the use of more steel than seems justifiable, will not prevent the longitudinal cracks but it appears to hold the concrete together and in some measure to lessen the progressive widening of the cracks. Increasing the thickness of the concrete per se does not remedy the longitudinal crack difficulty. The thin bases have given admirable service and have proved their economy under California conditions of climate and traffic whenever the underlying subgrade has been firm and hard and the concrete has remained in contact with the subgrade. It is true that in some localities the concrete has broken and disinte- grated under the traffic but such cases are so rare as to be almost negli- gible in considering the whole system. - Sometimes this has been the result, beyond doubt, of a thinner pave- ment than was specified due to the carelessness of the contractor and not noticed by the inspecting engineer. Sometimes the concrete mixture was defective due to the absence of sufficient cement or to insufficient mixing or to the use of dirty aggregates. These things happen in all construction work but in considering the whole system, such lapses are very exceptional. In the northern part of the Sacramento Valley a new difficulty pre- sents itself in the rapidly increasing use of the land for rice culture. This sort of farming requires extraordinary quantities of water. The natural drainage channels are blocked by rice checks and the water stands in the borrow pits along the road and the subgrade under the concrete pavement is saturated and remains so for long periods. In places, where the water is drained from the fields, it backs up so as to cover the pavement. - A subgrade so saturated will not sustain the four-inch base with the heavy traffic and the pavement cracks and disintegrates. Plate XXXIV, gives some idea of the water difficulty due to the rice culture. Recently much trouble has been experienced between Williams, in Colusa County, and Willows, in Glenn County. In November and December of this year the state highway has been damaged seriously by motor trucks hauling rice. The sacked rice, according to a report of the division engineer, - “* * * is brought from the fields with teams and stacked on the shoulders along the state highway. It is here picked up by 2% to 5-ton trucks, which never leave the pavement, and are thus enabled to carry excessive loads. In some cases the rice is loaded with a bucket elevator or stacker, which piles the rice high on the rear end, thus concentrating 90 per cent to 95 per cent of the load on the rear wheels. v- Plate XXXI. State Highway, Colusa County, Showing Rice Sacks Stacked on Shoulder. Plate XXXII. State Highway, Colusa County, Truck and Trailer Loaded With Rice. FIRST BIENNIAL REPORT. 61 All of the trucks carry loads in excess of their rated capacity, and it is 1)robable that in all such cases the loading on the rear wheels per inch of width of tire in contact with the pavement is in excess of the limit of 800 pounds fixed by the Motor Vehicle Act. Where a normal overload only is carried this excess is probably not very great. - In the instance above referred to, the trucks have been overloaded to such an extent that in some cases it is probable that the load was in excess of 1400 pounds per inch in width. * * * Over twenty bad holes were broken through the pavement by the trucks in the short period of three weeks, and the pavement crushed to the point of early failure in a number of other places.” The foregoing is an illustration of perhaps an extreme case of the selfish use of the highway but the overloading of trucks in general throughout the state is an evil which must be reckoned with. It would be folly to try to discourage the use of trucks and tractors, but they should conform to the legal requirements of the Vehicle Act which are reasonable and were enacted in 1917 at the suggestion of the Motor Truck Dealers’ Association. If such excessive loads are to be permitted the state must spend much money to strengthen the roads, but why should such selfishness be per- mitted? Why should not the reasonable provisions of the Vehicle Act be enforced? But regardless of the overladen trucks, it seems apparent that the concrete bases should in all cases have the bituminous tops applied as soon as it may be done. The original idea of the commission that bare eoncrete is not a fit material to receive the impact of heavily loaded vehicles still appears to be sound. Even the thin bituminous carpet is of great aid in dis- tributing the impact. Comparison of Costs of Work Before and During the War. In order to get an approximation of the advance in cost of the state highway work due to war conditions, a study has been made of the con- tracts let in the two periods, before and since the beginning of the war. It is fair to assume the period 1912 to 1916, inclusive, to be the prewar period. - - - To compare costs fairly it is of course necessary to use weighted averages.” The inquiry has been limited to the grading and to the concrete paving items of the contracts, these being by far the most important elements of the work and its cost. The quantities involved are as follows: diº) | 1917-18 Totals Grading, cubic yards 6,750,000 2,339,000 9,089,000 Concrete, cubic yards * 882,300 252,900 1,135,200 aThese averages are found by dividing the total costs for each period by the total quantities of the work performed. 62 - CALIFORNIA HIGHWAY COMMISSION. The following tables show by years the average price paid for grading and for concrete during the prewar period and during the war. Average Contract Prices, *1914-1916 (inclusive). ; Sand * | cement | Sº Cluding 8th SLOn 6 till 8 men Year (śīl) *u. flºº, aßa ś ºf In 8.IGIT per ton ©ilwere €l DD1, (per cu. yj.) (per ton) p (per cu. yol.) l 1912 $0 39 $5 82 & S $1 61 $ 1918 ------------------------ - 46 5 91 $0 56 $0 58 1 65 $2 56 1914 51 6 75 54 85 1 70 3 03 1915 45 6 26 58 76 1 74 2 84 1916 – 37 6 37 60. 76 1 80 2 90 Average" --------------- $0 49 $6 35 $0 56 | $0 78 $1 70 $2 92 ; - - - Average Contract Prices, 41917 and 1918. §: Sand §ºa cement ºf - including 8.In SUOIlò all 8Dºleſł Year tºº. ) all delivered gravel delivered º f * * * * materials (per ton) delivered (per bbl.) (i.e. ca. 3.) (per cu. yj.) (per ton) e - F * g. | • 1917 $0 73 5$S 03 $3 66 $0 86 $1 80 $4 17 1918 ------------------------- 78 510 51 1 05 1 28 220 5 53 Average” --------------- $0 74 $S 67 so 76 $o 96 $1 90 $4 51 } § i t 1Includes all classifications. g *This is the item upon which the contractors bid in most cases; the state supplies the materials. *In 1912 the contractors in all cases except one furnished the concrete aggregates. *Weighted average. *In 1917 and 1918 the paving concrete was enriched from 1:23:5 mixture to 1:2:4. In the prices stated this has been allowed for. From the foregoing tables it is seen that the average cost of the grad- ing has increased from 49 cents per cubic yard to 74 cents, or 51 per cent. The concrete in place including all materials has increased from $6.35 per cubic yard to $8.67, or 36.5 per cent. The last column in both tables is perhaps the most interesting. In most instances the commission delivers to the contractor at the freight siding nearest to his work all of the materials needed for the concrete. The contractor hauls these materials to the work and places them. The figures, therefore, reflect directly the increased cost of labor. The aver- age contract price has advanced from $2.92 per cubic yard to $4.51, or 54.5 per cent. - As in most statistics the tables lack one element which can not be well included. It is possible that during the prewar period the lengths of haul from the freight sidings may have been longer or shorter than in the other period. It is not thought, however, that this element would affect the averages to any considerable extent since the quantities involved are so great, and the commission’s work is so standardized as to length of section and other features. FIRST BIENNIAL REPORT. 63 The advanced cost in the concrete is in fact somewhat more than the tables indicate since in 1917 and 1918 the commission spent considerable sums in stockpiling cement and aggregates so that the contractors should suffer the minimum of delay due to irregular movements of freight trains. These extra, costs are not included in the computations upon which the tables are based. Effect of War on Organization. One has but to look at the commission’s Roll of Honor to appreciate the effect of the war on the organization. * No record has been kept of the unskilled laborers on the pay rolls who entered the service of the nation. There were doubtless hundreds of them, but in the following table are shown by vocation the numbers of engineers, construction men, and other skilled workers of the several classes who left the commission’s employ for army Service: Assistant division engineers - - 4 Assistant engineer (headquarters) ––––––––––––––––––––––––– 1. Office engineer -------------------------------------- ---- 1 Resident engineers –––––––––––––– -- __ 12 Assistant resident engineers––––––––––––––––––––––––––––––– 1S Chiefs of survey parties 9 Instrumentmen -- 29 Rodmen - - - *—————— — — — — — — — — — — — — — — 44 Chainmen - - - - 22 Axmen ––––––––– 6 Draftsmen –––––– - + 32 Superintendents —— * * * * 3 Assistant superintendents –––––––––––––––––––––––––––––––– 2 Foremen — - 12 Patrolmen * = a- - - - a mº -ms- ºr m= memº ºm m = a- * * * * * * - - - - - * * * *- *-* *-* * * *-* - *-* * * 2 Mechanics ---------------------------------------------- 2 Truck drivers ––––––––––––––––––– S Clerks and stenographers––––––––––––––––––––––––––––––––– S It has not been easy to keep the work going efficiently and according to the commission’s standards with so many new untrained employees as have been taken on to fill the places of those who entered the army. The re-employment of those who went to war will be greatly wel- comed. Conclusion. In 1912, at the beginning of its work the commission set up certain standards or principles to be followed in its state highway work. Briefly stated these were: 1. A readjustment of the road locations or rights of way so as to secure proper alignment and to obviate the necessity of traveling around section corners. 2. Rights of way of uniform width, preferably not less than 60 feet. 3. Maximum gradients in the mountainous country of 7 per cent and mini- mum radii on the center lines of such roads of 50 feet, with all curves opened out as much as possible by flattening slopes and removing brush and such trees as interfere with the view. A clear sight of at least 150 feet should be secured wherever it is practicable. 4. The construction of permanent culverts, gutters and ditches wherever they are needed to prevent water from standing on the roadsides and on grades to 64 CALIFORNIA HIGEIWAY COMMISSION. prevent gullying due to the water being carried too far in the gutter and thus accumulating in volume. - 5. The construction of bridges of a permanent character, preferably of rein- forced concrete, such bridges to be at least 21 feet wide in the clear and so designed that they will carry 16-ton traction engines with a reasonable factor of safety. 6. A minimum width of roadway of 16 feet, which may be traveled safely, such width to apply only to those places in the mountains where there is so much rock as to make a greater width prohibitive on account of its cost. An average width throughout the remainder of the state of 24 feet on embankments, of 21 feet in through cuts, and 22% feet where the road is part cut and part fill. 7. A crown or cross-camber varying from one inch to the foot where no surfacing is applied to less than three-eighths of an inch where bituminous sur- faces are used, in all cases the crown to be the least needed to cause the water to run quickly from the road into the gutters. - - 8. Such type of surfacing as the needs of the locality require, varying from the graded road to the highest type of asphalt paving and varying in width from 15 feet to 24 feet. 9. The erection of guardrails at dangerous points on grades and on high embankments. - 10. The proper trimming of slopes along the roadsides, both old and new, so as to prevent the unsightly gashes now so noticeable along the roads. Also the planting of suitable trees, indigenous to the locality, and properly caring for them. } 11. The placing of proper permanent monuments at the time of construction along the roads to mark accurately the limits of the right of way. Also the erection and maintenance of guideboards marked to show places and distances accurately. Save in two minor particulars these desiderata have been accomplished. As concerns the tree planting in paragraph 10 and the guideboards in paragraph 11, the performance up to date has been somewhat weak. The tree planting, however, is about to be undertaken on a broader basis but the erection of guideboards has been postponed, wisely probably, until the system is more nearly completed, at which time a more com- prehensive and scientific road indicating plan can be worked out than is possible now. -- As before stated, a fundamental principle of the commission has been to avoid waste in its operation. * - The engineering work has been done carefully; the grading, culverts and bridges have been built as if for all time; the pavement base has been adapted to the needs of the times with due allowance for probable enhanced future traffic and so left that it may be widened, thickened or surfaced as the future needs develop. - What these future needs may be it is idle to attempt to forecast. The thin concrete base has well proved its usefulness and hundreds of miles of smooth roadway have been provided for use during the past seven years and have well served the public, which would not have been available had the commission resorted to heavier, wider, and conse- quently more costly pavements. * cº- Respectfully, A. B. FLETCHER, Highway Engineer. Plate XXXIII. State Highway, Colusa County, Showing Damage Done by Trucks Hauling Rice. Plate XXXIV. State Highway, Colusa County, Showing Conditions Due to Rice Culture— Pavement on Right. FIRST BIENNIAL REPORT. 65 APPENDIX C. Statement of Condition. June 30, 1918. ASSETS. (Details below.) First State Highway Fund expenditures------------------- - .* - - see sºme = Second State Highway Fund expenditures------------------ Motor Vehicle Fund expenditures *- - - - - - Special appropriation expenditures------------------------ Expenditures, contributions by counties, cities and federal aid- Cash on hand Total assets —- - - - LIABILITIES. 55 Vouchers payable account–––––––––––––––––––––––––––– 57 First State Highway Fund--------------------------- *** * ... • * .* W. 5—43766 $18,002,129 OO 4,654,402 43 2,907,677 78 18,717 74 591,339 74 147,993 03 $26,322,259 72 $345,312 45 17,975,486 43 57A Second State Highway Fund––––––––––––––––––––––––––––––– 4,512,306 66 58 State General Fund––––––––––––––––––––––––––––––––––––––– 725, 40 58A Donations. *- * * - 532,117 98 60 Unclaimed wages (S. H. F.) ------------------------------- 2,167 91 60A Unclaimed wages (M. W. F.) ––––––––––––––––––––––––––––––– 460 98 62 Motor Vehicle Fund––––––––––––––––––– ____ 2,873,561 47 64 General appropriation, Chapter 704, Acts 1915_______________ 7,321 86 65 General appropriation, Chapter 748, Acts 1915–-_____________ 7,986 50 66 Premiums on first state highway bonds–––––––––––––––––––– —j- 2,129 OO 67 Federal aid road account––––––––––––––––––––––––––––––––––– 59,571 76. 68 Special appropriation, Chapter 746, Acts 1917--------------- 3,111 32 Total liabilities *...* - $26,322.259 72 Statement of Condition. June 30, 1918. ASSETS. First State Highway Fund Earpenditures. 2 Highways in process–––––––––––––––––– –––– $16,308,250 14 5 Sand plants - 20,474 64 20 Construction equipment ---------------------- $18,255 04. 21 Engineering equipment ----------------------- 18,914 43 22 Furniture and fixtures------------------------ 17,038 94 23 Stable equipment - - - 12,477 54 24 Automobile equipment — 40,839 04 25 Camp equipment –––––––––––––––––––––––––––– 4,744 67 26 Laboratory equipment ---- - - 2,847 42 Total equipment –––––----- -- 115,117 OS 85 Store account ------------------------------------------- $21,174 76 43 Headquarters expense - - $272,101 01 44 Divisions expense - 372,3S1 OS 72 County expense ----------------------------- 892,693 29 º Total expense -------------------- -- 1,537,112 38 . Total State Highway Fund (First) expenditures---_____ $18,002,129 OO 66. CALIFORNIA HIGHway CoMMISSION. Second State Highway Fund Ewpenditures. 2 Highways in process-------------------------------------- $3,872,731 78 5 Sand plants ------------------------- - 11,937 73 20 Construction equipment ---------------------- $40,673 90 21 Engineering equipment ----------------------- 7,687 93 22 Furniture and fixtures------------------------ 8,808 26 23 Stable equipment ---------------------------- 4,946 75 24 Automobile equipment –––––––––––––––––––––––– 34,431 86 25 Camp equipment ––––––––––––––––––––––––– --- 3,087 10 26 Laboratory equipment ----------------------- 1,664 54 Total equipment -------------------------------------- 101,300 34 35 Store account ––––––––––––––––––––––––––––––––––––------- - 10,893 47 43 Headquarters expense –––––––––––––––––––––––– $192,162 87 - - 44 Divisions expense –––––––––––––––––––––––––––– 256,175 94 * - 72 County expense –––––––––––––––––––––––––––– ... 209,200 30 Total expense ----------------------------------------- 657,539 11 Total Second State Highway Fund expenditures--------- $4,654,402 43 Motor Vehicle Fund Earpenditures. - - 3 Highway maintenance ----------------------------------- $2,485,927 67 27 Maintenance equipment ––––––––––––––––––––– $459,988 80 - 106 Oiling plants ------------------------------- 791. 75 110 Maintenance yards –––––––––––––––––––––––––– 1,030 36 120 Construction equipment ––––––––––––––––––––– 257 09 122 Furniture and fixtures––––––––––––––––––––––– 2 30 124 Auto equipment –––––––––––––––––––––––––––– 3,746 42 128 Shop equipment ---------------------------- 1,518 16 Total equipment ---------------------------------- ---- 467,334 88 162 Injuries to employees------------------------ $57 00 . - 163 General expense –––––––––––––––––––––––––––– 205 29 164 Maintenance of plants----------------------- 331 85 165 Repairs to motor vehicles-------------------- 2,752 97 166 Repairs to other equipment------------------- - 1,068 12. Total expense ---------------------------------------- 4,415. 23 Total Motor Vehicle Fund expenditures * $2,907,677 78 Special Appropriation Earpenditures. - - 301 Expenditures, Chapter 704, Acts 1915—Los Angeles County___ $7,321 86 302 Expenditures, Chapter 748, Acts 1915—Ventura County ––––– 7,986 50 304 Expenditures, Chapter 746, Acts 1917—Trinity-Humboldt Ex- tension ---------------------------- - --> 667 45 305 Expenditures, Chapter 746, Acts 1917—Oxnard-San Juan ----. 417 37 306 Expenditures, Chapter 746, Acts 1917—Jackson's Ranch ---__ 603 36 307 Expenditures, Chapter 746, Acts 1917—Carmel-San Simeon Road 324 58 308 Expenditures, Chapter 746, Acts 1917—Carmel-Jolon Road --- 350 44 309 Expenditures, Chapter 746, Acts 1917—Dumbarton Bridge ---- 986 09 310 Expenditures, Chapter 746, Acts 1917—Santa Maria _________ 60 09 Total special appropriation expenditures---------------------- $18,717 74 Earpenditures, Contributions by Counties, Cities and Federal Aid. 401 Humboldt County --_________ - sº * – $80,992 63 402 Shasta County --------------------- - y O0 408 Siskiyou County ---------------------------------------- 45,345 33 404 Glenn County ––––––––––––––––––––––––– . m*. * 8,421 52 405 Contra Costa County–––––––––––––––––––––––––––––––––––– 2,200 00 406 Marin County ------------------------------------------ 35,000 00 407 Napa County ----------------- — — — - tº gº 65,000 00 408 Sonoma County ---------------------------------------- 75,000 00 409 San Luis Obispo County--------------------------------- 5,000 00 FIRST BIENNIAL REPORT. 67 . Lapenditures, Contributions by Counties, Cities and Federal Aid—Continued. 410 Imperial County * - - - - - - - * - - -- * me -- * 411 Calaveras County ––––––––––––––––––––––––––––––––––––––– 413 Colusa County 414 Solano County –––– 415 Mariposa County - - * *- - - - - - - amº sº- - - - 416 Santa Barbara County----------------------------------- 417 Kern County ------------ 418 Niles ------------------------ 4:19 San Juan Bautista-------------------------------------- $531,767 98 481 Federal aid–San Mateo County-------------------------- 482 Federal aid—Contra Costa County Total Cash on Hand. - * - * * * * * * * - * * * * - - * - * * * * * * $591,339 74 48 Office Fund—Headquarters ------------------------------ 49A. Office Fund—Divisions 50 National Bank of D. O. Mills & Co 52 Farmers and Mechanics Savings Bank__ 53 California National Bank–––––––––––––––––––––––––––––––– Total cash 31,944 S1 20,000 00 20,000 00 4,500 00 5,000 00 2,200 00 50,115 75 5,904 08 2,143 86 9,000 00 35,327 20 24,244 56 $100 00 40,500 00 99,123 58. 4,202 91 4,066 54 $147,993 03 EXPENDITURES IN COUNTIES FROM FIRST STATE HIGHWAY FUND. During the fiscal year July 1, 1917, to June 30, 1918. County Division Toºls º Tºo Alameda - - - IV $18,270 90 || $434,381 89 || $452,652 79 Alpine ---------------------------- III --- * - Amador --------------------------- ! III 13 78 392 71 406 49' Butte - III 10,371 94 296,282 23 306,654 17 Calaveras --- III *16,665 88 22,459 66 5,793 78 Colusa ----------------------------' III 12,179 02 480,949 10 493,128 12 Contra Costa -------------------- IV (a)*13,964 81 265,651 18 251,686 37 Del Norte ------------------------- I : 604 96 10,371 99 10,976 95 El Dorado ------------------------ III 9,494 97 277,654 76 287,149 73 Fresno ---------------------------- VI 11,289 21 237,110 17 248,399 38 Glenn ----------------------------- III 5,360 04 245,053 25 250,413 29 Humboldt ------------------------ I 37,104.46 636,116 59 673,221 65 Imperial -------------------------- VII 15,976 56 388,918 85 404,895 41 Inyo ------------------------------ VI 982 11 20,627 14 21,609 25 Kern ------------------------------ vi 40,11425 | 8tº 36 sº. 6; Kings ----------------------------- VI 4,842 65 101,711 73 106,554 38 Take ------------------------------ I ſ 89 15 15 16 04 Lassen ---------------------------- II 44 89 669 46 714 35 Los Angeles ---------------------- VII 50,694 81 1,234,067 54 1,284,762 35 Madera --------------------------- VI 10,020 14 210,456 51 220,476 65 Marin ----| IV +25,357 62 261,438 03 236,080 41 Mariposa ------------------------- VI 6,450 51 183,886 65 190,337 16 Mendocino ----------------------- I 43,525 34 746,194 O7 789,719 41 Merced ----- * * * * * * * * * * * * * * * * * * * *- - - - - VI 15,585 89 327,355 08 342,940 97 Modoc ---------------------------- II 2 06 31 00 33 06 MOno * * * * * * * * * * * * * * * * * * * * * * VI 4,000 56 84,024 63 88,025 19 Monterey ------------------------- V 32,062 21 586,867 45 618,929 66 Napa ------------------------------ IV *64,427 66 83,757 75 19,330 09 *Contributions by county or federal aid received during the year (applying to work done in previous years) amount to more than the expenditures for the year. (a) Federal aid, $24,244.56. '68 CALIFORNIA HIGEIWAY COMMISSION. EXPEND ITURES IN COUNTIES FROM FIRST STATE H IGHVVAY FUND– Continued. County Division Toºls Fº Tºo Nevada --------------------------- III $272 71 $7,790 75 $8,063 46 Orange _j VII 11,868 43 517,039 84 528,908 27 Placer ---------------------------- III 12,314 64 351,779 35 364,093 99 Plumas --------------------------- III 1 98 56 60 58 58 Riverside ------------------------- VII 3,647 60 88,794 51 92,442 11 . Sacramento ---------------------- III 3,514 60 100,397 43 103,912 C3 San Benito ----------------------- V 8,120 57 222,716 36 230,836 93 San Bernardino ------------------ VII 10,299 58 250,722 17 261,021 75 San Diego ------------------------ VII 30,317 44 591,870 77 622,188 21 San Francisco ------------------- IV 3- ==\ San Joaquin --------------------- III 144 68 4,133 40 4,278 08 San Luis Obispo------------------ V 40,873 99 782,697 27 823,571 26 San Mateo ----------------------- IV (b)*17,963 35 443,092 24 425,128 89 Santa Barbara ------------------ V 46,770 39 792,894 20 839,664 59 Santa Clara --------------------- IV 34,107 14 , 891,915. 49 926,022 63 Santa Cruz ---------------------- IV 8,782 55 206,244 93 215,027 48 Shasta ---------------------------- II +33,771 09 514,801 31 481,030 22 Sierra ---------------------------- III 600 79 17,162 96 17,763 75 Siskiyou -------------------------- ' II 24,286 74 362,186 45 386,473 19 Solano ---------------------------- III 10,852 98 392,142 96 402,995 94 Sonoma -------------------------- III *63,531 51 558,379 73 494,848 22 Stanislaus ----------------------- III 10,327 98 295,028 20 305,356 18 Sutter ---------------------------- III 3,640 02 103,980 66 107,620 68 Tehama --------------------------- II 18,702 42 278,908 00 297,610 42 Trinity --------------------------- II 441 73 6,588 23 7,029 96 Tulare ---------------------------- VI 11,150 A8 234,195. 19 245,345 67 Tuolumne ------------------------ III 4,389 35 125,386 40 129,775 75 Ventura -------------------------- VII 23,962 97 583,331 57 607,294 54 Yolo ------------------------------ III 25,777 62 736,357 16 762,134 78 Yuba ------------------------------ III 4,124 72 117,826 61 121,951 33 TOtals -- * $442,604 33 $17,557,395 67 || $18,000,000 00 General expense, undistributed (premiums on bonds)---------- *. sºme sº mºm amº 2,129 00 2,129 CO Grand totals ------------------------- $442,604 33 $17,559,524 67 || $18,002,129 00 *Contributions by county or federal aid received during the year (applying to work done in previous years) amount to more than the expenditures for the year. (b) Federal aid, $35,327.20. FIRST BIENNIAL REPORT. 69 ExPENDITURES IN counties FROM SEcond STATE HIGHway FUND. During the fiscal year July 1, 1917, to June 30, 1918. County Division * | County Division * Alameda ---------- IV $119,308 15 || San Benito --------| V 4,068 18 Alpine ------------- III San Bernardino -- VII 9,583 £0 Amador ----------- III 4,556 05 || San Diego -------- VII 156,859 49 Butte --------------| III 20,595 06 || San Francisco ----| IV -------------- Calaveras -------- III 41,743 33 || San Joaquin ----- III 7,168 93 Colusa ------------ III 75 26 || San Luis Obispo-- V 86,128 07 Contra Costa ----| IV 131,850 10 || San Mateo -------- IV 14,071 58 Del Norte --------- I 12,909 30 || Santa Barbara --_j V 378,611 87 El Dorado -------- III 66,224 24 || Santa Clara ------ IV 59,193 54 Fresno ------------ VI 2,988 51 || Santa Cruz ------- IV 4,777 94 Glenn -------------| III 63 66 || Shasta ------------ II 300,348 86 Humboldt --------- I 154,026 91 || Sierra ------------- II 33,304 83 ... Imperial ----------| VII 19,388 69 || Siskiyou ---------- II 54,136 10 Inyo -------------- VI 22,232 00 || Solano ------------ III 98,490 71 |Kern --------------- VI 11,224 75 || Sonoma ----------- IV 65,233 05 Kings -------------- VI 488 01 || Stanislaus -------- III 9,723 55 Lake -------------- I 1,783 54 || Sutter III 12 63 Lassen ------------ II 2,702 13 || Tehama ----------- II 34,457 72 Los Angeles ------ VII 482,679 37 || Trinity ------------ II 11,954 65 Madera ----------- VI 275 69 || Tulare ------------ VI 364,021 44 Marin ------------- IV 116,479 02 || Tuolumne ---------| III 2,274 44 Mariposa --------- VI 149,721 78||Ventura ----------- VII 51,444 09 Mendocino -------- I 363,105 30 || Yolo --------------- III 128,200 06 Merced ------------ VI 7,117 10 || Yuba -------------- III 34,869 79 Modoc ------------- II 2,158 55 # *mºms Mono -------------- VI 40,771 40 Total ------------------ $4,081,932 08 MOnterey --------- V 207,843 08 Napa -------------- IV 76,338 96 || Highways --------|-------- $3,872,731 78 Nevada ------------ III 89,689 08 || Surveys - * * - - 209,200 30 Orange ------------ VII 4,177 10 Placer ------------- III 10,306 93 Total amount Plumas ------------ III 2,546 25 Charged to Riverside --------- VII 3,966 29 date to COUIn- Sacramento -...---- III 3,661 67 ties - * * * $4,081,932 08 *As this fund did not become available until Sent the total expenditures to June 30, 1918. after July 1, 1917, the above figures also repre- 70 CALIFORNIA ETIGHWAY COMMISSION. APPENDIX D. LEGAL DEPARTMENT. By CHARLES C. CARLETON, Attorney. The California Highway Commission appointed its attorney in November, 1911, who has since devoted his entire time to its right of way, legislative, claim and legal activities. It became apparent from the beginning of the highway work that a legal adviser directly attached to the commission was a necessity, and accordingly, with the consent of the Governor and the Attorney General of California, the writer, who had had previous experience in similar work, was chosen and has been intimately associated with the growth of the commission from a force of a few employees to an organization with seven divisions throughout the state, and has attended practically every meeting of the commission in the capacity of such legal adviser. In the first months of the state highway activities in 1911-1912, the legal interpretation of the basic laws under which the commission existed became essential, so that the early work of the legal department was entirely advisory in its nature. - After the engineering organization of the commission was formed in the winter of 1912, preparations were made for actual state highway construction and the acquisition of essential rights of way became imperative. . The attorney made a personal inspection of the road records in the offices of the boards of supervisors and county surveyors of many coun- ties of California, and compiled preliminary right of way reports rela- tive to the title of these counties to the sections of county highway which were proposed to be incorporated in the new state highway System. In a number of counties these records were, at the time, in a rather chaotic condition so that much time was required in searching the title of the public in existing roads. The commission, at the outset, recognized the importance of proper highway locations and the acquisition of rights of way of sufficient width to be sightly and to provide adequate space for highway improve- ment, tree planting and the orderly arrangement of public utilities. In many localities the existing roads were not suitable either in whole or in part for the new state highways which were to be built according to modern engineering standards, so that hundreds of miles of new right of Way have had to be obtained, but the right of Way man has always endeavored to keep well in advance of the road builder. FIRST BIENNIAL REPORT. 71 The method of standardization of the state highway rights of way has now been adopted by many counties and the elimination of the old right-angle turns, while provocative of much right of way controversy with owners who have placed unwarranted values on these small corners of their land, has, nevertheless, set an example for safe turns that are now being demanded by the traveling public everywhere. That there has been a diligent effort to obtain proper title to the state highway locations before the construction crews have commenced opera- tions thereon is evidenced by the fact that in seven years there has not been an injunction or trespass proceeding instituted against the state or the commission. - - In 1912 it became apparent that the first bond issue of $18,000,000 was inadequate for the great highway undertaking projected, and the boards of supervisors of the several counties of California were approached and requested to furnish the necessary rights of way and bridges for the state highway system. The boards of supervisors promptly responded to the call for such co-operation, with the result that thereafter the actual personal solicitation for rights of way from the landowners themselves became largely the duty of county agents. While this aid avoided the necessity of the commission giving to its attorney a staff of state right of way agents, yet the attorney has closely co-operated with the county authorities and has constantly consulted with their district attorneys and county right of way agents in right of way matters, to the end that the necessary rights of way might be obtained in an orderly and legal manner. $ The attorney drafted an act (Chapter 256, Statutes 1913) which was passed by the 1913 legislature, permitting counties to acquire rights of way for state highways, to pay a portion of the expense of constructing state highways and bridges within their limits, and authorizing the state to accept the same. - - Under the authority of this act the counties have afforded aid to the state to the extent of hundreds of thousands of dollars, and all con- demnation proceedings for the acquisition of state highway rights of way have been handled, with the exception of one suit which was personally conducted and adjusted by the attorney for the commission, directly by district attorneys. - This act provides for a summary condemnation proceeding by the county to acquire a state highway right of way without the necessity of a preliminary petition, view of the premises and award of damages, as in the case of ordinary county roads. Suits thereunder may be insti- tuted directly by the counties upon the receipt of a formal request from the State Department of Engineering. § 72 CALIFORNIA HIGHWAY COMMISSION. However, the attorney for the commission has counseled with the dis- trict attorneys in most of the cases and furnished advice and forms of pleadings for their guidance. The suits in eminent domain commenced by the county authorities have, in a majority of cases, been settled out of court, indicating that when recalcitrant landowners fully realize that the demand of the public for the use of their property is determined, they quickly capitu- late. - º The attorney for the commission has, moreover, in some instances where the county authorities have not reached satisfactory terms with some of the large corporation and individual landowners, personally interviewed them and arranged adjustments. For two short periods of time a right of way agent has been employed by the commission, directly reporting to the attorney, but with these two exceptions the attorney has handled all the work of the department without further assistance. - During the life of the California Highway Commission there have been three regular sessions of the legislature, viz, 1913, 1915 and 1917. The early work of the commission was somewhat hampered because of the fact that state highway construction on a large scale had not there- tofore been in progress in California and the then existing laws relating to ordinary state building had not been formulated with modern methods of state highway improvement in contemplation. Accordingly, it became necessary to obtain legislation which would serve to facilitate road construction in the manner intended by the people when in 1910 they approved the “State Highways Act” pro- viding for a bond issue in amount $18,000,000. The legal department was called upon to draft, or to assist in the drafting, of a number of measures which were deemed to be for the best interests of the new state highway project. - The act hereinbefore mentioned providing the procedure for counties furnishing aid in the matter of rights of way, bridges, fencing, money, labor, materials and other appurtenances toward the state highway enterprise was among the important laws adopted by the legislature of 1913 to promote the state highway work. The “State Highways Act” prescribed that the state highways, when constructed, should be permanently maintained and controlled by the state of California. But no provision was made therein for funds wherewith to adequately maintain the state highways when completed. The commission, observing that in some states the cost of the mainte- nance of improved highways was being borne by licenses derived from the registration of motor vehicles, initiated in the legislature of 1913 a FIRST BIENNIAL REPORT. 73 bill, in the drafting of which its attorney participated, which legislation was finally adopted in the session of 1913 and which made possible the future maintenance of the state highway system. The attorney for the commission spent considerable time in briefing the laws of the various states in this connection, and before the bill was introduced, rendered opinions to the commission concerning the constitutionality of various features of the proposed motor vehicle legislation, which opinions were subsequently affirmed by the decisions of the Supreme Court of the state of California. Other legislation for the betterment of the state highway work was passed by the same legislature. Some proposed legislation detrimental to such work was successfully opposed, and the duty was thereafter placed upon the attorney to carefully read all highway bills in that and the succeeding legislatures that might not appear to be for the best interests of the state. In the 1915 legislature a number of bills were prepared which were considered advantageous to the state highway work; among these were the following: An act (Chapter 99, Statutes 1915) regulating openings, structures, pipes, trees, etc., on the state highways and the issuance of permits by the State Department of Engineering. The latter act provides the commission with a procedure whereby it can restrain the indiscriminate tearing up of the state highways or the destruction of trees and regulate the laying or placing of pipes, sewers, railways or other objects, or the cutting, trimming or planting of trees under formal permits issued by it to those regularly seeking the same. An act (Chapter 399, Statutes 1915) permitting the commission to close state highways in course of construction and providing for a penalty in the case of any person molesting the barriers, signs or lights placed by the commission during state highway maintenance or con- struction. An act (Chapter 400, Statutes 1915) providing for the care, manage- ment and protection of state highways and penalties for violations of the act, whereby the commission is able to prevent any person draining water from his land onto the state highways, from putting encroach- ments thereon or from placing any advertising sign on a state highway except under a permit from the commission. An act (Chapter 549, Statutes 1915) providing that all public con- tracts shall be accompanied by a bond conditioned to secure the payment of the claims of materialmen, mechanics, laborers or supplymen. Much question had arisen in the courts whether or not the labor and material bond statute, as it theretofore existed, covered provisions, provender, general supplies not actually incorporated in the highway, and team 74 CALIFORNIA HIGHWAY COMMISSION. hire, either furnished to a contractor or subcontractor, and the attorney for the commission prepared this act including such items in order to prevent further confusion on these points. The contract law of the State Department of Engineering was also revised in this session of the legislature in order that the conduct of state highway work on a unit basis might be fully recognized and pre- scribed, and other amendments were therein made redounding to the welfare of the state highway work. During the session of the legislature of 1915 it was decided to request the legislature to pass an act (Chapter 404, Statutes 1915) submitting a second state highway bond issue, in amount $15,000,000, to the people for ratification at the general election of 1916. This act was initially drafted by the legal department of the commission, was adopted by the legislature and subsequently approved by the voters of California, being cited as the “State Highways Act of 1915.” In the legislative session of 1917 the most important act prepared by the legal department and passed by the legislature was an act (Chapter 537, Statutes 1917) enlarging the powers and duties of the California Highway Commission. - This act placed all the state roads and highways under the active management and supervision of the commission. It also empowered the commission, at its option and upon the request of the appropriate local authorities, to act in a consulting capacity to county, city, road or boulevard district officials in the matter of local roads and bridges, to prepare plans for same, or to actually receive and expend bond or tax funds raised locally, for highway improvement. The Vehicle Act of California, as amended in 1917 (Chapter 218, Statutes 1917), also imposed new duties upon the commission. One of these is to hold hearings to determine whether the licenses of operators or chauffeurs convicted of driving motor vehicles while intoxi- cated, or convicted for the third time in a calendar year of speeding, shall be revoked or suspended. *A The same jurisdiction is given to the commission in cases of reckless drivers or of persons incompetent or unfit to operate motor vehicles because of a mental or physical infirmity or disability. The proper handling of these cases also adds to the work of the legal department. * . . - At the present time the legal machinery for carrying out the intent of the state highways acts of California and the expenditure of the receipts from the motor vehicle registration is, with the exception of one or two defects which will probably be remedied by the 1919 legis- lature, in satisfactory operation. - A large volume of claim business has been handled. This has been of two classes—claims directly against the state of California and claims FIRST BIENNIAL REPORT. 75 against the contractors engaged in state highway construction. Natu- rally there arise from construction work of the scope of the state high- way activity, claims against the state itself arising both on contract and for alleged injury to persons or property. There have been over 230 contracts for the building of links in the state highway system. A number of special claims of contractors for damages against the state, arising out of these contracts, have been filed and the merits thereof examined and determined. The attorney has had to appear numerous times in court, before the State Board of Control and the Highway Commission in the contest or hearing of the same. There has never been a judgment rendered against the state in any action which has been commenced against it by state highway contrac- tors, although some amicable adjustments have been arranged before litigation has been instituted, where the contractors were clearly entitled to legal or equitable relief. The total amount, however, allowed on such claims has been but a small fraction of the original amounts claimed. Claims for damages to persons and property arising out of the state highway, operations have been practically negligible, considering the large mileage of state highways and the extensive construction under way. Only one action on account of such claims for tort, a personal injury case, has been prosecuted in the courts against the commission, and that has recently been decided by the Appellate Court in favor of the com- mission and its contractor, who were joined as defendants. - Ordinarily the claimants have accepted the determination of the com- mission, or the State Board of Control when their claims have been filed with the latter board, after review of their claims. Labor and material claims against contractors have consumed much time and attention. The funds earned by the contractors are subject to claims for labor and materials under the provisions of section 1184 of the Code of Civil Procedure (Mechanics’ Lien Law). This section provides that a person who has furnished labor or mate- rials or both to a state highway contractor may file a notice with the commission to withhold money due or to become due from the state to the contractor to answer in court to the claimant. A number of the contractors have had the misfortune to incur a greater or less amount of indebtedness, with the result that the commis- sion has been deluged at times with withhold notices. In some cases amicable adjustments have been arranged by the attorney, but in a large number of cases the commission has been compelled to appear in court and to interplead, offering to pay the moneys impounded by the conflicting claims as the court may finally direct. The attorney has had actions of this description pending in superior courts in as many 76 CALIFORNIA HIGHWAY COMMISSION. as a dozen counties of the state at the same time, and the handling of this business has taken as much time of the legal department as any other phase of its work. +. - For illustration, the attorney has disposed of three interpleader cases in the course of the last few weeks, by reason of which about $35,000, which had been withheld by the commission for many months, was dis- tributed among the creditors. - - At times the commission has had in its custody over $100,000 belong- ing to contractors or their assigns but impounded by withhold notices. The aim of the commission is to choose responsible contractors, but despite its efforts, financial reverses occur at times, with the result that an avalanche of claims must be handled. On the other hand, a number of contractors who have had no intention of avoiding their just obliga- tions have been greatly handicapped by creditors unnecessarily filing withhold notices and tying up their working capital. It sometimes seems problematical whether state funds should be subjected to this law, with the attendant crippling, in many instances, of public work by reason of the arbitrary and premature filing of stop notices against contractors, particularly after the state requires a bond in half the amount of the contract price to accompany each contract, conditioned to secure the payment of laborers, material- and supply-men. During his connection with the commission, the attorney has rendered scores of written opinions on all subjects pertinent to the commission’s powers, duties and liabilities; has prepared or scrutinized all deeds, contracts, leases, bonds, assignments and other legal instruments passing through the hands of the commission, and has handled in court all litiga- tion in which the commission has become involved without assistance or local counsel except in the hereinbefore mentioned personal injury case, wherein the attorneys for a bonding company, which was obligated to protect the commission, were associated with the commission’s attorney in the defense of the case. *. No legal fees have ever been paid by the commission to other attorneys, and the expense of the department has been limited to the salary and traveling expenses of its attorney, except in two instancés when, for a short period of time, a special right of way agent was temporarily attached to the legal department. The attorney has appeared before the Railroad Commission on behalf of the California Highway Commission in a large number of matters, *...* for the most part involving the installation of grade crossings or the elimination of grade crossings or the installation of overhead structures or subways. Since the passage of the Workmen’s Compensation, Insurance and Safety Act he has handled all cases of injuries to the employees of the commission, and until the defense of such cases was assumed some FIRST BIENNIAL REPORT. 77 months ago for all the state boards by the State Compensation Insurance Fund, appeared in all hearings, in which the California Highway Com- mission was a defendant, before the Industrial Accident Commission. Moreover, he has presented a number of applications of the California Highway Commission before the War Department for permits to con- struct bridges over navigable streams, and, in fact, has appeared for the commission before all boards, federal or state, which involved COntests. *- * - There are now pending in the courts a small number of cases in which the commission is interested but the docket book of the legal department now has fewer cases listed than at any time for several years, indicating that most of the cases in which the commission has been involved have been disposed of by final adjudication or compromise. The cases now pending in the courts at the time of this report are as follows: - - People of the State of California vs. John C. Green (No. 5002, Supe- rior Court of Marin County). This is a proceeding in eminent domain to acquire a site for the construction of two bridge tenders’ houses and for other maintenance purposes at the west approach of the state high- way bascule bridge over Petaluma Creek at Green Point, Marin County. Union Lime Company vs. Fred Hoffman et al. (No. B-51692, Supe- rior Court of Los Angeles County). This is an action to have a lien declared upon funds impounded in the hands of the commission on a state highway contract. Paul D. Buckingham vs. Commary-Peterson Company et al. (In the District Court of Appeal, Third Appellate District, transferred from Supreme Court and numbered therein Sac. No. 2675). This is a per- Sonal injury action arising out of an accident occurring during the construction of a portion of the state highway in Solano County. (See Vol. 27, California Appellate Decisions, page 844.) Stirling P. Dobbins, Jr., vs. Commary-Peterson Company et al. (No. 5347, Superior Court of Solano County). This is a personal injury case arising out of an accident during the construction of a portion of the state highway in Solano County. Companion case of the foregoing. E. T. Johnson vs. State of California (No. 85780, Superior Court, City and County of San Francisco). This is an action by a state highway contractor against the state of California for damages for alleged breach of a state highway contract in Siskiyou County by the commission. December, 1918. - 78 CALIFORNIA HIGHWAY COMMISSION. - APPENDIX E. GENERAL INSPECTION OF STATE HIGHWAY CONSTRUCTION AND MAINTENANCE. By LESTER PH. GIBSON, Second Assistant Highway Engineer. The great size of the state of California necessitated the formation of seven divisions, in each of which all construction and maintenance of state highways was under the direction of a Division Engineer who was responsible only to the Highway Engineer. - As the seven division engineers were working somewhat independently of each other, it was determined that there should be an intermediary to assist in creating and maintaining a high standard of construction, in obtaining the proper interpretation of contract specifications, and, in general, in securing uniformity of requirements, methods and results throughout the state. - - Accordingly, the position of Second Assistant Highway Engineer was created, and the writer was appointed in that capacity. The assignment was unique among state highway organizations, and, in order that no conflict in authority or possible personal friction should tend to nullify the position, its scope was more or less limited. Contract and day labor projects were to be thoroughly inspected, working as independently as possible. No orders were to be given to either engineers or workmen, but the Division Engineer was to be con- sulted with concerning the conduct of the work, and reports were to be made to the Highway Engineer which would inform him of both satis- factory and faulty features of the job as noted at time of inspection. The first contract had been awarded in July, 1912, and at the time the duties of the writer were assumed, in May, 1913, a total of thirty-one contracts had been let, several so recently, however, that work on them had not been started. Because these contracts were so widely scattered throughout the state, from Mendocino and Yuba counties on the north to San Diego on the south, the railroads were used to reach the nearest towns to the work, and a livery rig obtained to reach the job. As a rule, the whole contract was traversed on foot. Not less than one day was employed in inspection of each contract, and more time was taken when it seemed desirable to do so. The visits of the writer were never previously announced, and it was possible to judge of the usual working conditions on the contracts. It has been found that not only contractors, but also state employees, some- times make special preparations if advised in advance that a formal inspection is about to be made. FIRST BIENNIAL REPORT. 7; 4°º. Compliance with specifications has been the sought-for goal at all times and such compliance has been considered of as much importance on force account work as on Contracts. As a rule, the writer has spent more time on the inspection of day labor jobs than of contracts, frequently remaining on the work from two or three days to a week, living at the camps and studying the camp management as well as the construction features. On such occasions, the executive ability of the superintendents, including their force in handling men and their intelligence in laying out the work, has been judged. The method of keeping time, the prevailing scale of wages, the handling of accounts, and the system of managing and accounting for the commissary supplies have received due care. Much money can be saved or lost by the manner in which the boarding of the men is handled, and it is believed that much improvement has occurred in this department of the work. Special reports have been made on occasions of such inspections, giving the details of construction progress and the business management as well. Inspection of work performed by prison labor from San Quentin and Folsom state prisons has always been interesting. The writer has spent considerable time in camps where convicts are employed, and has found that the organization of convict work, as regards both the construction and the camp management, must be considered from an entirely different viewpoint than that used in judging free labor jobs. ' Convicts have been employed in three different divisions, always on mountain road construction, and it has been found to be of utmost importance that there be uniformity in handling all phases of their employment. In general, the manner of inspection of the convict labor organizations has con- formed to that of day labor camps. Inspection trips were at first made by train, but within a year after assuming my duties many more contracts were let, and the jobs were then so close together other means of transportation became advisable. Since June, 1914, therefore, the writer has had the use of an automobile, proceeding in an encircling movement around the state, always going forward and, therefore, saving time and mileage. In the past five and one-half years, all of California’s main highways and most of the secondary roads have been traveled by the writer many times, and under all conditions created by winter and summer weather. The road conditions have been improving rapidly; the unimproved gaps in the state highway have been and are being graded and paved and no one who travels the highways of California today for the first time can realize the condition of the same roads six years ago. But the public is being educated to good roads faster than they can be built, and the writer has been in a position to note the increase in the demand for them. 80 CALIFORNIA HIGHWAY COMMISSION. A number of improvements in methods of construction and in equip- ment used have been developed during the construction of California highways, notably in the use of the nail template, which is employed everywhere concrete pavement is being laid. This template has pro- jecting nails on its under side and is dragged along the header boards in front of the mixer. As the subgrade must be sufficiently low so as not to be marked by the nails, the danger of pavement being constructed which is thinner than required by specifications is avoided. Also in the ponding method of curing concrete, by covering the newly laid pavement with water held in by check dams, a distinct California development. - . Also the mechanical tamper, which is run by a gasoline engine and strikes off and tamps, the concrete in place was first employed, it is believed, on California state highways, and these machines are now manufactured commercially in California and in Eastern states. As the construction of highways by the California Highway Commis- sion has proceeded, and the finished roads have reached the stage where maintenance is necessary, the writer has been gradually devoting more and more time to that department of the work. It is believed that at the present date at least half of his time is employed on maintenance. As he travels about the state, reports are made to the Highway Engi- neer of the condition of every section of state highway, and the Division Engineer is also consulted with on the same matter. Points which receive consideration are the need of maintenance where the necessity is observed, neglect in commencing maintenance at the proper time, the diligence of maintenance employees and their adaptability to the work. Questions are sometimes raised as to whether the proper methods of maintenance are empolyed and changes aré suggested. - In addition to the duties already outlined, the writer has occasionally been handed special assignments. Among them, two might be men- tioned: - t - During the years 1916-1917, a special examination of corrugated iron pipe culverts was made in all parts of the state, their general condition and wearing qualities being carefully determined. In the summer of 1917, a special inspection trip was made which covered all of the state roads which had been acquired by legislative action and which were being transferred to the care of the California Highway Commission by the State Department of Engineering. All of these roads are located in the mountain districts, most of them being in the Sierra Nevada range, and many of them are in the more inacces- sible parts of the state. The physical characteristics of the roads, the grades and drainage features were noted and an examination of all existing culverts and structures was made on each and every road, all TIRST BIENNIAL REPORT. 81 information obtained being incorporated in a report to the Highway Engineer. The writer’s work has led to much interchange of ideas among the seven division engineers in the state, and the desire for uniformity of inspection and standardization of working methods, which led to the assignment of the duties of the Second Assistant Highway Engineer, has been largely realized. November, 1918. 6–43766 82 CALIFORNIA HIGHWAY COMMISSION. APPENDIX F. GEOLOGICAL WORK AND MATERIAL TEST.S. By CLARENCE B. OSBORNE, Geologist. The geological work for this commission was started in February, 1912, with a corps of six geologists. In May, 1912, the Testing Laboratory began the testing of materials. From that date to the present time the work has largely been carried on in the laboratory by Mr. F. T. Maddocks, the Testing Engineer. During the summer months of 1913, 1914 and 1916, the laboratory had one helper in addition to the Testing Engineer. The geological force, after May 15, 1912, was reduced and since that date I have carried out the work of this department throughout the state without other assistance. The work of the Geological Department has consisted in reconnaissance surveys for materials for highway construction. In the undeveloped sections of California the examination of material consisted in locating suitable deposits of rock, sand and gravel, and estimating the quantities available. In the more developed sections of the state the reconnaissance survey for proposed highways usually consisted in visiting the different devel- oped producing companies, examining their equipment and available supplies and reporting as to possible output and shipping facilities. In every examination, the different products have been sampled for complete laboratory tests. Where the products have been uniform, average samples have been tested. If the products were found to be variable, then additional samples were taken so as to give an idea of the extreme limits of the product as well as average results. The Geological Department has also been called on to make an exami- nation of earthquake faults, landslides and other geological phenomena that was likely to affect proposed highway routes. Testing Laboratory. The Testing Laboratory tests all samples of material proposed for use in the highway construction. Results of these tests show if the material meets the specifications of the commission. Where there are several available supplies, the tests determine the relative value of the different Supplies. The Testing Laboratory also has made a series of tests on sections of the finished highway, giving the information as to the strength and wear- resisting qualities actually produced in the field. A number of special tests have been conducted in the laboratory to determine the effect on the highway construction materials when the FIRST BIENNIAL REPORT. 83 highway is to be built in regions presenting unusual chemical, physical or temperature conditions. The Testing Laboratory has made a large number of tests to determine the suitability of hitherto untried materials that have been suggested or recommended for the use of the commission. SUMMARY OF REGULAR TESTs MADE IN THE LABORATORY FROM THE BEGINNING OF THE WORK IN 1912 TO OCTOBER, 1918. 2262 samples cement tested for— Specific gravity. Fineness 100 and 200 mesh. Setting time. Tensile strength neat. Tensile strength Standard sand. Constancy of volume in water 28 days. Constancy of volume in steam 5 hours. Constancy of volume in boiling water 5 hours. These tests are made according to the methods of the American Society for Testing Materials. 740 sand samples tested for— Specific gravity. Mineral classification. Physical classification. Per cent voids loose. Per cent voids compacted. # Granularmetric analysis. Tensile strength 1:3 cement mortar at 7 and 28 days. Comparison with tensile strength of Standard sand. same cement used. Compressive test 1:3 cement mortar at 7 and 28 days. Comparison with compressive strength Standard sand mortar. 251 gravel samples tested for— Specific gravity. Mineral classification. Per cent voids loose. Per cent voids compacted. Weight per cubic foot. Granularmetric analysis. Compressive strength. 846 compression tests 1:2 1/2:5 concrete tested for— Density of concrete. Compressive strength at 28 days. The following is a summary of the concrete tests made during the year 1916. I have not been able to include in this summary all of the tests made down to the present date, but there are found in this summary a fairly wide range of sands from all parts of California, and the results are indicative of the problems and results throughout all of the concrete testing for the past six years. 84 CALIFORNIA HIGEIWAY COMMISSION. Tests applied to sands. The same tests and methods have been applied to all samples of con- crete sands received during 1916 as described in previous yearly reports. I. SANDS. Summary of Concrete Tests for Year 1916. These tests, tabulated in order of their importance are: . Grading. : Summary of results. For a basis of comparison all sands are divided into four classes as shown in the following tables: . Silt and organic matter. . Voids—loose and compacted material. ... Weight per cubic foot—loose and compacted material. . Specific gravity. . Strength tests—1:3 mortars by weight; normal consistency. TABLE A. Tests Failing in Both the 100- and 30-mesh Requirements. Per cent of strength of standard sand Per cent | Per cent Tension Compression Y DàSSlng DàSSII?g Test, NO. 100-mesh 30-mesh - SięWe Slèyè 3-day 7-day 28-day 7-day 28-day 545 6.8 59.5 69.9 84.1 89.4 67.1 S1.9 567 12.4 53-4 1---------- 96.8 99.4 90.9 72.0 581 8.4 78.0 53.9 59.6 74.8 54.3 j92 10.3 50.6 97.2 100.6 114.1 99.4 102.7 TABLE B. Tests Failing in the 100-mesh Requirement But Passing the 30-mesh Requirement. Per cent of strength of standard sand Per cent | Per cent Tension Compression w * DaSSlng DàSS111g Test No. 100-mesh | 30-mesh Slewe Sleye 3-day 7-day | 28-day || 7-day | 28-day 544 – a- - - *** - 6.5 24.9 82.3 95.5 109.0. 94.8 $6.5 549 --- 7.2 43.4 98.7 I25.2 136.5 91.3 112.8 j(ſ -- 6.2 37.0 104.0 123.3 I24.3 104.4 124.9 566 - 11.2 49.9 8S.S. 102.8 108.9 95.7 107.5 571 ---------------------------- 6.1 38.5 111.7 139.9 146.4 141.2 130.3 591 10.3 48.8 54.6 | 73.8 8S.1 71.3 85. 6 TABLE C. Tests Passing the 100-mesh Ž Requirement But Failing the 30-mesh Requirement. (More than 50 Per Cent Passing 30.) Per cent of strength of standard sand Per cent | Per cent * passin assin Tension Compression Test, NO. 1%;" | #. Sieve Sleye 3-day 7-day 28-day 7-day 28-day 537 - 3.6 54.3 89.3 97,4 86.6 79.2 87.1 540 5.2 57.0. 76.3 91.0 110.2 81.2 109.4 548 - *-* - - 1.6. 57.4 101.7 110.4 113.2 91.6 i05.1 304 ---------------------------- 1.4 64.1 ; S6.6 95.3 96.5 76.0 91.4 568 ----- 3.9 55.8 S1.6 103.6 I04.3 100.0 92.5 575, -k 0.9 69.0 74.8 83.4 104.0 88.1 89.5 578, 2.0 64.9 629 86.5 98.4 58.2 Sí.6 5S2 * 5.0 54.8 | 66.5. 75.5 81.6 * 64.2 FIRST BIENNIAL REPORT. 85 TABLE c1. Tests Passing the 100-mesh Requirement But Failing in the 30-mesh Requirement. (Less Than 15 Per Cent Passing the 30.) Per cent of strength of standard Sand Per cent | Per cent, Tension Compression Test No. išj, | #. sieve sſeye 3-day 7-day 28-day 7-day 28-day 526 * -- - - ºr O.3 9.3 114.2 ---------- 106.5 119.7 114.7 555 2.9 I].1 154.1 196.4 174.7 129.7 145.() 590 6.0. 14.0 101.6 132.2 167.5 ---------- 118.3 TABLE D. Tests Passing the 100- and 30-mesh Requirements. Per cent of strength of standard sand ...! ...; Tension Compression Test No. 1. j, - i Sieve sieve 3-day | 7-day | 28-day | 7-day | 28-day ! 524 0.3 29.7 117.0 114.0 96.2 93.8 106.4 525 2.9 35.5 156.1 140.5 123.5 178.2 134.6 530 --------------------------- 0.6 25.1 82.4 •91.0 97.8 75.9 99.7 531 - 5.() 43.8 IGO.3 100.1 100.0 71.2 91.9 53? -- 0.9 17.6 106.0 106.1 103.0 141.9 130.0 533 1.1 41.9 74.3 ~ 92.9 91.1 82.2. 67.5 534 -- 0.5 31.3 80.2 84.2 98.1 88.9 75.4 535 1.8 39.3 90.3 S9.2 S9.5 84.8 83.5 536 1 5 34.5 S6.7 101.1 97.2 ------------------- 538 - - 4.5 44.8 96.2 94.7 93.3 90.6 92.7 539 1.6 48.0 47.0 74.5 85.2 59.5 69.6 541 3.3 23.6 115.1 108.1 109.5 ---------- 133.1 54? 4.6 33.1 84-0 99.0 90.6 85.2 81.7 543 2.5 30.1 75.7 88.4 S2.5 SY.5 S1.3 546 1.1 40.3 79.5 83.4 94.3 73.7 S8.9 547 2.1 49.3 82.8 78.5 93.2 70.1 83.5 551 2.3 45.4 107.8 107.1 113.2 ---------- 90.35 552 1.2 41.0 93.5 116.5 106.8 ---------- 87.4 553 2.5 49.5 95.6 106.0 105.3 92.1 S2.5 554 - 1.6 37.9. 104.5 121.9 114.3 96.3 87.4 559 1.9 47.7 95.5, 95.7 117.2 89.5 89.2 560 1.2 32.0 90.6 82.7 90.4 60.2 72.5 56] 4.3 47.2 SF.2 101.2 101.4 81.4 90.8 569 0.8; 33.4 80.5 S3.5 92.8 73.0 89.8 563, 0.4 20.7 98.7 114.5 130.5 140.1 152.3 563, O.4 39.4 97.5 93.3 109.0, IO1.6 110.4 569 0.5 34.4 73.9 74.5 92.7 65.8 55.4 570 3.3 33.2 91.5 100.5 118.0 ------------------ 572 *- 1.7 32.7 93.4 93.4 112.1 65.6 76.0 573 4.9 34.9 98.1 104.5, 119.8; 137.2 113.3 574 - - - 5.5 41.7 108.0 133.0 117.0 ------------------- 576 4.I 21.7 136.2 I54.7 135.8 137.0 133-9 57. 1.1 38.4 S3.0 94.5 91.0 121.0 111.7 579 1.7 4S.5 97.5 109.1 114.1 90.4 108.0 58C 3.3 42.9 7S.6 S3.3 $3.5 ---------- 70.5 S6 CALIFORNIA HIGHWAY COMMISSION. *º- Summary of 28-day Tensile and Compressive strength Tests, *. Tensile Colº- Table A- - Number of tests * 4 4 Per cent of tests higher than 85 per cent of standard sand. 75 25 Per cent of tests higher than 100 per cent of standard sand 25 25 Table B– * Number of tests - 6 6 Per cent of tests higher than 85 per cent of standard sand 100 100 Per cent of tests higher than 100 per cent of Standard sand 83 67 Table C– - Number of tests 8 8 Per cent of tests higher than 85 per cent of standard sand---- 87 75' Per cent of tests higher than 100 per cent of standard sand 50 25 Table C1– - - Number of tests 3. Per cent of tests higher than 85 per cent of standard sand 100 100 Per cent of tests higher than 100 per cent of standard sand 100 100 Table D– - _ - - |Number of tests - ". 35 32 Per cent of tests higher than 85 per cent of standard sand------------------- 94 63 Per cent of tests higher than 100 per cent of standard sand 50 31 Comparison of . Tensile and Cornpressive Tests—28 days. Compressive strength Nº With Tensil to Number Number of tests §. €IASIIC. Tal, of tests TOnder §:. Over compºs- 85 per ijö per | 100 per | #. cent cent cent tensile Table A– Under 85 per cent 1. 1 0. () 0. 85 per cent to 100 per cent 2 2 0 0. O Over 100 per cent I 0. 0. 1 O Table B– Under 85 per cent 0. 0. 0 () O 85 per cent to 100 per cent - 1 0. I (). O Over 100 per cent 5 0. I 4 1 Table C– - Under 85 per cent 1 1. () 0 O 85 per cent to 100 per cent * * * *º- 3. 1 2. 0. 1 Over 100 per cent 4 0. 1 3. 0. Table C#1– Under 85 per cent * * * 0. 0. 0. 0 O 85 per cent to 100 per cent * * * 0. () 0. O () Over 100 per cent #– 3. 0. 0. 3 1. Table D- - - - - - Under 85 per cent------------------------------ 2 2 0. O O 85 per cent to 100 per cent - - - 16 8 6 2 3. Over 100 per cent - - - - * * * 15 2 5. 8 || 5 Method of testing. II. CONCRETES. All concrete test pieces were made and tested in accordance with the methods described in the report of January 1, 1916. th Average breaks - ; ; Up to 1916— - High value ------------- * = 2,797 3,000 LOW Value ------------- * * 721 763 Average value --------- *-* * * * tº mº &m. 1,680 1,980 During 1916— High value ----------------- * 2,234 2,900 Low value - - 627 753 Average value 1,727 2,232 FIRST BIENNIAL REPORT. 87 Summary of results. In order to determine the relationship existing between sand tests— especially the strength tests—and their resulting concretes, 1-23-5 mix, the compressive strength of all concrete cubes made up in the laboratory during 1914, 1915, and 1916, have been tabulated, together with the tensile and compressive ratios of sand mortars, grading of sand, and kind and grading of rock. The sand gradings have been designated by the letters A, B, C, C1, and D to conform to the tables under the head- ing Sand; and the rock gradings by the figures 1, 2, and 3. - 1. Approximating a straight line. 2. Deficient in fines. 3. Excess of fines. Range in concrete strength - Tensile Ratio of Sand Mortars. Tensile ratio above 100 per cent 628 to 2,500+ 90 per cent to 100 per cent 1,022 to 2,600+ 80 per cent to 90 per cent - 1,635 to 2,500 Below 80 per cent 985 to 1,716 Compressive Ratio of Sand Mortars. Compressive ratio above 100 per cent 1,276 to 2,600+ 90 per cent to 100 per cent - 1,238 to 2,600+ 80 per cent to 90 per cent 1,163 to 2,600-i- 70 per cent to 80 per cent - - 985 to 2,500+ Below 70 per cent ~. 1,723 to 2,270 Tensile and Compressive Ratios of Sand Mortars. Both above 100 per cent -. 1,339 to 2,500+ Tensile above 100 per cent, compressive 90 per cent to 100 per Cent---------------- 1,238 to 2,500+ Tensile above 100 per cent, compressive below 80 per cent Compressive above 100 per cent, tensile 90 per cent to 100 per cent----- 1,115 to 2,373 1,276 to 2,600+ Compressive above 100 per cent, tensile below 90 per cent-------------------------- 1,635 to 1,838 Both 90 per cent to 100 per cent - - 1,410 to 2,600-- Both below 90 per cent --------- 985 to 2,500 Corm pressive strength of Mortars. Compressive strength above 5,000 1,644 to 2,500+ 4,000–5,000 1,162 to 2,600+ 3,000–4,000 1,182 to 2,500+ 2,000–3,000 985 to 2,500 Sand Grading. Class A - *** * * * * * * * * * * *m; sºm. * * *= a- - * * * * * ---j 1,679 to 2,2°6 Class B * * * *- 678 to 2,600-i- Class C 978 to 2,500+ Class C1 *. 985 to 2,345 Class D * * * * 834 to 2,600+ Rock Grading. : Class 1 ------------------------------------------------------------------------------- | 671 to 2,600+ Class 2 ------- 1,163 to 2,600+ Class 3 **. ; 753 to 2,600+ |Kind of Rock. i - Gravel ------------------------------------------------------------------------------- 678 to 2,600+ Crushed gravel - | 1,295 to 2,600+ Crushed rock | 985 to 2,600+ 88 CALIFORNIA HIGHWAY COMMISSION. The engineering societies will, I believe, finally adopt some desirable, allowable strengths that should be expected for the different concrete mixes for the different character of engineering structures in which the concrete is to be used. In the laboratory, we have, as far as possible, always made up the concrete test pieces in the mix that is to be used in the field, using the same brand of cement as is to be used in the field, and average samples of the coarse and fine aggregate that are proposed for use. The laboratory strength of concrete as used in our pavements will usually at the end of 28 days exceed 1,700 pounds per square inch in compression, and although this minimum strength has not been specified, the materials that have failed to give such a strength have not been regarded as acceptable. 222 road metal samples tested for— Geological classification. - Weight per cubic foot loose. Weight per cubic foot compacted. Specific gravity. Per cent absorption. Abrasion, Deval test. 350 asphaltic cement samples tested for— Specific gravity—U. S. Department of Agriculture Bulletin No. 314, page 4. Penetration—American Society for Testing Materials. Volatilization at 325°—Bulletin No. 314, page 19. Residue from 325° test—Bulletin No. 314, page 19. Penetration of residue—See penetration above. Solubility, carbon bisulphide—Bulletin No. 314, page 25. Solubility carbon tetrachloride—Bulletin No. 314, page 27. Solubility 86° naphtha-Bulletin No. 314, page 28. Per cent mineral matter—Bulletin No. 314, page 25. Fixed carbon—Bulletin No. 314, page 30. 780 asphaltic surface samples tested for— Density. Density after laboratory compression. Per cent bitumen. Per cent mineral aggregate. Granularmetric analysis of mineral aggregate. By careful selection of materials and by means of frequent daily samples, the asphaltic surfaces laid by the California Highway Com- mission have been of uniformly high density, as shown by samples taken from the surface of the finished pavements. The average density has been in excess of 2.25 and the minimum in excess of 2.20. CALYX CORE DRILL. Within the past few months, it has been possible for the testing lab- oratory to make tests of samples taken from the finished pavement. This has been done by the use of a Calyx core drilling outfit, which cuts a 44-inch cylinder. This core is cut out of the pavement by the use of chilled steel shot. The laboratory has not as yet received a sufficient number of these cores to make possible a complete report on this new Plate XXXV. Drilling Machine on State Highway. Plate XXXVI. Calyx Core Drill on Truck. FIRST BIENNIAL REPORT. 89 method of sampling, but the outfit as far as it has been used has given very satisfactory specimens for compression tests. This core drilling outfit has been mounted on a light motor truck and pictures of this machine are shown on Plates XXXV and XXXVI. The drilling power is furnished by a 3-horsepower gasoline motor; the steel core cuts by grinding on the steel shot. Where the coarse aggregate of the concrete pavement is extremely hard and tough, the drilling takes from 30 to 40 minutes. The average concrete pavement can be drilled in from six to fifteen minutes. The drilling of concrete pavement five or six years old made with gravel which consists largely of indurated sandstone required from 64 to 10 minutes. Samples made of broken rock from a chert quarry were bored in from 10 to 12 minutes. Concrete made from boulders of extremely hard andesite required from 30 to 40 minutes. The actual time required for boring will be somewhat of an indication of the wear resisting qualities of the pavement, although we have not as yet sufficient tests with this machine to demonstrate how valuable the time feature of the test will prove to be. - - The test pieces, however, are in splendid condition for compression tests and, as far as this work has been carried, the indications are that our finished pavement made with a 1:24:5 mix at the end of three or four years has a total compressive strength in excess of 3,000 pounds per square inch. - To date, the laboratory has only tested pavement constructed of three different kinds of aggregate; namely, broken rock, sandstone gravel and volcanic rock gravel, but these test pieces, taken from different parts of the highway along a stretch twenty miles in length, have all shown a total compressive strength in excess of 3,000 pounds per square inch. The borings taken from the pavement are valuable also in furnishing an exact record of the thickness and, also, in showing how thoroughly the concrete was mixed at the time of laying. - The holes made in the pavement after the removal of the core are about 5% inches in diameter and are usually repaired with neat cement and broken rock. When this mix is used, the cement sets up and gains sufficient strength in a few hours to make unnecessary any careful plan of protecting or curing the repaired holes. ROAD OIL. The testing laboratory has received and tested from 1912 to the present date approximately 1,000 samples of road oil. Part of these samples have received only the physical tests unless they showed incon- sistent or unusual properties. The methods used in testing are as noted 90 CALIFORNIA HIGHWAY COMMISSION. below. The Bulletin No. 314, referred to, is published by the Office of Public Roads and Rural Engineering, U. S. Department of Agriculture. Tested for— Per cent of water and sediment, by use of centrifuge with solvents. Specific gravity, Bulletin 314, pp. 4–7. Solubility carbon bisulphide, Bulletin 314, p. 25. Solubility carbon tetrachloride, Bulletin 314, p. 27. Flash point, Bulletin 314, p. 17. Burning point, Bulletin 314, p. 17. Float test, Bulletin 314, p. 9. (Engler) viscosity, Bulletin 314, p. (Osborne) adhesive, described later. Loss at 212°, Bulletin 314, p. 19. Loss at 315° for 5 hours, Bulletin 314, p. 19. Float test after 315° test, Bulletin 314, p. 9. Per cent of asphalt described later. Fixed carbon, Bulletin 314, p. 30. As most of our road oil samples have been tested for use in the thin bituminous wearing surface, I will describe the tests required in our specifications for such oil. - The first Spanish explorers who ventured to the western coast of America wrote of the discovery of strange springs of “black pitch” that they found oozing out of crevices in the sandstone hills and form- ing pools of black sticky liquid in the hollows of the ground. This “black pitch’’ was the heavy crude asphaltic oil escaping from some of the vast underground stores of oil, the development of which in the past twenty years has made California one of the great producers of petroleum, road oils and asphalts. The native Indians knew of this “black pitch” long before the arrival of the Spaniards. They had used it as a cement on the cord that bound the stone spear or arrow head to the wooden shaft. They also used the pitch to fasten the bottomless basket to the rounded stone when a new stone mortar was to be made. Many thousands of years before the time of the Indians, the wild animals also discovered these pools of sticky black liquid. Near Los Angeles there are the remains of a very large pool in which powerful animals became entangled much as flies are caught on tanglefoot paper, and this brea bed, known as the “Death Trap of the Ages,’’ has become a mecca for the geologist because of its wonderfully preserved skeletons of animals now extinct. This pool of sticky oil caught and held and still preserves the skeletons of the giant sloth, the saber-toothed tiger, and the great elephant, animals that in a former geologic age roamed over the hills and valleys of western America. This history should be interesting to the user of asphaltic road oil for two reasons. First: the oil is shown to have been of importance, due to its being decidedly sticky. Second: although there are many chemi- cals that readily dissolve asphaltic oil, these enemies do not exist natur- ally and the heavy oil is very stable chemically when exposed to the attacks of weathering. The asphalt found in the “Death Trap of the * ſ. FIRST BIENNIAL REPORT. 91 Ages,” after exposure to weathering for thousands of years, is not dead, inert material but is still a fairly “live” cementing asphalt that has hardened under thousands of years of exposure to the elements. The finished road surface will be subjected to the crushing effect under the heavy loads, to the impact of the iron-shod horse, the grind of the steel-rimmed wheel and the pulling-upward suction of the rubber-tired wheel. These make up the physical forces of modern traffic which forever tend to crush, grind, displace and scatter the road surface. There is no material that unaided can long continue to withstand such an attack. To these destructive agencies of traffic are added: the erosive action of storm waters, the disrupting forces of frost, the theft of material by the sweeping winds, and the melting and drying action of the hot sunshine. In the preparation of specifications for asphaltic oil for road build- ing the road engineer has three problems presented. First, he must have requirements controlling the purity of the product, i. e., he desires an oil that is free from foreign material and products of decomposition produced during refining. Second, he must control the importani features of the chemical composition of the oil. Third, he must control the physical properties of an oil so that it will actually perform its proper function in the road construction. } The first employment of the asphaltic oils of California for road work was in the application of the light crude oils as dust layers on dirt roads and the use of the refined asphalt for sheet asphalt work. The need of a heavy oil for the thin wearing surface on water-bound and other macadam construction caused the oil refineries to produce a road oil carrying about 80 per cent of 80 penetration asphalt. This oil was heavier than the natural crude and yet not so viscous but that it would penetrate between the rocks which make up the macadam. The asphaltic oil used in the construction of this bituminous wearing Coat is known in the California market as 90/80 asphaltic road oil. This means that the oil contains approximately 90 per cent of asphalt of 80 penetration. The trade classification of a road oil is a very broad one and includes many oils not satisfactory for the bituminous wearing coat. This type of construction requires a sticky oil, namely, one of high cementing value, and it also requires an oil that is not so viscous but that it can readily be applied to the road and also will allow the easy absorption of the rock screenings. The road oils of California are the by-products of the oil refineries. The crude oil as it comes from the well may contain only a small percentage of asphalt or it may contain as high as 85 per cent of 92 CALIFORNIA HIGHWAY COMMISSION. asphalt. The crude oils contain various amounts of the light and heavy fuel oils and lubricants. These are removed by distillation and the asphaltic road oil is the residue after the removal of the lighter oils. Some crudes carry high percentages of lubricating oils. Other crudes may be a combination of the light fuel oils and the heavy asphaltic base. The road oils containing heavy lubricants when tested will show relatively high viscosity as compared to their sticky or adhesive properties. +. -- The chemical analysis of the oils seems to furnish little information of use to the road builder in the shape of data as to how the oil will behave as a road surfacing. The road oil used by the California Highway Commission is required to pass specified limits for viscosity and for adhesive strength. The results of these tests, give the road builder a measurement of the two most important physical properties of the oil. Specifications for Road Oil. The following are the specifications of the California Highway Com- mission for road oil for the bituminous wearing surface: GENERAL REQUIREMENTS. The asphaltic oil is stored in a tank or tanks held for the California Highway Commission. A representative of the California Highway Commission takes samples of this oil as the tank is being filled. The tank is sealed and held until the tests are completed. When the tests show the oil to satisfy the specifications, it is drawn on, subject to the orders of the California Highway Commission. The oil is kept under seal and this seal broken and oil car loaded under the inspection of a representative of the California Highway Commission. - • The asphaltic oil is shipped in tank cars of standard measurement loaded to gallonage capacity. Such cars are properly equipped with light steam coils that do not permit any leakage of water or live steam into the oil. SPECIFICATIONS. (a) The oil shall be a natural oil with an asphaltic base, treated to remove water or sediment or the residuum of such an oil from which the volatile material has been removed by distillation, and shall be satisfactory to the engineer. It must not have been injured by over- heating, and it must not be obtained by adding solid asphalt to lighter oils or distillate. - (b) In determining the quantity of oil delivered, the correction for expansion by heat shall be as follows: From the measured volume of oil received at any temperature above sixty (60) degrees Fahrenheit Plate XXXVII. Calyx Core Drill. Plate XXXVIII. Concrete Cores Prepared for Compression Test. FIRST BIENNIAL REPORT. - 93 an amount equivalent to four-tenths (0.4) of one (1) per cent for every ten (10) degrees above sixty (60) degrees Fahrenheit shall be subtracted as the correction for expansion by heat. For the purpose of measuring oil, a temperature of sixty (60) degrees Fahrenheit shall be deemed a normal temperature. (c) Deduction will be made for water and sediment in exact propor- tion to the percentage of water and sediment found therein, and the oil shall not contain over two (2) per cent of such water and sediment. To determine the sediment in residuums having a gravity more than 16° Beaumé, it is sometimes best to vary the proportions of testing mixture to the residuum. It is preferable to use 25 cubic centimeters of heavy residuum and 75 cubic centimeters of solvent. (d) After being freed from water and sediment, the oil shall contain not less than ninety (90) per cent of asphalt, having at a temperature of seventy-seven (77) degrees Fahrenheit a penetration of eighty (80) degrees District of Columbia standard. The percentage of asphalt shall be determined by heating twenty-five (25) grams of said oil or residuum in an evaporating oven at a temperature of four hundred (400) degrees Fahrenheit until it has reached the proper consistency when the weight of the residuum shall be determined and the per cent calculated. 4. (e) The oil shall show an adhesive strength of not less than three hundred (300) seconds when tested at a temperature of seventy-seven (77) degrees Fahrenheit by the Osborne adhesive test apparatus at the laboratory of the California Highway Commission. Early in the construction of the thin bituminous wearing surfaces it was known that the physical properties of the asphaltic oil played a most important part in the behavior of the oil in highway use. The sticky or cementing property of the oils and the viscosity property were the two physical features that required careful measuring to determine if the oil should be used or not. In order to determine directly the stickiness or adhesive property of road oils, and to establish a basis for comparing them, an attempt was made in our laboratory to develop a mechanical device for gaging their adhesive quality. Experiment finally resulted in the apparatus known as the Osborne Adhesive Machine. In principle the device is a journal lubricated with the oil under test and operated by a constant pull of a given weight, causing the outer cylinder to revolve. The time required for three complete revolutions of this cylinder is taken as the measure of the adhesiveness of the oil. A constant given temperature of 77° Fahrenheit is maintained by means of water flowing through the fixed cylinder or axle. - It has been found that oils which require 300 seconds for the adhesive test will bind the bituminous surface tight to the concrete base and 94. CALIFORNIA HIGHWAY COMMISSION. cement together the pieces of crushed rock screenings that make up the mineral aggregate of the wearing surface. Oils that have a specific viscosity of less than 100 (Engler test) are oils that can be applied under pressure as a spray at a temperature of from 250° to 350° Fahrenheit, and such oils when applied are not ‘‘hard.” They will readily incorporate the covering of stone screen- ings and build up a wearing surface of the proper thickness. The oldest concrete highways with thin bituminous wearing surface constructed by the California Highway Commission have been under heavy traffic for over four years. The bituminous surface is dull black in color, and after exposure to weathering and traffic for this length of time the asphaltic binder is found to be “alive” and sticky and the surface readily mends itself if cut in any way. The bituminous wearing surface on concrete, roads as far as observed has rarely rolled or become wavy under traffic as is so often the case of oil-surfaced macadam. It gives good traction to the rubber-tired traffic and cushions the hard concrete for the horses. The analysis of samples of this wearing surface after a few years of traffic show it to contain about 9–12 per cent asphalt and the mineral aggregate conforms to a stone filled sheet asphalt, i. e., a sheet asphalt containing about 10 to 30 per cent aggregate retained on a 10-mesh sieve and passing a 3-inch sieve. QUARRY SITES. As geologist for the commission, I have made reconnaissance surveys for available road building materials along all of the proposed high- way routes where there were few or no developed commercial plants. A quarry site and sand and gravel bed were taken up for the Cali- fornia Highway Commission under the mining law for the work on the Ridge Route on L.A-4-B, C and D. Quarry claims were also taken for the Highway Commission along the route from San Diego to the Imperial Valley and the eastern part of San Diego County, where there were few available supplies of road material. FIRST BIENNIAL REPORT. 95 APPENDIX G. THE PURCHASING DEPARTMENT. By R. C. PENTER, Purchasing Agent. As the mileage of constructed highways has increased, the mainte- nance department has continuously grown. This, together with the many day labor and convict camps, more than anything else, is respon- sible for the development and expansion of the purchasing department. Several years ago, when construction was wholly by contract and maintenance not yet necessary, the number of orders ànd letters issuing from this department was not more than one-fifth of the present daily output. The records of few departments will show a more diversified range of purchases. Requisitions for office supplies, engineering equip- ment and supplies, road material, road machinery, maintenance machin- ery, machine tools, camping outfits and groceries, clothing, boots and shoes, wagons, harness and leather, hay and grain, gasoline, distillate, oils and greases, and explosives are but a few of the many reaching the department daily. The methods of procedure, upon receipt from the Highway Engineer of requisitions approved by him, vary. With a few exceptions—always whenever advisable—competitive bids are received. This invariably is true except in the case of such commodities as oil, gas and greases, minor office supplies and occasional emergencies, where delay would be more serious than a lack of competition. The cost of competitive bidding is considerable, but the saving therefrom is enormous. That is why, even at the expense of an occasional delay, purchases without competition are kept at an absolute minimum. It is the aim of the department at all times to keep in close touch with the trade. The result has been most gratifying and has justified the effort. This is proved in our purchases of those commodities whereon there is no competition, and of others where there of necessity can not be any. Records of current prices of such articles obtaining in each locality throughout the state are kept always at hand, and an order can be issued at a moment’s notice with the knowledge that such order carries on its face the best price obtainable. While on the subject of records, it is well to state that our aim has been to keep them at the lowest minimum consistent with efficiency. The system finally evolved is not ideal, but it is as nearly so as is pos- sible without adopting one of those elaborate ones, which would necessi- tate a considerable and unnecessary increase in the clerical force. Such systems frequently defeat the ends they seek to attain. 96 CALIFORNIA HIGHWAY COMMISSION. Aside from purchasing, the department has two other important duties. All invoices, before going to the accounting department for payment, are first checked and approved as to terms and prices, and all freight bills are carefully scrutinized. For this purpose, a complete file of current tariffs always is at hand. The other duty is traffic, and at least during the past two years of rate increases, car shortages and congestion, it has not been an unimportant one. We must not only buy, but deliver. Always in the West, there is a car shortage sometime dur- ing the year. Usually this begins about the middle of the summer and extends through the fall into the early winter. It is at its worst while grapes, grain and fruit are moving, and includes both closed and open cars of certain classes of which we feel the lack principally in the movement of cement, rock, sand and gravel. Since the entry of the United States into the war with the consequent immense increase of traffic on the railroads, this car shortage has increased immeasurably. It is now at no time wholly absent, and at many times is stringent in the extreme. - - Under these conditions, we have had to do the best we could. We have kept in close touch with the railroad companies, and when cars were available, have loaded them promptly, moving them as rapidly as possible, and released them without delay. In the case of rock and sand, we at times have been able to relieve critical situations by taking flat cars and putting sideboards on them ourselves. As result of these efforts and our vigilance, all work under way has proceeded without avoidable delay. The cost of moving the vast amount of materials on the various pro- jects under way has increased enormously. For several years the com- mission has enjoyed special rates on virtually all roads in California. Many of them published tariffs extending one-half of class rates on all incidental C.L. and L.C.L. movements, and special commodity rates which were often considerably less than one-half of tariff rates, on such items as cement, rock, sand, gravel, oil and asphaltum. On June 25 last, a special increase of 25 per cent in all rates went into effect. This increase worked no particular hardship on this commis- sion, for it in no way abolished or affected our special commodity rates, and on such shipments as were made subject to class rates we still paid but half of the new or increased rate. - - On August 5, however, all special rates throughout the United States were abolished. We now pay full tariff rates on all shipments. In many cases, notably on rock and sand, there is being assessed five times as much as there was before August 5. The total average increase in rates on all shipments will equal perhaps 250 per cent. November, 1918. FIRST BIENNIAL REPORT. 97 APPENDIX H. ACCOUNTING DEPARTMENT. By H. B. WEAVER, Chief Accountant. The accounting system of the California Highway Commission was installed by Klink, Bean & Co., Accountants, of San Francisco, and is modeled after systems used by large business concerns. This system with minor changes made necessary by changing conditions, has proven very efficient. It provides well-defined channels through which all transactions pass, with a complete check on such transactions. The first chief accountant of the commission, under this system, was Frederick H. Cass, of Sacramento, and upon his death in October, 1912, John H. Small, of Acampo, was appointed and served until March 1, 1918. As the state highway acts of 1909 and 1915 provide that the interest On the state highway bonds shall be paid by the counties (in propor- tion to the amounts spent in the various counties), all charges that can be, are segregated by counties and the general expense is later dis- tributed in proportion to the amounts so charged. A detail of charges by counties will be found in the “Statement of Condition” as of June 30, 1918, which is included in this report as Appendix “C.” For the First State Highway Fund, the total amount of the expendi- tures has been segregated by counties: For the Second State Highway Fund, only the direct charges have been thus segregated, the general expense to be distributed when the total amount of the fund has been expended. The maintenance of the completed highways, which is financed from the Motor Vehicle Fund, becomes of increasing importance as the mile- age of the completed highways increases. The original accounting system did not provide for “maintenance” charges but accounts have been established following the general arrangement of the “construction’’ accounts. Complete detailed rec- ords are kept of all expenditures from the Motor Vehicle Fund and data in regard to such expenditures, segregated by calendar years, is shown in this report under Appendix ‘‘J.’’ -- Accounts have also been provided for the expenditures from special appropriations, federal aid and contributions by counties and cities, as shown in the Statement of Condition, Appendix “C.” The arrangement of the construction accounts, covering expenditures from the state highway funds, is shown by the chart on page 98. { 7–43766 98 CALIFORNIA HIGHWAY COMMISSION. HlGHWA TCompleted Swiettahways Y A iſſ's 2|righways)n Procese PLANT Accoutits 5|Sand plants H]headquarters 2:5table taupment er. #." #: 25 Campravipment H 23|Laboratorytºpment- EShop fauipment H Histoce Accounts THEvaerwesºmes - |Salaries 2}5upplies - 3|Traveling frpenees §. Stºry Salaries HB] ai r B Legal ~~~H. Fees Maintenance Traveling Expenses laries Hºheadquarte-HalPurchasis Dept. H: raveling Expenses alaries HD]Accounting Deph Hä. fºpenses T]fixer Charges 25tationers 8:5upplies [3]Telephoned-Telegraph 4|Postage & Express 5|Autotrobºke|Marmºrance. G|Traveling Expensee General Office Salaries [8]Highway Bulletin Salaries —G. Laborators Supplies Traveling Expenees —ºbvisions it witHsame as 43 –72]courmes H5ame as 43. OFFICE FUND-headquarters STATEMENT #.". Of Dunsmuir O CONIDITIOT Ilişacramento San Francisco WSan Luis Obispo Fresno Willos Angeles -- Willios Angeles H ASSETS H Engineenng Dept. HE General Expense —£30FFICEFutb-Divisions fi/Thorial BANK OF BOM! LL5 Headquarters CASH ACCOUNTS ||||Willits Dunsmuir |5acramento San Francisco |V|San Luis Obispo Vºfresno ViljLos Angeles - –5||Division Batiks 57 rº - | readquarters Revolving find FORTILA fºotbal_5Afſh: headquarters Revolving fund H5NoUCHERS PAYABLE –5]=sſ&TEHGHWAYFUND Hºsſaſehighway FUND HºlsTATE GETERALFUND £HART (DF —ſº DorATIOris ‘gºº:: CONSTRUCTION ACCOUNTS º (CALFDRNA HIGHWAY —£2|MoroRVEHICLE Futid º: APP2OPºſiCº [[]M M||55 | []N Chapler 704-Acts 1915 —giº: Appºzoppºrtoft chapter 746-Acts ſets ||9||8 PPEpilubºis; on rinst State Highwasaords FEDEEAL AiD 2CAD ACCCU) fiT Spºclau. APPEopelATuoti Chapter?A3-Acts 1917 FIRST BIENNIAL REPORT. 99 The expenditures of the commission come under four main subdivi- sions, namely, contract payments, salaries and wages, traveling and incidental expenses of employees, and purchases of material, equipment and supplies. While the method of handling these various classes of expenditures necessarily varies in detail, they all follow the same gen- eral course through the department and, broadly, the steps taken are as follows: Contract Payments. Contract payments are based on estimates, prepared monthly or semi- monthly, by the Division Engineer in whose division the work is located. These estimates are forwarded to headquarters office, checked, and com- bined in schedules, as described below under “Purchases,’’ and the schedules then follow the same course as schedules covering other expenditures. - Salaries and Wages. Pay rolls are prepared monthly at headquarters and in each division for staff employees, and weekly in each division for laborers and other employees on day-labor work, and they are likewise combined in sched- ules at headquarters and passed on for final audit and payment in the regular manner. In the case of the pay rolls for day-labor employees, it is not feasible to require the employees to await the regular course of payment, and, therefore, division revolving funds have been provided, by means of which theses employees are paid weekly. The pay rolls of the several divisions are then forwarded to Sacramento, assembled in schedules, and passed for payment in the regular manner, and when warrants are received from the Controller, the revolving funds are reimbursed. Traveling Expenses. Under this head are included traveling expenses of employees, together with small contingent items, the accounts for which are pre- pared by the employees who incurred the expense, and from time to time these accounts are assembled in schedules and the schedules take the regular course. In some cases, to avoid inconvenience or unneces- sary hardship upon the employee, advance payment is made from the revolving fund. Purchases. As far as possible, all purchases are made through the headquarters purchasing department, the authority of the division engineers to make purchases being confined to emergency transactions which are necessary to avoid delay to the work, and to services and commodities which neces- sarily have to be obtained locally. Purchases are made at headquarters upon requisitions from the division or department requiring the goods. It has been the fixed policy of the commission to advance no bills for 100 CALIFORNIA HIGHWAY COMMISSION. payment until the goods are received in satisfactory condition, and a regular channel of audit has been established to insure this. Under this policy, after satisfactory quotations have been secured by the purchasing agent, a purchase order is issued to the vendor, setting forth the quan- tity, description and price of the goods desired, and bearing shipping directions for their delivery. The original of this order is sent to the vendor; two copies are sent to the division office, which, in turn, for- wards one copy to the employee in the field, to whom the goods are to be shipped, and the fourth copy is retained at headquarters for the files of the accounting department. Upon the receipt of the goods, they are carefully checked against the purchase order, both for quantity and quality, and a “receiving record’’ showing the receipt and condition of the goods is made up and forwärded to the division office. The division office makes note of the delivery upon its copy of the purchase order and the receiving record is then forwarded to headquarters. In the meantime the invoices (in triplicate) for the goods have been forwarded by the vendor to the headquarters office, and, after the prices and freight rates have been checked by the purchasing department, they are passed on to the accounting department. These invoices are then checked against the purchase orders and receiving records, and appro- priate accounting references and other data necessary for the proper segregation of the expenditures are attached. The invoices are then grouped by divisions and listed on “Claim Schedules” made up in quadruplicate, one copy of which, without copies of the invoices, is retained by the accounting department as a file reference, another copy, with the triplicate copies of the invoices attached, is forwarded to the division office concerned, in order that the division may be in possession of full information regarding all disbursements affecting its work, while the original and duplicate schedules, with the corresponding copies of the invoices attached, are approved by the Highway Engineer and the Auditing Committee of the commission, after which the original is sent to the State Board of Control, the duplicate being retained by the accounting department. Like all other claims against the state, the highway claims go through a final checking and audit by the Board of Control, and with its approval affixed, are advanced to the State Con- troller, who draws one warrant, in favor of the disbursing officer of the commission, for the total amount of the schedule. Upon receipt of this warrant the disbursing officer deposits it to the credit of the commission in one of several Sacramento banks and the accounting department then draws checks in favor of the several parties whose claims were listed on the schedule. These checks are signed by the Secretary, as disbursing officer of the commission, and are counter- signed by the Highway Engineer, or, in the case of schedules made up FIRST BIENNIAL REPORT. 101 in the division offices (as explained below), by a division engineer, after which they are forwarded to the vendors, thus completing the transaction. * Division Purchases. Transactions covering purchases made by the divisions follow the same general course, except these schedules are made up in the division offices, the triplicate copy being retained by the division and the other three copies being forwarded to headquarters. These schedules then follow the same course as headquarters schedules. Advance payments from the division revolving funds are sometimes made for truck and team hire, and to a limited extent for other pur- chases, when the vendors are unable to extend credit. Such items are included in division revolving fund accounts, which are sent to head- quarters to be scheduled, the schedules being handled in the same man- ner as schedules covering the day-labor pay rolls. The system above described is seemingly overelaborate, but in reality it is simple of administration and no more burdensome than is necessary in the expenditure of public funds. It must be admitted, however, that the paying process is slower because of the various checks and safe- guards than would be the case in a private business enterprise. As an offset to the longer time required in which to get his payments, the vendor usually takes into consideration the surety of payment. Exclusive of pay rolls, the accounting department audits and advances approximately 3,000 claims each month. The following table shows by months the sums withdrawn from the state treasury, from both the State Highway Fund and the Motor Vehicle Fund, and is given merely to indicate the volume of business handled by the commission: WITH DRAWALS FROM STATE TREASURY FOR STATE HIGH ways. State Highways Funds (First and Second) and Motor Vehicle Fund. 1912 1913 1914 1915 1916 1917 1918 January –- $111,411 $113,401 $48S,442 $589,446 $233,412 | $449,440 February --------------|----------- | 157,346 185,654 : TIS,307 339,727 62,979 361,855 March ----------------- $85,603 122,134 151,481 446,515 : 31s,095 142,289 373,462 April ------------------- 29,041 11S,548 126,081 406,14s 50s,589 137,480 454,986 May -------------------- 38,922 147,076 299,376 844,3S2 448,408 190,060 490,084 June – -- 175,17S 249,087 504,202 241,773 133,872 735,734 July 71,757 131,159 || 1s1,939 $24,662 : 390,192 259,389 ---------- August ---------------- 49,376 170,038 578,425 951,780 2$1,754 242,742 i--------__ September ------------- 61,558 18S,6S3 604,4S9 G11,22S 2S5,547 296,982 --------__ October ---------------- 66,414 311,433 442,466 790,641 240,725 573,119 ---------- November -------------- 42,766 20S,610 1,001,802 972,219 195,841 3S4,5S4 i------____ D3Cember -------------- 111,32S 190,463 481,732 759,495 267,618 408,311 ---------- Totals-------------- $556,768 $2,032,079 $4,415,933 $S,318,021 $4,107,715 lsº 2,S$5,561 Average per month----- | 46,397 | 169,339 367,993 603,168 342,309 25,485 477-93 t { 102 CALIFORNIA HIGHWAY COMMISSION. > Analysis of Maintenance Expenditures. APPENDIX J. From January 1, 1914, to December 15, 1914. General main Totals Improve- Repairs? s -------- --- - --~~~~- - - ---------- - - - ------ ments! * nances - Pavement base $1,015 27 | $1,23s 74 sits 32. JPavement Surface - 11,641 74 6,028 95 2,647 60 Shoulders 3,732 61 145 50 3,591 56 Guard rail 28, 34 2 50 . Culverts and drains * * * 1,119.66 1,370 89 1,469 96 | Grading B,307 23 - * Roadsides 82 OO 252 10 Trees ---- 4 50 TotalS $22,898 51 $7,810 42 $8,742 54 $39,451 47 Equipment - 43,583 94 Administration and engineering-- --- -º- 4900 44 Total expenditure $83,935 85 From December 15, 1914, to December 15, 1915. Improve- * General R s? Imainte- Totals ments! - epalrs nances - Pavement base $28,523 97 $17,324 10 $3,182 35 Pavement surface --- 48,500 33 30,093 83 22,248 37 | Shoulders 67,682 26 1,549 31 10,225 06 Guard rail —-g 89.1 W1 17 60 465 68 Bridges and trestles * * 14,086 62 185 45 38 25. Culverts and drains 10,183 64 1,854 36 5,099 10 Grading — 2,661 45 ------------- 198 50 ROadsides 26,163 43 1,863 21 11,697 51 Patrolling 371 36 3,271 75 Trees --------------------------------------- 597 '74 329 46 ^x, Totals $199,291 15 $53,259 22 $56,756 03 || $309,306 40 FQuipment - - - - ** = = = 140,211 35 Administration and engineering * * -----------| *5,376 65 Total expenditure ------------------ * * * * * * * * * * $454,894 40 *Improvements: New or additional construction or betterment. - *Repairs: Work incident to rebuilding and restoring to original condition. *General maintenance: Work incident to preserving the road. Includes minor repairs. *Administration and engineering: These charges are paid in the first instance from the State Highway Fund and that fund is later reimbursed from the Motor Vehicle Fund. Delays in making such transfers explain the apparent inconsistency in the amounts for the several periods. The total charges for administration and engineering for the four years are $223,291.88, which is 8.9 per cent of the total expenditure from the Motor Vehicle Fund for the same period. FIRST BIENNIAL REPORT. 103 From December 15, 1915, to December 31, 1916. Improve- General Repairs? inte- Totals ments | Repair" | * 3. Pavement base -- | $181,205 82 $21,482 27 $17,824 00 Pavement Surface - 120,165 57 25,237 74 68,014 84 Shoulders - - - - - ------ * 82,965 78 617 52 29,144 08 Guard rail - - 11,361 94 205 52 2,690 79 Bridges and trestlº S_. 13,191 64 3,127 03 2,636 83 Culverts and drains 28,063 36 14,785 18 28,722 93 Grading - 136,805 79 21,455.82 48,910 26 Roadsides - * . . 50,65S 42 1,779 91 26,254 24 Patrolling - *- A- - 22,589 58 Trees -- - -- 4,525 84 ------------- 669 72 Totals $628,947 16’ $88,690 99 || $247,487 27 $965,125 42 Equipment, - - --- -- * * 159,588 63 Administration and engineering 465,098 05 Total expenditure - - i - = = ** * * * * * - - - - - - - - * * * * * * * *- $1,189,812 10 From December 31, 1916, to December 31, 1917. **, General -- Improve- :--º Repairs? inte- Totals ments. . . . epairS º Pavement base $13,271 65 $4,678 07 $47,174 29 Pavement Surface - 63,662 97 13,177 61 102,995 02 Shoulders 16,861 30 4,587 47 46,291 77 Guard rail 1,109 40 S5 00 5,980 75 Bridges and trestles - i 15 65 9,243 25 6,720 34 Culverts and drains : S,819 51 1,502 49 24,125 94 Grading : 25,281 35 1,003 54 $8,868 63 ROadsides - -- 2,439 63 7,001 62 24,930 73 Patrolling - 7,795 82 Bridge Operation -- m - - 1,800 00 Trees -------------------------------------------------- * = 6,525 62 - Totals ---------------- $134,461 46 || $41,279 05 || $363,208 91 $538,949 42 Equipment - 81,616 99 Administration and engineering-- * *- - 4151,916 74 Total expenditures -- $772,483 15 *Improvements: New Or additional construction or betterment. *Repairs: Work incident to rebuilding and restoring to original condition. ſº *General maintenance: Work incident to preserving the road. Including minor repairs. *Administration and engineering: These charges are paid in the first instance from the State Highway Fund and that fund is later reimbursed from the Motor Vehicle Fund. Delays in making Such transfers explain the apparent inconsistency in the amounts for the several periods. The total charges for administration and engineering for the four years are $223,291.88, which is 8.9 per cent of the total expenditure from the Motor Vehicle Fund for the same period. 104 CALIFORNIA HIGHWAY COMMISSION. APPENDIX K. CONVICT LABOR CONVICT ROAD work IN DIVISION I. By FRANCIs G. Som NER, Division Engineer. The “Convict Labor Law’’ of California, enacted by the legislature in 1915, provides that convicts may be employed on the construction and maintenance of the state highway system. It is provided that the Department of Engineering shall supervise the road work and provide the necessary camps and commissariat; also that the Prison Directors shall have control over the discipline and conduct of the men. Convicts so employed shall be granted additional good time allowance, not to exceed one day for each two calendar days they are away from the prison. 3. - The first step in the experiment of working prison labor on state roads was taken when on September 20, 1915, a camp of 47 convicts from San Quentin was established by the Highway Commission in northern Mendocino County. This camp was shortly afterwards increased to 60 men and followed by the installation of another camp of 60 men. From time to time the capacity of the camps was extended, reaching the maximum in July, 1917, of 225 men. Descriptive. The first section of road selected by the Highway Commission to be constructed by convict labor embraces a portion of the coast trunk line, extending from San Francisco to the city of Eureka, in Humboldt County, distant 297 miles. The section under discussion is 33.10 miles In length, extending from what is known as Rattlesnake Summit, a point on the old overland road to Eureka, to the Mendocino-Humboldt county line. This stretch may be considered as being the most important link on the coast route in northern California, inasmuch as it eliminates the Bell Springs grade, which, attaining an altitude of 4,100 feet above sea level datum, has always been a formidable barrier to tourist travel at all seasons of the year. The route lies along the east bank of the South Eel River, traversing a country as rugged and picturesque in character and as remote from civilization as any portion of California; in a virgin state, sparsely settled by homesteaders and accessible by trails only, built by engineers during the survey of the proposed road. The camps were first located centrally, being situated 23 miles from the nearest coast port, Union Landing, the base of supplies during the major part of the construction of the road. The men were shipped Plate XXXIX. First Convict Camp in Mendocino County (60-man camp). º Plate XL. State Highway, Mendocino County, Convict Work. FIRST BIENNIAL REPORT. 105 from the prison to Fort Bragg, the nearest railroad station, 45 miles distant, and transported by motor trucks to the camps. The construction progressed in either direction, until in the Course of time the camps became separate units, and as the work progressed to the north and to the south, more accessible bases of supplies were reached and the transportation problem became easier. Upon the completion of the work described in the foregoing, the convict labor work was extended from Rattlesnake Summit to Arnold, a station on the Northwestern Pacific Railroad, distant 24.53 miles. Three miles of the new work has been completed, and although the new stretch involves some heavy mountain construction, the work is very much facilitated by the existing old roads and the fact that the camps in their new winter quarters will be of easy access from the base of supplies. It is anticipated that the construction as planned will occupy the season of 1919, when 57.53 miles will have been constructed by convict labor. tº Construction. A vast amount of preliminary work was necessary before the actual construction of the road could be prosecuted, including the reconstruc- tion of an abandoned road from the coast to the camp sites, distant 15 miles; the erection of footbridges (wire suspension) and temporary wagon bridges at several crossings of the South Fork of the Eel River; the installation of 45 miles of telephone line, together with the con- struction of pack trails for the transportation of supplies and the moving of camps in advance of the construction of the road. Inasmuch as the camps were inaccessible during the winter months owing to the impassable condition of the roads and the entire absence of bridges on the Eel River, the transportation of supplies for the year had to be accomplished during the summer season, thus requiring motor truck service and, therefore, side roads of substantial construction. The transportation difficulties encountered and the inaccessibility of the country may be better judged when it is explained that the crossings of the canyons involved the erection of nine bridges of from 130 feet to 300 feet in length, some of them being from 130 feet to 150 feet in height, and the grading of the road was accomplished in advance of the construction of the bridges. Naturally such obstacles created the necessity of transportation of construction supplies and equipment and food supplies by roundabout detours. The transportation difficulties were further aggravated by the frequent suspension of steamboat transportation to the bases of supplies on the coast for long periods, thus necessitating almost prohibitive hauls from distant points. It is needless to say that such conditions were not only trials at times to the conduct of the camps, but the source of much added expense to the 106 -ºr CALIFORNIA HIGHWAY COMMISSION. cost of the work, and consequently a severe test of the first experiment with convict labor in California. - “A . . . The permanent work accomplished to date consists of the clearing, grubbing and grading of 36% miles of road, together with the installa- tion of pipe and concrete culverts and retaining walls. . Twenty-seven miles of road are from sixteen to eighteen feet in width and nine miles from twelve to fourteen feet. The work also involved the maintenance of the road during its construction, which extended over a period of three years and included the removal of thousands of yards of slides; also the maintenance of the side roads used for the transportation of supplies and men; all of which is included in the analysis of the cost of the construction of the road. ! On August 15, 1917, the road was completed to a width of twelve feet, thus affording a connection with the state highway at the Mendocino-Humboldt county line, and on this date Governor Stephens and party, including the Highway Commission, made an official inspec- tion of the road, camping overnight in the redwoods near Bridges Creek. On July 1, 1918, the road was completed to a proper width and opened for travel. -- Organization. The Highway Commission is represented at each camp by a super- intendent, who has full charge of the work, assisted by two or more foremen. A resident engineer is engaged to lay out the work and, with the assistance of a commissary clerk, orders and disburses the supplies to the cookhouse and to the men. The prison authorities are represented by a head guard, who, with two or more subguards, controls the discipline and conduct of the men. The men are not guarded and the guards are not armed, there being no firearms in evidence either in the camps or on the work. A camp physician is constantly in attendance at the camps and a dentist is engaged as the occasions demand. - The day’s work consists of eight hours on the grade, Sundays and holidays excepted. - - The men are housed in tents and frame buildings. The camps are well lighted and heated. The sanitation conforms to the regulations of the Commission of Immigration and Housing, which covers every- thing conducive to cleanliness, health and comfort, including bathing facilities. - - - The food is wholesome and plentiful, the “convict rations” not being at all in evidence. The cooks are selected from the convict labor and the services satisfactory. - Plate XLI. Tractor and Grader Trimming Road. i º º: Plate XLII. State Highway, Mendocino County, Convict Work. FIRST BIENNIAL REPORT. 107 Method of Construction. The work is being accomplished by means of pick and shovel and station cars, wheelbarrows, steam shovel, teams and scrapers and road graders operated by tractors, convict labor being employed in all methods with the exception of the operating crew on the steam shovel. The drilling is accomplished by both hand labor and machine drills. Throughout the entire construction more or less rock has been encountered and drill and powder have been an important factor in the prosecution of the work. The blasting operations have been extremely hazardous, involving the use of 250 tons of powder, and the men have displayed a remarkable aptitude for this class of work, both in caution and efficiency. Only one accident has occurred, for which no one was to blame; unfortunately, this accident proved fatal. Conduct of the Camps. The honor system is employed, the men being unguarded at all times, and it may be said the men have as a rule readily responded to the honor system; this, in the face of the diversified personnel of the camp, which comprises men serving sentences from a few months to life, and for crimes ranging from petty larceny to murder, men of all national- ities, from all grades of society and of all trades and professions. The behavior of the men, both on the work and in camps, and their efficiency on the work, compares favorably with free labor camps, and the exceptions are as few. As a rule a spirit of cheerfulness and con- tentment prevails; however, occasionally the sense of freedom is irre- sistible, although the percentage of escapes is small. Undesirable characters, such as malcontents, shirkers, etc., are promptly returned to the prison. - --- Analysis of Costs. Cost Per Man Day. Guards ––––– * *-* = sº- m. º. º. º. ars, sm ºm * * * * * * * * * * * * * * * * * * * * * * me sº- * * * * * * * * $0.120 Transportation —- .191 Clothing .267 Subsistence .930 Housing .130 Escapes — - *- sº amº, sºm. .031 Medical ----------------------------- g .053 Tobacco ----------------------------------------------------- .048 - $1.870 Cost per effective man day------------------- 2,530 Total number of man days—— - - - - - 162,458 Total number of men shipped to camps------------------- 770 Number of escapes (27 captured) ––––––––––––––––––––––– 3S The cost per effective man day is arrived at by the application of the cost per man day of the percentage of time not employed on the actual construction, which includes time for men employed about camp, lost time on Sundays, holidays and on account of sickness. 108 CALIFORNIA HIGHWAY COMMISSION. QUANTITIES OF worrº DoNE. - IExcavation—Solid and loose rock_______ - 4,11,125 cubic yards Earth and clay--------------------------- 336,375 cubic yards Total ––––––––– - - - 747,500 cubic yards Dxcavation per man day------------------------------ 4 cubic yards Average cost per cubic yard, $0.669. EXPENDITURES. Excavation, including clearing and grubbing--- - - $500,077 10 Culverts, retaining walls, etc.--------------------------------- 50,150 00 Total expenditure by convict labor----- $550,227, 10 . Total miles of road construction__ 36.5 Cost per mile--------------------------- -- $15,074 70 The expenditures for excavation, culverts, retaining walls, etc., include overhead and engineering, preliminary work and all else inci- dental to the construction of the road. The bridges were constructed by free labor and their cost is not included in the foregoing statement of costs. Conclusions. The theory of convict labor is based on the assumption that a certain percentage of prisoners will make good if given the opportunity. The spirit, muscle and brains are there, but the success or failure depends entirely upon the plan of organization and its management. The proper application of reward for good conduct and diligence and of punishment for misbehavior and indolence bears an important relation to the successful administration of the organization. The efficiency of the system of dual authority as prescribed by the convict labor law is problematical, the serving of two masters success- fully being one of the unsolved problems in all walks of life, and this phase of the organization is one that merits serious consideration in the future enactment of laws relating to convict labor. The analysis of costs shows an effective cost per man day nearly equal to the laborer's wage during normal times; a logical mathematical conclusion for the reason that ordinarily the free laborer simply ekes a livelihood from the going wages in normal times and the convict laborer is given even a greater share of the necessities of life. However, in all labor camps there is a certain percentage of skilled labor com- manding a higher wage, thus affording a margin offsetting in a more or less degree the difference of efficiency, if any, as compared with free labor. The comparison in efficiency is affected by the times and the labor market, and the writer does not feel qualified to establish a definite coefficient. - The prison labor has during the “work or fight” period constructed an important link of the California state highway through an excep- tionally rugged and remote country and under severe climatic condi- Plate XLIII. State Highway, Yolo County, Yolo Trestle. Plate XLIV. State Highway, Yolo County, Yolo Trestle During Construction. FIRST BIENNIAL REPORT. 109 tions, as the work was continuous through three winter seasons of heavy rainfall. The results from both humanitarian and economic stand- points may be considered as being satisfactory, and it can be said that the men from the California State Prison at San Quentin have “done their bit toward winning the war.’’ November, 1918. CONVICT ROAD WORK IN DIVISION II. By THOMAS A. BEDFORD, Division Engineer. Preparing a satisfactory article on convict labor is about as difficult as successfully handling the psychological enigma himself. Almost every convict who has been in confinement for any length of time has justified himself in his own mind and condemned society for punishing him while the big thieves and wholesale murderers go scot free. He soon becomes extremely sensitive and temperamental and must be handled like a child, but, when carefully handled and properly treated, he becomes an efficient laborer in a road camp. If there is a spark of manhood left in him, it comes to the surface and he is prepared, as well as may be, to re-enter society. In July, 1916, a convict labor road camp was established in Yuba River Canyon, Sierra County, California. ^ The work was heavy, running 8,500 cubic yards per mile, mostly solid rock. Food and accommodations were excellent and conditions in gen- eral ideal, but results were very unsatisfactory at first. The first nine months were spent in trying to work under a law which gave the prison authorities and the Highway Commission equal authority in the supervision of the convicts and their work. “No man can serve two masters,” much less a convict and the project was a failure until March, 1917, when the prison authorities gave to the Highway Commission full control. Since that time the organization has been so perfected and the interest of the convict in the work so improved that we are doing the work now for one-half of what we would pay a contractor, or about thirty-five cents per cubic yard for earth excavation and fifty to sixty cents for rock excavation. There are very few skilled laborers among the convicts on whom much dependence can be placed. It is, therefore, a problem of getting the most out of a lot of simple-minded laborers, the personnel of which changes rapidly. Machinery and other refinements must be introduced very slowly and to a limited extent only. We, therefore, use only simple methods and equipment such as powder, pick and shovel, the wheelbarrow, and cars with track, and the plow and scraper to a limited extent. The things most essential are complete control of the forces, full co-operation on the part of the prison authorities and a competent 110 CALIFORNIA HIGHWAY COMMISSION. superintendent. There are very few men capable of handling convicts who are willing to take a position as superintendent and live with them. The position requires a young, big-hearted chap, full of energy, who can use tact and firmness and still be pleasant and respectful. Another matter of great importance is the selection of convicts. There should be no short-termers, that is, those with not less than six months to serve, and they should, of course, all be healthy, able-bodied men. Some of our best men are life-termers and some good men are third and fourth termers, though they are long-termers. The short- term “repeater” is a weak, dissolute character, who is physically and mentally unfit for work. At present (November, 1918) the camp contains about one hundred convicts, four guards, four foremen, one superintendent, one time- keeper, one engineering inspector, who is really a foreman on reinforced concrete work, two truck drivers and a head cook. Guards are not used as foremen but for police duty only, except that when it is necessary to scatter the men to such an extent that four fore- men can not see them all, the guards are depended on to see that the men keep working. Guards seldom make good foremen. They do not understand road work. It is out of their line of business. Furthermore, the placing of the guards in authority who are appointed by the prison authorities is recognizing the dual authority which will soon destroy the organization and cause all kinds of trouble in camp. The most economical and satisfactory housing is well-built shacks con- structed of lumber and tar paper. Tents are expensive and unsatis- factory. The bunk houses are twenty-five to thirty feet wide by fifty to sixty feet long and are heated by two large wood stoves in winter and ventilated by large screened windows, covered by shutters hinged on the upper edge. Each man is provided with a steel spring cot, a cotton mattress and plenty of blankets and warm clothing, and he is required to keep him- self and his clothing clean. Shower baths are provided with plenty of hot water, and the convict is given all the good wholesome food he can eat and plenty of tobacco. He is better cared for than he would be in any free labor camp. Criti- cism has been made that we treated them too well but we know, by experience, that it pays to treat them well. Between July, 1916, and December, 1917, we built 7.6 miles of road in the Yuba River Canyon at a cost of $11,340.00 per mile, or about $1.30 per cubic yard. This work was mostly rock. “, Plate XLV. Bridge on State Highway, Shasta County, Over Pit River. Plate XLVI. Bridge on State Highway, Siskiyou County, Over Sacramento River at Dunsmuir. FIRST BIENNIAL REPORT. 111 Between December 1, 1917, and the present, another section of thir- teen miles has been built at a cost of about $5,500.00 per mile, or about 40 cents per cubic yard. This work was mostly earth. We are building a road twelve feet wide in excavation and fourteen feet wide in embankment and all in a rough, rugged, mountainous country, where transportation of men and supplies is expensive in sum- mer and almost out of the question in winter. Enough supplies must be stored in camp by the middle of November to last until the middle of April. - Just now the convict camp is a very efficient and money-saving institu- tion. Comparing it with free labor, the convict work day costs about $1.50, while free labor costs $4.00 per day and the convict will do more work than the average free laborer available at the present time. The cost of convict work day for the period of five weeks, ending September 7, 1918, was as follows: *. Cost of Convict Workday. Distribution Convict Time. Food - .632 Total convict workdays–––––––––– 2444 Hauling - — .049 Sundays and holidays------------ 352 Transportation –––––––––––––––– .056 Sick days - * * 126 Guarding ---- .127 Bad weather____ - - - sº- Guard maintenance .023 Cook house days 224 Clothing \ . Camp maintenance-------------- 5S Tobacco - - - .126 General - - - 11 Medical ( - - Escapes : - - Total convict days____________ 3215 Depreciation of camp equipment .030 - Hauling of camp equipment_-__ - - - 1.113 × 3215 Miscellaneous ––––––––––––––––– .010 — = $1.46 Camp maintenance __ .009 . 2444 Preparing and issuing food----- .051 Cost of convict workday. Total $1.113 November, 1918. - - - - CONVICT ROAD WORK IN DIVISION III. By W. S. CARUTHERs, Division Engineer. Two sections of state highway in Division III have been worked by convict labor during the years 1916, 1917 and 1918. The work on both sections has been under conditions not entirely suited to the use of convict labor, though such lack of success as there may have been is partly due to the restrictions and regulations under which such work has to be carried on under the California Convict Labor Law. The cost per convict working day has averaged approximately $1.50 for an aggregate of 44,000 days. In the more remote camps of other divisions I understand that the cost per convict day has been somewhat higher. The first camp (an honor camp) was established in Calaveras County between Valley Springs and San Andreas, one hundred miles from the prison at Folsom. - 112 CALIFORNIA HIGHWAY COMMISSION. The work consisted of grading, graveling, concrete and corrugated pipe culverts and wooden guardrail. The section is 10 miles in length and was what might be called a light grading job as far as yardage is concerned. For a mile or more on each side of the Calaveras River some fairly heavy grading was encountered, the greater percentage being in rock. Throughout the balance of the section though the grading was light, a great deal of it was in rock where it was necessary to shoot and handle several times the amount of material shown by the cross-sections. In 75 per cent solid rock the grading cost Was–––––––––– $0.584 per cubic yard In 50 per cent earth, 50 per cent shale and solid rock cost WaS –––––––––––––––––––––––––––––––––––---------- 0.384 per cubic yard The total expenditures on the section were $68,195.65. Of this amount $13,500 was spent in the construction of five concrete bridges for Calaveras County and $18,000 to $20,000 in graveling, dragging and maintaining. The grading, culverts and guardrail cost $35,000, or $3,500 per mile. s The adjoining section on the west, Cal-24-A, is now being graded by contract at a total cost of $53,853, or $5,574.90 per mile. The grad- ing on this section is lighter and of easier construction than the section built by convict labor. While the condition of relatively light grading made it difficult for us to work convict labor to advantage, nevertheless the results secured were by no means unsatisfactory as compared with the probable cost had we used free labor throughout. In El Dorado County, however, our experience has been different. The Calaveras camp was an honor camp while the El Dorado camp, on the other hand, is an armed camp. The men are brought out each morning from the prison by trucks and taken back at night. The long distance traveled each way leaves an unsatisfactory number of hours on the work. The men are of an inferior grade and the use of convict labor in El Dorado County has been very unsatisfactory and extremely expensive, and its continuance was justified only on account of the shortage of free labor due to war conditions and also the fact that such free labor as has been available has been inefficient and high priced. In order to work this kind of labor satisfactorily the camp should be an honor camp and there should be sufficient pick and shovel work to keep a large gang constantly busy, as this class of labor can certainly be worked to the best advantage when up against a bank. The conditions under which convict labor has been employed in Division III have not been ideal for this class of labor and there has been no real opportunity to determine the efficiency of this class of labor. November, 1918. Plate XLVII. Bridge on State Highway, Yolo and Solano Counties, Over Putah Creek. Plate XLVIII. Bascule Bridge on State Highway, Sonoma and Marin Counties, at Petaluma Creek. FIRST BIENNIAL REPORT. 113 APPENDIX L. BRIDGE WORK ON STATE HIGHWAYS. By R. E. DODGE, Office Engineer. Shortly after the beginning of active work on the state highways in 1912, the California Highway Commission requested the several counties to assist in the work by providing rights of way and bridges. This request met with a gratifying response, and, as a result, the greater part of the new bridges on the state highways have been built by the counties or their cost has been paid wholly or in part by the counties. The bridges built by the counties represent a very material contribution toward the financing of the state highways, roughly estimated to be at least $3,000,000. The exact figures are not available as the counties have not reported the cost of bridges built by them. The California Highway Commission set forth its general policy in respect to bridges in a vote adopted in September, 1912, as follows: “(a) All such structures are to be designed by competent engineers and the plans, specifications and workmanship be subject to the inspection and approval of the Highway Engineer of the Department of Engineering. “(b) The width of such structures, exclusive of sidewalks, if any, shall not be less than 21 feet in the clear. “(c) Concrete bridges shall be designed to sustain, in addition to the dead load, a uniform live load of 150 pounds per square foot of roadway, and the floor System to carry a 20-ton traction engine. “(d) Steel bridges of spans less than 150 feet shall be designed to sustain, in addition to the dead load, a uniform live load of 100 pounds per square foot of roadway, and the floor system to carry a 15-ton road roller; for spans in excess of 150 feet, a uniform live load of S5 pounds per square foot of roadway, the floor System to carry a 15-ton road roller as in the case of spans of less than 150 feet. “(e) Trestles shall be designed to sustain, in addition to the dead load, a uniform live load of 150 pounds per square foot of roadway, and the floor system to carry a 15-ton road roller. “Further, that the commission hereby declares itself in favor of concrete structures whenever such structures are consistently possible because of their substantial permanency.” - In the practical interpretation of these general requirements, certain difficulties and inconsistencies have appeared. It became evident that to design long span concrete bridges for a live load of 150 pounds per square foot required unnecessarily expensive structures. Owing to the rapid increase in the weights of motor vehicles, it appeared that a 20-ton tractor was none too heavy a load for the floor systems of steel bridges as well as concrete bridges. Also, the abrupt jump in loading from 100 pounds per square foot to 85 pounds per square foot at a span length of 150 feet led to inconsistencies in the strength required in bridges of only slightly differing lengths. The consensus of opinion among prominent writers on the design of highway bridges favors a 8–43766 114 CALIFORNIA HIGHWAY COMMISSION. live load requirement which gradually decreases as the length of the span increases. As a result of these considerations, it has become the practice to design both steel and concrete bridges of spans less than 50 feet and the floor systems of all bridges for the 20-ton tractor or 150 pounds per square foot, and long span bridges for a 20-ton load assumed to occupy an area of 8 feet by 15 feet, together with a uniform load of 60 pounds per square foot on the remaining floor area. These loadings are also recommended to the counties. - The initial organization of the California Highway Commission did not include a bridge department, so that when bridge work began to develop, it fell to the lot of the office engineer at the headquarters office to carry it on. This arrangement has continued to date, and a squad organization in the headquarters office has developed as a result, with an assistant engineer and from two to three draftsmen almost constantly employed on bridge work. From its nature, the bridge work has called for a greater proportion of the time of the office engineer than has the regular highway work, which is more routine in its nature. Since the work started, nearly two hundred fifty sets of plans for county bridges have been checked and over one hundred structures have been designed by the Highway Commission forces. All of the checking has been done in the headquarters office. A few of the designs have been made in the various division offices and reviewed by the head- quarters office, but the greater part of the designing has been done at headquarters. Seventy structures, other than short-span bridges and culverts built from standard plans have been built or are being con- structed under the direct control and supervision of the California Highway Commission. In a number of cases, the commission has fur- nished inspectors for bridges built by the counties. The construction work is carried on by the same division organizations which handle the road work. The commission has furnished plans and handled construc- tion for bridges paid for wholly by counties and jointly by the state and counties. It has handled construction for the counties at their expense and from plans furnished by them. It has furnished plans and speci- fications from which counties have built the bridges. The total cost of bridges constructed under the direct supervision of the commission amounts to nearly $1,400,000. Short descriptions of a number of bridges of various types constructed on the state highways since 1912 follows: Yolo Causeway. This consists of 2,432 feet of wooden trestle on creosoted piles and 14,106 feet of concrete trestle including a bascule span of 80 feet clear channel, a total length of structure of 16,538 feet or 3.13 miles. The work was completed in 1916. Designed and constructed by California -*. Plate XLIX. Bridge on State Highway, Santa Clara and San Benito Counties, Over Pajaro River. - Plate L. Bridge on State Highway, Yuba County, Over Yuba River at Marysville. FIRST BIENNIAL REPORT. - 115 Highway Commission. Cost $433,000. Entire cost paid by state. The concrete trestle was constructed by the unit method. The bascule span is of an unpatented type. See Plates XLIII and XLIV. Eel River, South of Scotia, Humboldt County. Two steel spans of 302.5 feet and six concrete approach spans of 46 feet each. Completed 1916. Designed and built by California High- way Commission. Cost $121,000. Cost paid jointly by Humboldt County and state. See Plate LI. Rock Creek, Mendocino County. A three-hinged timber arch span of 150 feet. Completed 1916. Designed and built by California Highway Commission. Cost partly paid by Mendocino County. A structure designed to meet special con- ditions, erected by a cableway, and built of redwood timber. See Plate LII. Pit River, Shasta County. A reinforced concrete arch span of 242 feet. Completed 1916. Designed and built by California Highway Commission. Cost $37,000. Cost partly paid by Shasta County. The longest concrete span in California. See Plate XLV. Sacramento River at Dunsmuir, Siskiyou County. A reinforced concrete arch bridge, one span of 180 feet and two spans of 114 feet. Completed 1916. Designed for Siskiyou County by A. V. Saph. Built by California Highway Commission. Cost $45,000. Cost paid entirely by Siskiyou County. See Plate XLVI. Putah Creek, on Line Between Yolo and Solamo Counties. Two spans of 150 feet, three hinged reinforced concrete arches. Com- pleted 1916. Designed by F. A. Steiger for Yolo and Solano counties, and built by the two counties at their expense. See Plate XLVII. Petaluma Creek, on Line Between Sonoma and Marin Counties. A bascule bridge with 120 feet clear channel. Completed 1917. Designed and built by California Highway Commission. Cost $102,000. Paid for out of fund contributed by Napa, Sonoma and Marin counties and the state for building the ‘‘Black Point Cut-off.” The bascule is of a type not covered by patents. See Plate XLVIII. Pajaro River, on Line Between Santa Clara and Sam Benito Counties. A steel bridge with concrete floor, one span of 200 feet. Completed 1915. Designed by A. M. McCray for San Benito and Santa Clara counties, and built by the two counties at their expense. See Plate XLIX. 116 CALIFORNIA HIGHWAY COMMISSION. Yuba River at Marysville, Yuba County. A reinforced concrete girder bridge having 40 spans of 50 feet each. Completed 1916. Designed by Reynolds & Whitman for Yuba County and built by the county. See Plate L. Arroyo Quemado, Santa Barbara County. A reinforced concrete arch with two spans of 109 feet. Completed 1917. Designed by Mayberry & Parker and F. L. Johnston for Santa Barbara County and built by the county. See Plate XXV. Santa Ynez River, Santa Barbara County. A steel bridge with concrete floor having seven steel spans of 162 feet and concrete approaches. Completed 1918. Designed by A. V. Saph for the California Highway Commission. Built by the California High- way Commission. Cost $175,000. Santa Barbara County paid part of cost. See Plate XXVI. South. Fork of Santa Clara River, Los Angeles County. A steel plate girder bridge with concrete floor, four spans of 60 feet. Completed 1916. Designed and built by Los Angeles County. This type is more usual on railroads than highways. See Plate LIII. Santa Clara River, Los Angeles County. A steel truss of 200 feet span, with concrete floor. Completed, 1916. Designed and built by Los Angeles County. This is a typical modern steel bridge designed for the heaviest traffic. See Plate LIV. Stomy Creek, Glenn County. An earth-filled arch bridge of 13 spans carrying from 70 to 100 feet. Built by Glenn County. Completed 1914. A typical earth-filled arch bridge. See Plate LV. The foregoing bridges do not constitute a complete list of even the larger bridges, but are examples of the types which may be considered standard construction. A small number of bridges of unusual types have been constructed. The prevailing type of bridge on the state high- ways is the short span reinforced concrete girder. As mentioned before, the several counties have assisted in the con- struction of the state highways by constructing a large number of bridges. On the whole, the results of this co-operation have been fairly satisfactory, but in some instances a disposition to build bridges accord- ing to the practices prevalent before the development of present-day traffic conditions has manifested itself. In a few cases, it has been impossible to prevail upon those responsible to change their ideas and build for present-day traffic, with the result that there are some new bridges on the line of the state highways which are not up to the usual Plate LI. Bridge on State Highway, Humboldt County, Over Eel River Near Scotia. Plate LII. Arched Timber Bridge on State Highway, Mendocino County, Over Rock Creek. FIRST BIENNIAL REPORT. - 117 standard. While these have never been officially taken over as part of the state highways and the commission disclaims responsibility for them, yet they constitute a part of the traffic route and may easily become a source of embarrassing controversies in the future. - The practice in checking county designs has necessarily been con- fined to passing upon the structural strength of the proposed bridges and the adequacy of foundations and waterway. Even though the appearance of the structure might not be entirely satisfactory or the design might obviously involve unnecessary expense, the fact that the bridges were obtained at all only by the voluntary co-operation of the counties and the necessity for sparing local feelings made it impossible to take up such points except in the few cases where advice was asked for. - - - Some practices have appeared which were open to criticism. One of these was the method of calling for plans for a bridge from anyone who wanted to volunteer them. The usual result was that a number of ill- digested designs were presented, the better bridge engineers did not appear at all, and the best salesman rather than the best engineer got the job. Another result was the attempt to develop special designs with catchy talking points or patented details and to push them whether or not suitable for the place. This practice at times caused the staff of the California Highway Commission much unnecessary work and embarrassment. Another cause for poor designs has appeared in the thoughtless habit of some boards in not allowing adequate time for their engineers to prepare plans. Plans can be turned out overnight in an emergency, but something is always sacrificed in so doing. The contact with the methods of handling bridge work in the several counties has brought forcibly to mind the fact that each county is a law unto itself in the kind of bridges it builds. It would appear that the public interest and safety would be promoted if legal authority were lodged in some branch of the Department of Engineering to pre- scribe and enforce general standards of construction; to review plans and specifications and see that they were adequate and the designs safe and economical; to compel proper inspection during construction; to prepare designs, if requested, on such terms of compensation that it would compete with the engineer in private practice only on the basis of quality of work; and to exercise the power of condemnation of unsafe structures should the local authorities fail to act. 118 CALIFORNIA HIGHWAY COMMISSION. APPENDIX M. MINT CANYON ROAD IN LOS ANGELES COUNTY. [Excerpt from minutes of California. Highway Commission, March 20, 1917, p. 3552.] “A letter from A. J. Hill, County Counsel of Los Angeles County, was read dated Los Angeles, Cal., March 7, 1917, accompanying a resolution of the Board of Supervisors passed March 7 asking the state to take over and maintain the Mint Canyon road as a state highway, and it was “Voted, That the following reply be made by the secretary : “The Honorable Board of Supervisors of Los Angeles, Cal. “GENTLEMEN : * * “The California Highway Commission acknowledges the receipt of a resolution of your board adopted March 7, 1917, reading as follows: “‘WIIEREAS, The county of Los Angeles has entered into contracts in the sum of three hundred fifty thousand dollars ($350,000.00) for the construction and improvement of the Mint Canyon road ; and “‘WHEREAs, The present conditions of the county finances are such that such contracts can not be completed or such road constructed ; and . . “‘WHEREAs, The people of the state of California recently voted a bond issue in the sum of fifteen million dollars ($15,000,000), a portion of which is to be used in the construction of a road between the city of Ilos Angeles and the Antelope Valley by the most practical route ; and “‘WHEREAs, Only a portion of the cost of such Antelope Valley road is by law to be paid from state funds, the balance being contributed from county funds; and * “‘WHEREAs, Certain work has been done on the said Mint Canyon road by the county of Los Angeles, which work would, we believe, be accepted by the state of California as the contribution of Los Angeles County, leaving the sole. cost of the completion of said road and bridges on said Mint Canyon road, to be borne by the state of California alone; and “‘WHEREAs, The cost of the completion of said Mint Canyon road is such that more money will be available for the construction by the state of the road to Imperial Valley and other roads; and “‘WHEREAs, The construction of said road is highly important to the county of Los Angeles; and “‘WHEREAs, The taking over by the state of California of the Mint Canyon road would relieve the county of Los Angeles of its obligations on the three hundred fifty thousand dollars ($350,000.00) of contracts, and would result in the immediate completion of said road, thereby giving a paved highway to the citizens of the Antelope Valley ; and “‘WHEREAs, The building of said road by the state of California would save the taxpayers of Los Angeles County more than four hundred thousand dollars ($400,000.00) ; now, therefore, “‘Be it resolved, That the state of California be requested to construct and maintain said Mint Canyon road as a state highway. “‘Provided, however, that the adoption of this resolution shall not be under- stood or construed as waiving, directly or indiréctly, the right of this board or the county of Los Angeles, to our share of the state license tax on automobiles, nor the right to demand any portion of the proceeds of the state highway bond issue for the purpose of constructing and improving the Arroyo Seco road and other roads in this county.’ “After careful consideration of the foregoing I am directed to reply that the commission will lay out and take over as a state highway the so-called Mint Canyon road from Saugus to Palmdale, complete its construction and maintain it on the understanding that said road is the road referred to in section 4 of the State Highways Act of 1915 in the following language : “an extension connecting Antelope Valley in the county of Los Angeles, with the city of Los Angeles, by the most direct and practical route’; “Provided, however, that the county of Los Angeles shall secure and pay for all rights of way heretofore under negotiation ; and provided, further, that the county shall be responsible for all obligations growing out of any pending and Plate LIII. Bridge on State Highway, Los Angeles County, Over South Fork of Santa Clara River. Plate LIV. Bridge on State Highway, Los Angeles County, Over Santa Clara River. FIRST BIENNIAL REPORT. 119 existing contracts for the construction of portions of said Mint Canyon road or arising out of any other contracts relating to work or materials for such con- struction, and shall hold the state harmless from any claims or complications arising out of any such contracts, it being the intention hereof that the county shall cancel or otherwise terminate any such pending and existing contracts and shall be responsible for all valid claims arising on said contracts.” Pursuant to the foregoing vote, the commission has constructed 10.6 miles of concrete pavement between Seeley’s ranch and a point two miles north of Acton. Northerly from this point for nearly two miles -the rough grading has been done and culverts completed. Plans for a reinforced concrete bridge across the Santa Clara River have been approved and the work is about to be advertised. The work remaining to be done on this road consists in the grading and paving of approximately 8.6 miles south of Palmdale and 1.9 miles at the Santa Clara River, including the proposed bridge. 120 CALIFORNI,\ HIGHW.AY COMMISSION. APPENDIX N. CALIFORNIA HIGHWAY COMMISSION. Forum Building, Sacramento. June 5, 1918. MARSHALL DE MOTTE, Esq., Chairman, State Board of Control, Sacramento, California. My dear Mr. DE MOTTE: In response to your inquiry of last week I have had tabulated the cement purchases of the California Highway Commission from the year 1912 to date, and I am attaching hereto a copy of the tables. The purchases in each year are shown separately, and I have tried to make the tables explain themselves. The compilation of the figures has been a considerable task, but I believe the tables to be without essential error. In arriving at the mill base price, all possible available data as to freight rates were used. Only in rare cases does the commission see the freight bills actually paid by the cement companies. A recapitulation sheet is also attached. In the year 1912, almost at the beginning of the actual work of the commission, an attempt was made during conferences at which prae- tically all of the cement companies were represented to fix a mill base price for the cement required for the state highway to be built. It was represented by the commission that the general adoption of the concrete type of pavement would depend largely on the price which the state would have to pay for the cement. After much discussion the cement companies concluded that they would not or possibly could not make such a contract with the commis- sion and stipulated that bids should be called for for the cement needed for each particular section of highway placed under contract, they to bid on the cement at point of delivery (nearest freight station to point of use) and not at the mill, but they agreed orally that the price during the life of the work should not exceed the sum of $1.40 per barrel at the mill. The price for the sacks was to be added to the bid price, with, of course, the usual rebate on the return of the sacks to the mill. Until the spring of the year 1917 the cement companies kept their agreement absolutely as the tables show. Since then, without previous notification, the mill base price has advanced in some cases to $1.50 and sporadically also the companies have made further advances. Plate LV. Bridge on State Highway, Glenn County, Over Stony Creek. Plate LVI. State Highway, Siskiyou County, Along Klamath River. FIRST BIENNIAL REPORT. 121 An officer of one of the companies stated, when asked the reason for the increased mill base price, that the companies considered that the oral agreement was nullified when the $18,000,000 fund was exhausted and the request of the commission that the agreement should be held to include the duration of the state highway constructive period was not granted. As stated, the agreement was only an oral one and there is room for argument as to when it should terminate. During the active period when the arrangement was adhered to fully (1912 to 1916 inclusive), the commission paid an average mill base price of about $1.33 per barrel. I)uring the whole period, 1912 to April, 1918, the average mill base price paid for cement delivered was $1.345 per barrel, but this average price will be greater when all the 1917 and 1918 purchases are delivered. It is understood now that so far as the northern mills are concerned the price will be $1.95 mill base because of the price established by the United States Government. The Colton mill (California Portland Cement Company), in southern California, however, on April 15, 1918, established a mill base price of $1.63 per barrel on an estimated require- ment of 310,000 barrels, and doubtless this company will receive the commission’s business wherever the freight rates will permit. In comparing the prices paid by the California Highway Commission at points of delivery where used with those paid by other departments of the state and by counties and municipalities, it must not be forgotten that the California Highway Commission, during the whole period under discussion, has enjoyed special freight rates established by the several railroads. The commission has paid one-half (4) the “class rate’’ when the class rate was less than the “commodity” rate or a combination of the class rate and the commodity rate, and in any event the lowest rate obtainable under the combination of class and commodity rates. This special arrangement has resulted in a saving to the state of possibly 40 per cent over the rates paid by the general public. The business relations between the commission and the companies have been satisfactory in all respects and it is a pleasure to be able to say that although the cement was rigidly inspected at the mill, at the commission’s laboratory, and in the field, of the total delivery of nearly one and three-quarter million barrels during the years 1912—1917 inclusive, not a single barrel could be condemned because of failure to comply with the specifications. Yours very truly. A. B. FLETCHER, Highway Engineer. 122 CALIFORNLA HIGHWAY COMMISSION. STATE OF CAL For NIA, * DEPARTMENT OF ENGINEERING, CALIFORNIA HIGHWAY COMMISSION. Recapitulation of Analyses of Cement Purchases for the Years 1912 to 1917, and a Portion of 1918. Total Year jº | *| #. 1912 --------------------- -º-º-º: sº me. 142,465.50 $176,683 24 $1 240 1913 242,514.50 317,376 36 I 309 1914 - - 677,790.25 898,403 48 1. 325 1915 355,005.50 485,267 31 1 367 1916 ----- 110,000.00 150,958 28. I 371 1917 --- 220,794 321,064 61 1 4.54 1918 31,552 44,995 75 1 426 1,7S0,211.75 $2,394,749 03 $1 345 FIRST BIENNIAL REPORT. 123 ••țgsoºſ "$gyptȚng uwitte H • A • H 2,09 gelsetgorſ $$$$$soºſ uy}}?ğțëtïggeou embu I et qȚI. ºff}}##,####### ‘$ùțötřng geïſºſičů ■ Uſ oogpoua， uºs žu ſpĻĶng 29}{9930 oos joueuſ， ugš !?uțþīķm oogțoue） ues ſºuȚpȚțin oogțoue））;JºſS ** |× *2*299'9. tę Oſz’ış ºlay - Ogºgºº'zºt 03ſg） 5OzºtOĶĪNĀ 99，999.93Ozºta .98€.33 Q（z） &&3\\ſººſg_: 998&& ț¢3$ț¢ŞITºº !• Ogºgºſ， 03:$${}}?Oºº T• į&3 9ț¢gº;Q3Lºº I• 999;gt Ǻğ26;QĮ02° U• 39，9 98，326;ſſ02*t• ¡ ¿?! 99:8&&gſOzºlſ• gſ???I 90.ºſſº. 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(* 4u00) 4.161 HWĀĀ NI SASÝHOH^ā INGIRAO JO SISÄTYNW uoțgspunnoo KelauſºțH ſºțuluoj į Tºgo ſºțuluogțȚ80 go 94045 LJ ∞ Lae : ） : ● ● : : � ، […] Q 062 09T uO pțg Á qțqueño „t, “6 Kaſſ Oț9-H*}\, •}}}}Ķīnp Tř0ī-q Æ, I, º į ººļ00 99 41,562 .3țy ğģį-Ž 4.1, '92� &l, _% ſººſ Aſí, ºſſ ſſſſſ gi, '$2'?ņy ALȚ, * 9T 9ump p-rewſ go GºyeG OGT-Cl 6-97 I-CI 131 * „ZU6T ſººſ uſ gesęųo） na queŲ190 yo grºßtºuſ, 998 g.reppt q_o^ KøX 10） º et qeuț aqq o K L Țpeõx ſou ſou ootud ſpełāA Į (eq º eoțid esſaq (Itſ + Jeppt q [nJ, 88 ºoons . ğgzºg66'ſ， 92 vºtſ: “Ay - zggº tº № gaeae - și ſ- . Ģg-t6ºT„O6* [ [6° {pºolteſ § §§§）.9%. 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ĶIĢ!?!!94. §• Ž4%.∞; ∞， ∞, ∞�•94,“ I60° z znao ºſſues $$$$$$$Ķ{• 999, †El 9° 1șUgº T© º pae,�ſºĻſ e §§， 4！• 62ý” 9... •96* T£ © ® : ?�Kqț0 ºuţý #:### ##-# : ;;; ）ŹŹ ź$žíş $ží， quț¢;&### čáºğðă º ş öğ• İş • ståg čģ•†2°2$��'uðț¢o řğ TIĶÅesagpºue Aſſ (eq94.99†gºquțoaſ ºº qº00TIȚIIsețqțqu`atī6SHŌICICII9.22ȚKaº Aţţāq *A.8I6T HW&Ä NI SOESWHOHIMá ĽNºſſºſo ¿O SISÄTYNY uoț88țuriloo KøMuſºțĘ ețuirogy tao wțuxogțȚ80 go 94845 ſº tº ºr ſº tº ſº tº º º 'º - Gº G 99%. 9ȚŻ,3 ºs (q.q. 090* ſ; UQ pțg Aqțņūrėño 9غ qaae {)-2-uoſ 132 CALIFORNIA HIGHWAY COMMISSION. APPENDIX O. VOTE O N STATE H [G HVVAY BON DS. 1910–$18,000,000 issue 1916—$15,000,000 issue Counties Fº p For Against For Against Alameda 10,199 5,828 63,268 11,561 5,47 Alpine 28 3 49 5. 9.80 Amador 304 364 1,655 288 5.74 Butte 1,557 831 5,195 1,427 3.64 Calaveras 454 420 1,321 399 3.31 Colusa #08 398 1,516 458 3.31 Contra Costa ----- 1,275 782 7,513 1,653 4.55. Del Norte 193 39 '739 37 19.97 TSI DOrado 1,608 283 1,576 431 3.65 FreSITO 2,092 2,843 12,325 5,058 2.06 Glenn 3.48 285. 1,761 515 3.42 Humboldt, -- 1,300 1,000 6,102 1,811 3.37 Imperial - - -- 326 365. 4,549 378 12 C3 Inyo 442 118 1,413 144 9.81 Rern 1,361 543 9,346 1,103 8.47 Kings 401 6.59 3,552 737 4.81 Lake - *- 2.93. 319 1,414 244 5.79 LaSSen 229 160 1,251 260 4.81 Los Angeles 7,665. 26,954 126,361 39,485 3.2) Madera ---------------------------------- 312. 156 1,732 364 3.73 Marin - 1,458 539. 5,78S 788 7.35 Mariposa - - * - 185 103 818 139 5.8S Mendocino, 968 608 3,269 1,513 2.16 Merced 533 359 | 3,401 614 5.54 Modoc * * * * - - - - 2.74 122 1,045 333 3.13 MOno S4 29 16) 37 4.56 Monterey 1,183 520 5,193 885 5,86 Napa 645 750 3,742 1,213 3.08 Nevada 905 436 3,328 299 11.14 Orange 555 2,107 9,382 3,575 2.62 Placer ----------------------------------- 1,180 406 2,892 S16. 3.54 PlumaS 240 174 815 201 4.05 Riverside 635, 1,896 7,230 2,386 3.03 Sacramento ----------------------------- 5,284 1,385 14,565 2,298 6.34 San Benito ----- - - - - 309 372 1,768 552 3.20 San Bernardino ------------------------ 1,463 2,451 10,840 4,490 2.41 San Diego 1,665 3,384 18,943 3,758 5.04 San Francisco -------------------------- 22,6S5 8,153 .93,705. 16,647 5.63 San Joaquin 2,028 2,469 10,662. 4,024 2.64 San Luis Obispo------------------------ 958 537 4,913 667 7.36 San Mateo ----- 1,549 542 5,758 1,163 4.95 Santa Barbara 1,292 577 6,295 945. 6.66 Santa Clara -- 3,467 2,106 18,164 5,544 3.27 Santa Cruz -- 1,084 935, 6,028 1,159. 5.20 Shasta 974 453 3,000 782 3.83 Sierra --------- - 289 7'4 507 90. 5.63 Siskiyou - 1,081 367 3,028 1,004 3.02 Solano -- -* 1,392 546 5,923 919 6.45 SOn Olmia 2,250 1,797 9,787 4,650 2.10 Stanislaus 1,147 599 5,210 1,679 3.10 Sutter ------- 332. 289 1,243 534 2.37 Tehama, --- 491 477 2,607 655 3.9S Trinity ---------------------------------- 231 187 767 116 6 61 Tulare --------- -- j ,112 I ,282 7,674 3,125. | 2.46 Tuolumne ------------------------------- 526 328 f 1,561 367 4.25 Ventura ------------------------------- - 49& 723 4,278 623 6 S/ YOTO, *- -º- - - -- 883 409 3,213 777 4.14 Yuba. -- 667 165, 2,090 392 5.33 Totals ------------------------------- 93,297 80,509. 3542,239 137,107 3.96 Total vote— 1910 --- * 173,806 Plurality for bonds----------------------------------- -** **** 12,786 1916 ---------------------- 679,346 - - - - - - - - - - - w is re--> → - - - 405,132 Plurality for bonds------ - } b.' | º TPIRST BIENNIAL REPORT. 133 APPENDIX P. 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LNO O CIE. LE "T & WOON n UN COMPLETED CONTRACTS-Concluded. Longth Contract. - Expendivures to En tºne Cot. No. County Sec. From To (Miles) | Dute Contractor Type of Work Work # fairſ c. ºff. ..., 154 W ta. Barbara 2 Zaca Stution Loa Alamoa 8.73 || 6-6-17 | W. A. Dontanville 15 ft. Concrete Base 43.286 94,469 5,730 D-12] tºº? W Sap r: 2 C-D É; º;; 3-19-17 | Day Labor Construct, Cattle Pasaoa ilā 1343 **** º 2 W. * , a 2 : D | Zaca. º Bridges Q.08 || 2-15-17 | Day Labor tradi 3,334 3,346 22 I)-133 |, 292 || W s º 2 B | Nojoqui Crcek Bridge 0.92 || 6-1-17 Day Labor rading 1,915 1.91% 5 D-124 || 134 W. e º 2 E Gaviota Canon Brid㺠a 0.14 || 4-4-17 Duy Labor }radi 2,725 2,726 174 U-140 || 134 || W º s 2 & Alcatraz Las Crucus Q.45 || 6-19-17 | Day La 5 ft. Concrete Base 4,294 5,983 70 197 115 W ſº * 2 F | El Capitan Creek Alcatraz 9.24 8-9-17 | Tryon & Bruln 5 ft, . Concrete Base 9,569 25,398 855 229 || 115 W. tº * 2 F § Honda Bridge 9-ló-18 || W.H. Ledbetter & Co Concrete Bridge D-172 115 W g º 2 F | Qanada del Roſugio & Arroyo lionda Bridged ll-23-17 | Day Labo Test Boring; 325 D-207 || | | W: º º 2 F | Canadu del Refugio Brid Day Labor Soncrete Bridge D-213, 327 W * tº 2 F | Canada del Refugio & Arroyo Honda Bridges 12-20-10 | Day Labo Sonstruct Detours 198 || 123 W * g 2 G wo El Capitan Creek 9.43 || 8-9-17 | Tryon & Brain 5. ſt. Concrets Base 54,740 2,499 D-14} | || 23 W & rº 2 G | Near Elwood 3.01 || 6-19-17 ay Labo 5 ft. Concrete Buse 150. D-131 58 || W. * tº 2 H | Rincon Creek Carpinteria Creek 2.35 | 5-25-17 | Duy Labor Qil Surfacing 1,391 - 132 || 124 W. g * 2 I Stony Creek Glen Anne Canon Road Q.84 || 3-25-17 | Day Labor Qil Surfacing 649 D-153 || 153 W. *. tº 2 : J | Neur Serena 0.69 5-26-17 | Day Labor Oil Surfacing 366 D-157 243 || IW Santa Clara 2 A At Santa Clara 0.59 9-15-17 | Day Labor 20 ft. Topeka on Concrete 10,287 D-125 35-23i IW E. w 2 B | Mulia Coyote 7.34 || 4-3-17 Day labor ### oncrete Base 35,339 B-153 I lºy IW sº is 2 G | Pajaro River Bridge - Q.05 || 3-15-17 | Qºy Labor 15 ft. Bituminous Concreto 1,390 D-155 212 || IW & * à | A | At Milpit as 0.43 || 9-15-17 | Day Labor 18 ft. Concreto Base 6.479 D-134 || 183 || IW §º º § | 8 || Stevens Creek Road The Alameda 1.69 b-25-17 | Day La 18 ft. Topeka on Concrete 7,639 218 JW Santa Cruz 5 || A || 3 mi. S. of Clonmood Santa Cruz. 6.73 || 3-15-13 | Federal Combt. Co. 15 ft. Concrete Babe 1,767 926 200 II | Shasta 3 || A Cottonwood Creek Bridge 0.11 i 8-28-17 | T leolau Bros. * Concreto Bridge 19,134 356 203 º * 3. B eddin Bayha 19.33 9-11:17 | Palmer & McBryde J. N. radin 55,767 7,134 225 ſº § 3. B §§ºurn,sº Spring Bra. Crs. Brs. 7-2-18 de Waard Brog". C. S. Concrete Bridges 199 wº * 3 || C Sacramento River I La Moine 13.31 || 8-23-17 | J. E. Fitzpatrick S. W. radi 71,935 6,779 23). * jº 3. C late & Doney Creeka Bridges de Waard Bros. S. W 3. Bridges 187 º * 3, D azol Cree Sº , Northerly Bour:dary 2.23 || 6-6-17 Connorg, Green & Co. E. J. radi 121,897 6,579 2 e ë 3 D | Castle, Meara & Flüme Creeka Briuges .04 5-16-18 May & Söult, E. J §, Bridges 3)-115 III | Sherra 25 A | Westerly Boundary Downlow ille l-25-l’ Day Labor L Grading 45,901 2,529 235 II Siskiyou 3. A | Dunsºulf. , , - Southerly Boundary 1.32 Conners, Green & Co. E. J Gradžng, Đ-74 s g 3 || A So.City Limits Dungmuir Southerly Boundary J.09 Day Labór Leigh Grăding 7,642 747 D-1.69 tº * 3. B Yreka & Greenhorn Cr. Bridges 10-22-17 | Day Labor Grading 2,189 57 D-R 32 ſº * 3 C Oregon Line 43 m) . South 4.50 | 8-2-17 | Day Labor 14. J. Gravel Surface 34,646 916 D-125 III | Solano 7 : B | Suisun Creek 0.07 Day Labor C. W. Concrete Brid 6,622 453 l gº nº 7 E. via Putah Creek 8.3% 6-6-? *u. º R. gº: Concrete Base ºš ,568 133 Is tº 8 A || Wooterly Boundary Cordelia 3.46 5-22-17 | Harlan & Harlan C, 15 ft. Concrete Base 27,319 2,703 B-212 jº * 8 A Westerly Boundary Cordeliu. 0.44 12-27-18 Day Labor Guard Rai , 206 Soncº. I G | Santa Roga Willow Brook 12.42 || 10:17-17 || Municipal Imp. Co. 15 ft. Concrete Base 26,692 1,532 B-112 * t; 8 . A Station 52422 Station 394 6.25 9-2-13 Bay Lauor Gravel Surfac 7.91% 127 B-123 º \ } 8 A lear, Petaluma Creek 4-4-17 | Day Labor Grading, 932 i)-189 III | Svanislaus 4 : A At Turlock ... Day Labor 15 ft. Concrete Base 216 222 sº g 13 | A At Riverbank . .69 || 4-10-18 Alfred H. Wogº. Concrete Bridge 8,127 336 196 ;| Wr Tuiare ** B | Tipton Tuiare 9,id 7-2-17 | T. E. Shafar 15 ft. Concrete Babe 70.256 3,267 189 276 | * * 4 C #. W. Wigalla. Tulare 9.16 || 6-6-27 || J. H. &haſer 15 ft, . Concrete Base ‘85!; 3,213 D-142 jºi-33: * ſº 4. E ingº River Bridge 6-26-17 | Day Labor 15 ft. Concreto Bass 1,525 5 D-17). Wentura 2 B | Callegias Wash Bridge ll-17-17 | Day Labor 15 ft. Concrete Base * 3,584 10 9-147 Yol 6 A Davis Subwa O.23 || 7-9-17 Day Labor Steel Bryd & 408 1,704 , 3)-148 gº io 6 || A Approach tºols Trentle 0.90 || 8-3-17 #} Labor } 5 ft., &#ove Baga 13:33. ižiš D-14 tº * 6 C Approach to Yolo Trestle 1, 13 || 8-3-17 § labor - 5 ft. . Concrete Babe 21,992 910 191 * ſº 7 : C | Blackt, Hershey 10.99 || 7-2-17 || C.H. & A. W. Gorrill 15 ſº. Concrete Base 53,638 2,783 p-198 º ſº 7 || C H Blacks Horshey Day Labor . 15 ft., Concrete Base D-20} Yuba 3. A Gracehopper Slough, Dry Creek & Best Slough Bridgee Day Labor 13 ft. Concrete Base ſ- == - 12. - 21. - º G O *Lawath ºne _^gonanz. - Žºº/ . *tºlas ºv- º \. -Bºdfiela Lorella ºn * TREKAN - % . º: / º: L A . : - STATE OF CALI FORN HA º º º - - º, LAS $5. N º - * º - - - - - --- º: ſ º º *- Hºrael. ~4) DEPARTMENT OF ENGINEERING º' Sº- º º' sºn - - Aº ‘º ºfº, £º - T. - CAL FORN LA H IG HWAY COMM ISS ION -- - yely ºr gº º º s £º ºl- - Fººtº º ſº) Y- U - \, , … ſº Tº “º "- "Sºy ºr -º - \, - - º - - > lia + tº At Zºº, * : %. \ Y-Jº - | \ A / - *** * - - s OF THE N *... Tº Tº Y 40. - ATE OF CAL | FO RN IA - cº-e - - Jº — A - NATONA T-- º: M S.- yº H. º * - * FoneST º - - - —sº º sº º ſº Compiled from Maps by the United States Government and from various County Maps, - f - & j ºlº. - - - as º: º º: under the Direction of - %: º = *H: §º- AUST IN B. FLETCHER - H H C H WAY ENG IN E E R —º y - Lyſſ. Tº ti "s W. –E= - 4. Sº Z - - *-- º º - r º - - ** * ºf º *B-Fº |. ex}> COMMISSIONERS º * - / º ºr º ºgº. NEWELL D DARLINGTON (Chairman) spºke =/º ºr \. CHARLES A. WHITMORE º: ***º: "º EMMETT PHILLIPS |||ſº -- - º, ºlºmeudoci ſº --- *. Ridgewºod - *. - ºf: Potterwalley * ºLittle Riºr *... . - Co *...I. tº ºxº * - º, mptºe anghlin *: \ º ºslar. w º - Fe . =- r Hemlocks. > -º Statute Miles 0. 5 10 20 - :30 40 50 ----- - - _. 1918 *Tama º: -A Buckle § {&ºecity } ºranmºre _AUBI TRN º - - *... NL’. Uphi ºr -cºol *Greenwºº LEGEN D sºmºus Pavement completed or under contract A D º: Tº: * Naru. lº --- -> **- Grading completed or under contract *A. reur --~ *-ºs. *Cº. --- Special appropriation roads * --- -*Greenwalley ºser "ºtº- ----------- Pe Pprop Rºº. i -Pºzsºtºnº - º - Proposed Fairga Mata sº º -- p ills < * C rsºsº yhew’s 3. - - * Dinºzachº * *** º º ~\º, shadian Digºrº - as | > º cosmººr. Michigan -Ouel- ºvº's ſº -- CRAM/ENTo ſº.” - * - Lºſ - *ºtººs. - -Sweetwater A “sº -- * - - º ** *NATIO -sonoiaſpºss - º *** reas : - - & *...*Sº. - sº ſ Brutºll W Sºuaré º sºninº --- - - º w º - - * #: caut …: - flºº - - & y - - | Riovistº Isistan Atam : - º Woodbridge ºntrºl. º, ºx *::: sº Knightsºrrºs ºf raineirº -_º --- ~. 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K. --" S Six , * i - - º - -** *--" " ". | o Tassaſarabo'sprº º A. | \,-) fºL. - º L. : g KER - Yºº. * S º * * **. * Nº. ------ - ------ - - - ------- - * - --- º ", ºr - --- * - º ºr=REY fº ºl ! Fºrmºville * _ºllºn § ºw oanal. Dai-win - - - -º-º: •. \ : * *- * NATION --~~~" \ zºº - ‘..../N - C ſ : hurst Mee- 2. 1. º, - T-\ t - *- N Rºle - Maloº" i. º - - - * - - * * * º - aSºatford w - Tillare lanº-esº- L 0. A R E ! } - - - } ** M - -- M - - º º - Manse- - - %. , rº- Y. lº : N § gº º, * f atus- nATIQ L. * * - -º sº + º I. Strathmore º " ºut \, Zº * Tº º - º, º ºs -----Yº - - º - - * º - * --> tº Yº-º %r. Es s oran - - | . \ N - - * ~ * n - - - & || t ia - *. º º - - º N zºº ºiptor. - Milºpaugh- - & \lºuse w *- * Tº (ºr zºº º Poplar \º * ºf sº º - - : \\ \ tº sº º ſº …” i ) \, -: - -- º º ºangiola *ley cº 2" A º … ** ; : - / i \ \ alºiskie N º …” f º *. ." *- Goodsprings Alpangh º Earliman -- º Tecopa' º Pl - \- & *- - - º cºarseraieryar.” **.*Ripley 1. Z San Miºtel Y & - bºn. A 2. º º º º t º - ºf . .# ºr | *Dudley * º ... N - * --- - º - - - --" º *Gibbons ºte º \ Mr. º **as-- a-- rººz. 2^s . : sa. Valjean _* *e ----- - - …” - - º --- - &Simeºn & & * *Adelaida, ~. $º ---s == º Tºs 27 *** * ~ --~ cº- sº, sº *Rifluº *S º - …” * - *** ----------------~~ - A —— - Dearborn - ...as A - N. *…* º ºr - - w tº ºbria*...* tee” \ - m--- *** * \ N º Rad º º, º º Desert - - N *. f ºutes º, •. Crescºt ºn Asuncion - X. cº f * - sº Niptu sarcanº Mascaders ºx rtenedale # . wº º Tergie º ºtlvanpah thoore º º º º º *, * ------------------ * - - Silverlake earºnets ºr f Leastal - alsº º º Kanderbil; - * -- tº .…" tº. º l, º ºut. - | Atolia-º-º-º: A . ºutzarrºr-sº Hanlø Barnw *Hart N * / \, - º Z} Berry - Purdy - **** - - º º ºr Lºtter ºr | Cima **Ledge N - º .." - - :.. º * - - - r …” ºrse, - --- Nº. 3 \ - _f Cº. Paktis ºrs * * ..." -- City LIST OF ROUTES. sº º Field, ſº \ º, | * º - º ! - - & º, \% area, Sºs tºº * F" º, ... tº Sº. 1. San Francisco to Oregon Line. *…* * *- º' $3, /* º (i." º * : º -º-º" 2. San Francisco to San Diego. * ** Tºº s tºr- \ }} * º º W secº- 3. Sacramento to Oregon Line via Marysville. areasºn 2–~ "...i. º º º: B ... E R\ N A R D. N. * Zºner -*. 2 - 4. Sacramento to Los Angeles. ºr, --- t º l >e Trºyº: Pisgah fºr s º-ºº- 5. Stockton to Santa Cruz via Oakland. Ye- –iº- º *... "Qeman P i. - - #ºn * , Ind 2- . ºr " CŞ 6 Sacramento to Woodland Junction sawra BARBARA |\.- ~~ * ... TT incºlºr * lan *\-ºnals. - - anby º ºf 7 Tehama Junction to Benicia. L–- | º § -º,-,-,- - * Sº d * º º 8. Ignacio to Cordelia via Napa. - \ NATIONAL Vº !" *"..., º Asiam sº hºnºus ºar * - 9. San Fernando to San Bernardino. | * . ..)Nº ſº gº | `` -- - º 10. Visalia to San Lucas. **, º X { * – 2 “. . º ſ". 11. Sacramento to Nevada Line via Placerville. Nº. *\V 2 =ºn_º__ U_\, R Ayº ºf - s ". * 12 San Diego to El Centro. - - =s=s=S sºs -- º * ſº sº ºf --~ Cº. º - 13. Salida to Route 23 at Junction. - == sºs Nº "ºº" - L Nº. - \\ * º, 14. Albany to Martinez. - - - 3. º º * - - … ." \ N º º ºrinº º 15. Williams to Colusa. --- sº ta sºlºs.- ... --> . º \ N \ ..." ... ... 2 16. Hopland to Lakeport. Y-2 2 =ºsºs WN Tº tº J º "º. %. T - !......" - º Aº-ºº: ~~~~%. 17. Roseville to Nevada City. Z % = \º-sº-sesºs ºf taſahnsas º, i. º -s ºr Fºnſjºº Y " Ellwanda Raº —- Je. y - % = ±sº sº. NS ºnyº” - #. Arººr *~ § 18. Merced to Route 40 near Sequoia. - 2. § - - ºsº "º *. Tº º 19. Route 9 west of Claremont to Riverside. * § * A Chind :*-LZ-º-º-, *-* ºr . AT TY k \, , , . Tº--------. 20. Redding to Route 1 via Weaverville. º º - ſº * ſ - 21. Route 3 near Richvale to Oroville. #" c &\ . # º ſº- ..J.' º, - 22. San Juan Bautista to Hollister. ſ. § "Tº: º * == t Eºs - X º º \\s Zºº 23. Saugus to Route 11 at Alpine Junction. --- Q --~~~ ſº - ** Q Nº * ! .º.º. wºme lis 24. Route 4 near Lodi to Route 23 near Silver Creek. º ſº "Wºº *Sº tº # º G º -Alberhill - § 25. Nevada City to Downieville. Nº sº. *Wºº. Tº º, Z' º- 26. San Bernardino to El Centro. Iter- 4. º _*//º - 27. El Centro to Yuma. Foºzsy 2. * 2° ºr ſº 28. Redding to Alturas. “ſº gº." 29. Red Bluff to Susanville. : Tº 30. Oroville to Quincy. º 31. San Bernardino to Barstow - 32. Route 4 near Califa to Route 2 near Gilroy. º, u. Jº ºf 33. Route 4 near Bakersfield to Route 2 near Paso Robles. º *:::: º 34. Route 4 near Arno to Route 23 at Pickett’s Junction. *; *"... i... º. º 35. Peanut to Kuntz. º: º * Nº 36. Downieville to Mt. Pleasant. º: º … Picac 83. 37. Auburn to Route 38 at Truckee. º "…, º 38. Myers to Truckee via McKinneys and Tahoe City. Nº. 24. ſ keºmeLºg 39 Tahoe City to Nevada State Line at Crystal Bay. 3. --- A a , ; Q. 40 Route 13 near Montezuma to Route 23 near Mono Lake. º tº ſº. Z. ... -- * , , , º L. * ...” 41. General Grant Park to Kings River Canyon. º ſº. Tº º: - 2- * - - *: tº.… & º, . º 42. Saratoga Gap through Redwood Park to Bloom's Mill. ... " º songst **** ſt ºf –6. ºr a º: 43 San Bernardino end County Pavement to Bear Lake. º º *. #~ *(7. | - ºntainsp; *** ... -- T = 44. Boulder Creek to Redwood Park. ". º º: º ; : º, _----wºº sº-T's º - * | hulavi º sº -Potrerº Aſºº --> tube L.--" ***** ‘. . f. º, º o s asonatºrton - º sº lºotay ºf "-ºxTºº I.-...aaºº-ºº- - - º **-**** - Nº. º ºtº-ºº. *. ºwzzº Curºpan º showing st ; ng State High ------- ways. § ś & §§ º x. *$ - ſº §;: **