j^eto !?orfc g>tate College of Agriculture WA Cornell Unibersitp Stljsca. J?, g. Hforarp HE 35 6 . C 2° rnellUniversi,) "- ibrar y ?IHIIIIWIIi™^iKi f r the Cali,or "ia high 3 1924 013 695 451 Jm "^ Cornell University Library The original of this book is in the Cornell University Library. There are no known copyright restrictions in the United States on the use of the text. http://www.archive.org/details/cu31924013695451 REPORT OF A STUDY OF THE CALIFORNIA HIGHWAY SYSTEM BY THE UNITED STATES BUREAU OF PUBLIC ROADS '"N TO THE CALIFORNIA HIGHWAY COMMISSION AND HIGHWAY ENGINEER NEWELL D. DARLINGTON, Chairman CHARLES A. WHITMORE GEORGE C. MANSFIELD AUSTIN B. FLETCHER, Highway Engineer. 1920 ■:■ ■ Imtmitl .V, ..' -HA ;fOR!909-l5-[9 RELIEF MAP OF CALIFORNIA, SHOWING STATE HIGHWAY SYSTEM. (From the modeMby Prof. N. F. Drake of Leland Stanford University.) #> -f *? -jc ^ CONTENTS Page. Letter of transmittal by the Secretary of Agri-. culture v . 7 Foreword by the Chief of Bureau of Public Roads 9 Letter of transmittal to Chief of Bureau of Public Roads 11 Data. Historical 13 Systems designed 19 Relation of total system to agriculture and population 21 Organization 21 Convict labor 25 Specifications 25 Work Done 2S Federal aid 54 Bridges and structures 65 Maintenance 67 Present condition of constructed roads 74 Classification 74 Photographs 87 Subgrade soil 87 Soil classification 87 Special studies of defective pavement. ... 88 Soil moisture determinations 89 Soil moisture equivalent determinations. 89 Shrinkage tests 90 Detail remarks 90 Subsoil moisture cross-sections 90 Bearing power 90 Concrete sample cores 101 Results of tests 103 Remarks 115 Grade, alignment and location 118 Economics and "other studies 120 General economic features 120 Motor vehicles — general 121 Traffic count 124 Truck questionnaire 126 Page. Data. Economics and other studies continued. Passenger bus lines 129 Motor truck freight lines 135 Field weighings 135 Speed measurements 135 General 135 Violations of State law 141 Discussion. Bond issues and systems designed and general policy 143 Management 143 Standard pavement designs 144 Design of grade, alignment and section 151 Specifications 152 Further discussion of policy of extension of mileage 153 Present conditions 157 Construction and maintenance 157 Administrative and engineering organizations . 158 Convict labor 159 Economics and other studies 159 Conclusion 161 Appendices A. Details of State highway bonds — highway systems proposed 166 B. Tables of comparison of engineers' esti- mate and final payments on 20 selected jobs 172 C. Salary scale 175 D. Motor vehicle legislation 176 E. Location of traffic stations 179 F. Cross-sections showing soil moisture. .. .185 G. Traffic blanks 195 H. Motor truck freight lines 198 I. Traffic diagrams 199 J. Pavement condition diagrams 211 K. Traffic record 269 LIST OF PLATES Page Frontispiece — "Relief Map of California" Plate I — Outline map of California, outlining the State highway system recommended by the Bureau of Highways, November 25, 1896 Plate II — Diagram of total bond requirements showing both interest and principal re- payment by years 16 Plate III — Outline map of California showing State highway systems for 1909-15-19 and agricultural areas Plate IV — Organization chart for 1918. Plate V — Organization chart for 1920 . . . Plate Plate 15 Plate 16 Plate 20 Plate 22 Plate 23 ■Plate VI — Outline map of California showing pavement completed by years — 1913 53 Plate VII — Outline map of California showing pavement completed by years — 1914 54 Plate VIII — Outline map of California showing pavement completed by years — 1915 55 Plate IX — Outline map of California showing pavement completed by years — 1916 56 Plate X — Outline map of California showing pavement completed by years — 1917 57 Plate XI — Outline map of California showing pavement completed by years — 1918 58 Plate XII — Outline map of California showing pavement completed by years — 1919 59 Plate XIII — Outline map of California showing pavement completed by years — 1920 60 Plate XIV — Concrete culverts 65 Plate XI Vo ■ — Yolo Causeway; three span con- crete culvert; 7 Tehema A 66 Plate XV — Diagram showing present classifica- tion of pavement laid each year, from 1913 to 1920 75 Plate XVI — Diagram showing percentages of con- crete pavement classes, in surfaced and unsurfaced pavement 76 Plate XVII — Pictures showing Class A pavement 79 Plate XVIII — Pictures showing Class A pave- ment Plate XIX— Pictures showing Class B pavement Plate XX — Pictures showing Class B pavement . . Plate XXI — Pictures showing Class C pavement. Plate XXII — Pictures showing Class D pave- ment 84 Plate XXIII — Pictures showing Class E pave ment 85 Plate XXIV — Pictures showing Class F pave- ment 86 Plate XXV — Showing profile views of soil shrinkage 91 Plate XXVI — Showing profile views of soil shrinkage 92 Page XXVII — Showing profile views of soil shrinkage 93 XXVIII — Showing top views of soil shrinkage 94 XXIX — Showing top views of soil shrink- age XXX — Showing top views of soil shrink age 95 96 97 XXXI — Showing top views of soil shrink- age XXXII — Curve showing relation between moisture content and bearing power of soil from 7 Colusa C 98 Plate XXXIII — Curve showing relation between moisture content and bearing power of soil from 2 Los Angeles B 99 Plate XXXIV— Diamond Drill 102 Plate XXXV — Typical cores drilled with dia- mond and chilled-shot drills 104 Plate XXXVL^Typical cores drilled with dia- mond and chilled-shot drills 105 Plate XXXVII — Typical cores drilled with dia- mond and chilled shot drills 106 Plate XXXVIII — Typical cores drilled with dia- mond and chilled-shot drills 107 Plate XXXIX — Typical cores drilled with dia- mond and chilled-shot drills 108 Plate XL — Typical cores drilled with diamond and chilled-shot drills 109 Plate XLI — Types of grading and distribution of coarse aggregate Ill Plate XLII — Types of grading and distribution of coarse aggregate _ 112 Plate XLII! — Types of grading and distribution •of coarse aggregate 113 Plate XLIV — Diagram showing relation between age of concrete in years and crushing strength 114 Plate XLV — Grinding lower surfaces of cores. Placing core in 100,000-pound testing ma- chine 116 XLVI — Motor vehicle registration in Cali- fornia and the United States by years 122 XLVII — Motor vehicle registration in five leading States 123 XLVIII — Outline map of California show- ing traffic stations and their locations and designations 125 XLIX — Traffic on State highways 127 L — Diagram showing estimated agricul- tural tonnage hauled on California State highways during a calendar year 128 Plate LI — Diagram showing total number of trucks in 4 classes reported by question- naire and relation of per cent in each class to corresponding . per cent from traffic count 130 80 Plate 81 82 Plate 83 Plate 84 Plate 85 Plate LIST OF PLATES— Continued Plate LII — Passenger motor busses. Page . 132 Plate LIU — Diagram showing comparison of number of trucks of various capacities re- ported by questionnaire and by licensed ' truck freight lines 134 Plate LIV — Diagram showing hourly variation of week-day traffic at 101 stations and cor- responding average hourly variation of Sunday traffic at 37 stations 136 Plate LTV — Diagram showing average hourly variation of week-day truck traffic at 101 stations 137 Plate LVI — Diagram showing variation of total traffic during the week based on 283 week- day counts 138 Plate LVII — Kern County; average number of trucks and horse-drawn vehicles passing 5 stations 139 Plate LVIII — Los Angeles County; average num- ber of trucks and horse drawn vehicles passing 9 stations 140 Plate LIX — Typical sections 145 Plate LX — Typical road sections 146 Page Plate LXI — Pictures of edge failures 148 Plate LXII— Longitudinal cracks with faulting. 149 Plate LXIII — Pitting and checking 150 Plate LXIV — Misplaced mesh reinforcing. Shoul- der wear from insufficient width 152 Plate LXV — Oil macadam pavement 154 Plate LXVI — Supplementary construction 155 Plate LXVII — Supplementary construction. Maintenance 156 Plate LXVIII — Route 9, Los Angeles County, Section A. Coast Route 2, Santa Barbara County, Section K 164 Plate LXIX — Route 7,. Solano County, Section A. Route 9, Los Angeles County, Section A. . . 165 Plates LXX to LXXVIII— Appendix F; soil sections 186-194 Plates LXXIX — Traffic record blank 197 Plates LXXX to LXXXIX— Appendix I; Traf- fic diagrams 200-209 Plates XC to CXLV — Appendix J; Condition diagrams 212-267 LIST OF TABLES. Page Table 1 — Analysis of bituminized aggregates used in oil top 27 Table 2 — Construction and costs 29 Table 3 — Reconciliation of work-done schedule with financial statement showing con- dition of funds 49 Table 4 — Recapitulation of work-done schedule giving payments made for construc- tion, labor and materials, including en- gineering, equipment and administra- tion charges 5U Table 5 — Resume estimated costs and payments made for labor and materials on con- tract and day-labor- road construction work done by divisions in California to July 1, 1920 51 Table 6 — Resume estimated costs and payments made for labor and materials on con- tract road construction work by divi- sions in California to July 1, 1920 .... 51 Table 7 — Resume estimated costs and payments made for labor and materials on day- labor road construction work by divi- sions in California, to July 1, 1920 ... 51 Table 8 — California Federal-aid projects to No- vember 1, 1920 61 Table 9 — Reconciliation of highway maintenance schedule, California, with statement of condition of funds, July 1, 1920 67 Table 10 — Recapitulation of maintenance costs. Schedule J, details of administrative expense, motor vehicle fund, mainte- nance schedule by departments for headquarters and divisions 69 Table 11 — Total motor vehicle fund expenditure, highway maintenance schedule, all di- visions consolidated, by types 71 Table 12 — Total earth and general maintenance charges, by divisions 71 Table 13 — Total oiled earth maintenance charges, by divisions 71 Table 14 — Total oil macadam maintenance charges, by divisions 72 Table 15 — Total concrete base maintenance. charges, by divisions 72 Table 16 — Total oiled concrete maintenance charges, by divisions 72 Table 17 — Total Topeka on-concrete maintenance charges, by divisions 72 Table 18 — Total asphaltic concrete maintenance charges, by divisions 72 Page Table 19 — Detailed costs of maintenance and im- provement of 32.45 miles of oil mac- adam pavement, distributed by items. 73 Table 20 — Costs of 32.45 miles of oil macadam pavement 73 Table 21 — Showing the classified condition of concrete pavement, built each year by State Highway Commission 77 Table 22 — Showing all classified concrete pave- ment built by the State. (Surfaced and unsurfaced combined) 78 Table 23 — Concrete pavement classes and under- lying soil types 78 Table 24 — Showing all roads, constructed and under construction, in the California State System by types and by years completed 78 Table 25 — Showing percentage of shrinkage, moisture equivalent, and moisture con- tent of subgrade soils 100 Table 26 — Showing percentage bf coarse aggre- gate in concrete cores by planimeter measurement 117 Table 27 — Showing average compression tests of concrete, average by age, mix and class of pavement 117 Table 28 — Showing average compression tests of concrete, averaged by mix, route and class of pavement H8 Table 29 — Showing comparative compression tests of concrete check cores 118 Table 30 — Approximate total motor vehicle regis- tration and revenues by years 121 Table 31 — Summary of bus line data, lines in whole or in part traversing State highways 131 Table 32 — Summary table showing truck traffic data 141 Table 33 — Schedule of interest and principal First Bond Issue $18,000,000 168 Table 34 — Schedule of interest and principal Sec- ond Bond Issue $15,000,000 168 Table 35 — Approximate total bond requirements, First and Second Issues 169 Table 36 — Schedule of interest and principal Third Bond Issue $40,000,000 169 Table 37 — Approximate total bond requirements, First, Second and Third Issues 170 Department of Agriculture, Washington. February 18, 1921. The California Highway Commission and Highway Engineer, Sacramento, California. Gentlemen : I take pleasure in transmitting a report of the study of the California highway system, made by the Bureau of Public Roads in compliance with your request of June 25, 1920. I trust this study may prove of service to the California Highway Commission and the people of California in continuing their program of highway development upon which such splendid advancement has already been made. Very truly yours, (Signed) E. T. Meredith, Secretary. FOREWORD An adequate review of the results which have been secured by the development of any system of State highways must follow today an un- charted course. The essentials and non-essen- tials of such a task have not yet been suffi- ciently classified to avoid the gathering, on one hand, of material which modifies only slightly the final conclusions, or, on the other, to insure that all vital data and information is secured. The California study is the most comprehen- sive study of results obtained through the de- velopment of a State highway system that has yet been undertaken. The work of this study has followed two principal lines; one that in- cludes those questions that are engineering in character, and the other those that are eco- nomic in character. These two groups of questions are so inter-related and so inter-de- pendent that they cannot be separated. All road improvement is a means to an end — im- proved transportation facilities. The proper development of such facilities ought to be based on both the engineering and economic consider- ations involved. But the practical application of these considerations is always modified by the attitude of the public. For the purpose of this study, the principal operation was to classify all the pavement laid. This classification covered 1,262 miles from which a complete record of condition of all 'concrete pavement for each one-tenth mile re- sulted, and is supported by 7,500 consecutive photographs filed in the Bureau. It is recorded completely by diagram. Associated with this classification there were drilled 638 cores through the pavement at intervals on 800 miles* of the highway between Bed Bluff and San Diego; 481 of these cores were tested and all were carefully examined and measured. A large number have been photographed for this report. Twelve special, intensive studies of failed portions of the road surface resulted in a great volume of data which can only be summarized in the report, but which clearly establish in practically every instance the nature and cause of the defective pavement. In connection with the many selected special studies, soil moisture determinations were made for cross sections of the road by borings at close intervals. Tests for moisture content, moisture equivalent and for shrinkage were made at the laboratory of the University of California. A complete classification of the sub-grade soil under all the pavement on the State highway system was made by soil experts and plotted on the pavement condition diagrams. Below each concrete core, samples of soil were also removed and classified. A Statewide traffic census was taken at 103 stations for an equivalent 16-hour week day, and many Sunday and supplementary counts were also taken. This traffic record revealed the amount and character of travel for the sum- mer interval on the State highways. It has re- sulted in a set of traffic diagrams from which the total annual duty of the California highway system has been estimated, and also the corre- sponding revenue, or the operating income to the community. Supporting the traffic count, extensive field studies were made of the producing agricul- tural areas for 9 groups of agricultural crops and the peak load in tons and the peak interval in time for these crops was determined. This study covered the main valleys of the State. During the progress of field investigation there was carried on at Sacramento a complete audit and analysis of all the books of the State Highway Commission office. This work result- ed in a satisfactory and complete distribution of all costs of surveying, construction, engineer- ing and maintenance, and produced summaries that account for practically every dollar made available for the use of the Commission. Painstaking efforts have been made to secure all the data necessary to present the conclu- sions impartially and uncolored. There is much of value in the record to be made avail- able after more research. Within the past five years an unprecedented demand has been made upon the highway ad- ministrator and highway engineer to produce a large mileage of economical and serviceable highways. The extent to which he has pro- duced this combined result is the true standard of measurement of his achievement. Let the present traffic service rendered by the State highways of California, conservative- ly estimated, we believe, at 400,000,000 vehicle- miles per year, be multiplied by any reasonable 10 unit rate to indicate the present annual returns to the people on the total investment to date of about $42,000,000. Now turn to one paragraph from the report selected as the most vital to be repeated here : "The financial administration has been scrupulously honest and careful and the ad- ministrative and engineering costs have not been excessive, nor have final costs much ex- ceeded the engineer's estimate." There should be no hesitation in going for- ward with confidence. The Bureau gratefully acknowledges the co- operation and assistance extended by the Bureau of Soils of the Department of Agricul- ture, the Bureau of Standards of the Depart- ment of Commerce, the University of Califor- nia, the California Highway Commission and the Highway Engineer. The field studies and the preparation of this report were carried forward under the imme- diate direction of Dr. L. I. Hewes and T. War- ren Allen, General Inspectors of the Bureau of Public Roads. (Signed) Tiros. H. MacDonald, Chief of Bureau. February 18, 1921. II December 21,, 1920. Mr. T. H. MacDonald, Chief of the Bureau of Public Roads, Washington, D. C. In accordance with your telegraphic instructions of July 8, following the request of June 25, 1920, from the California Highway Commission and Highway Engineer, a study has been made to determine the operations under the three California State highway bond issues and the costs thereof, the present condition of the roads built and so far as possible the causes of existing conditions and also to determine a measure of the usefulness and duty of the highway system, and to develop recommendations for the future. A report of this study is hereby submitted in three parts which refer, respectively, to Data, Discussion and Conclusions. Acknowledgment of the continuously courteous response by the State Highway Commis- sion and the Highway Engineer to every request to facilitate this study is gratefully recorded. "Very respectfully, (Signed) L. I. Hewes, General Inspector. DATA HISTORICAL California, in common with other States, ex- perienced the preliminary processes associated with the adjustment of highway conditions to the demands of developing industry. Some of the earliest road work was done by private in- dividuals or corporations and the roads oper- ated as toll roads. These roads were later taken over by the State. A definite movement by the State for im- proved highways began March 27, 1895, by a legislative act providing for a Bureau of High- ways of three members to be appointed by the Governor for terms of two years. The duties of this Bureau included a study of the highway laws of California and of other States, a study of the physical features of the State and their relation to a system of roads, and of the eco- nomic and legal status of the highways in each county in the State, together with a study of the road work done in the preceding ten years by the counties and costs therefor, and a report with conclusions and recommendations of such measures as the Bureau deemed ad- visable. The Bureau of Highways was organized April 11, 1895, and November 25, 1896, rendered a report recommending a proposed system of State highways of twenty-eight routes. The report stated that the principles had in mind in outlining a system of highways were : 1st. To lay them out along the lines which the physical features of the State forever fix as the easiest lines of communication. 2nd. To traverse the great belts of natural wealth of the State by one or more highways. 3rd. To connect all the large centers of population. 4th. To reach each county seat in the State and tie in with the county roads. The report with a map showing the State road system recommended is filed in the docu- ments department of the State Library in Sac ramento. A copy of the map, designated "Sys- tem Recommended in 1896," is attached to this report as Plate I. The report shows that the total amount ex- pended by counties on highway work during the period 1885-1895 approximated f 18,000,000, and states "no adequate return therefor is ap- parent." In Appendix A of the original report of the Bureau of Highways are shown the road expenditures by counties for the years 1886 to 1895, inclusive. The members of the Bureau of Highways in addition to their other duties, traveled about the State to acquaint themselves with highway conditions and requirements, and it is probable that the Statewide inspection and study made by them, as reflected in their report and bulle- tins, was later a valuable guide to the State Highway Commission in its work of laying out the system which is now building. This is evi- denced by the closeness with which the present system coincides with that shown on the 1896 map. No funds for construction were provided by the Act of 1895. This Act of 1895 was repealed in April, 1897, and a Department of Highways was created. The Department of Highways Act provided for three Highway Commissioners to be appointed by the Governor, to serve for a period of two years, at the end of which time the Governor was to appoint for a term of four years and every four years thereafter one civil engineer as Highway Commissioner, in whom should be vested all the powers and duties attaching to commissioners first appointed under this act. These appointments were made as required by law and the Department of Highways carried on certain work until 1907, when it was merged by legislative enactment into the State Depart- ment of Engineering. The money appropriated from time to time by the State Legislature for certain "State roads" was expended under the direction of this Department of Highways. The details of work done and money expended are shown in the published reports, copies of which are on file in the document department of the State Library at Sacramento. 14 In 1907 the State Department of Engineering was created by law. It was composed of an Advisory Board consisting of the Governor as ex-offlcio member and chairman, the State Engi- neer, General Superintendent of State Hos- pitals and the Chairman of the State Board of Harbor Commissioners of San Francisco. The State Engineer was appointed by the Governor. The Legislature of 1907 took action to for- ward road building in the State, by what was known as the Savage Act, which permitted counties to bond their whole property for road improvement purposes. After the creation of the original Bureau of Highways the California Legislature from time to time took over certain wagon roads as "State roads." These special roads have been almost exclusively roads in the mountainous regions and only nominal appropriations were made for their improvement. The total of such appro- priations up to 1913 for all these roads was $807,243. These roads were later in charge of the State Department of Engineering and doubtless prepared the public and the Legisla- ture for the more important legislation of 1909. With the support of the Governor agitation for an improved highway system in 1909 became acute and resulted in the passage by the Legis- lature of the "State Highways Act" of March 22, providing for an issue of bonds to the amount of $18,000,000 for the construction and acquisition of a system of State highways. 1 This Act was approved by a majority of the electors of the State November 8, 1910. The Legislature of 1911 passed what is com- monly known as the "Chandler Act," adding three members to the Department of Engineer- ing, to be appointed by the Governor, whose duty would be to carry out the provisions of the first highway bond issue. At a meeting in August, 1911, of the Advisory Board of the Department of Engineering, an enabling reso- lution designated the three members appointed under the "Chandler Act" as an executive com- mittee to be known as the California Highway Commission, and vested in the Commission the actual handling of the work of constructing and acquiring the State Highway System under the bond issue of 1909. A Highway Engineer was appointed by the Governor and was made executive officer of the Commission. A law passed in March, 1905, provided for registration of motor vehicles with a fee of $2.00. There were minor amendments in 1907, ~ lFor "details of the three State highway bond issues see Appendix A. and in 1913 an act known as the Motor Vehicles Act was passed requiring annual registration of motor vehicles and increasing the fee for such registration. This act was amended by an act of 1915, and again in 1917 and 1919. The act of 1913 provided that half the net proceeds of motor vehicles licenses should be returned to the respective county road funds, and that the remainder should be devoted to the mainte- nance of State roads and highways, and the amendment of 1915 changed the wording to per- mit such moneys to be used also for improve- ments of State roads and highways. Further details of the motor vehicle laws will be found in Appendix D. The Advisory Board imposed upon the Cali- fornia Highway Commission the further duty of maintaining the State highways constructed under the "State Highways Act." In 1915 the State Legislature passed the second "State Highways Act" providing for a second issue of bonds for $15,000,000.00. This act was endorsed by the people at an election in 1916. The State Legislature of 1917 gave the Cali- fornia Highway Commission statutory recog- nition as a sub-division of the Department of Engineering, expressly prescribed its powers and duties, and transferred all State roads theretofore constructed under the supervision of the State Engineer to the Commission. The California Highway Commission thus in 1917 became a statutory body in immediate control and supervision of all State road and State highway activities of California, and is now carrying out the provisions of the bond is- sues of 1909 and of those of 1915 and 1919. The bond issue of 1919 for $40,000,000 was sub- mitted by the Legislature to the vote of the people July 1, 1919, and carried. In the cam- paign for this bond issue the California State Automobile Association of San Francisco and the Automobile Club of Southern California of Los Angeles were active advocates of the law. The California State highway bonds are all of the deferred serial type and with maximum terms of from 40 to 45 years. The beginning of the repayment of principal is deferred about seven years in each issue. The counties were required by the original State Highways Act to pay the entire interest on those bonds, the proceeds of which are expended by the State Highway Commission within their respective boundaries. The bond issue of 1909 for $18,000,000 was carried by a bare majority. The second serial 15 PLATE I. \ ' p'vvT^^f; vV ^\ — i ■ • • •/"r%^-# rvnkA' v ' <^^4^KTr^ ^K *] l -v~ / vyyf^ \ \ Y-lU-'-V.''^. "-* j X>CVb^ ^^/^"S--^-.: -^VCv *' ~ ^^N^Wd^M^^vJXt*^ ^~ 23^" * l u H ■ ' \ja® X ^™^*jSL--^Jfv- sis^x aP^^/ Vi >v \X v rJsCwP'Q: ■ > «^-^ i fw^r / \ a=- \ N i vSSjfiV- _3*v v^w^'^x:*-^ • '•/ n A \ Yvxii <■ x^^^v^- ♦ y v\a ^ SV^vxr^ v^ '• ^t . .. . sfc^ * cL — i Vu— \ •1 V\J\; \" \\ ' V-UA- I— x < CSr* V -, L -1 ■^f\ "•' \ ) f \ \ j ^rX ^-- '• ^r^A v — &_ >') ^— ■ • • • * ,5 - xxs / \ ,-y s k % ^s. v^\ ) K ' " 7 ' " ^<' ^~^ "-A^— -~~~ZP*~ *; J M K X I C / O** -.^ 16 PLATE II. Dollars - Hundred Thousands orj-»cnoo orj .^cri 00ors ,4 i . oooro-cto~>coor»^on fa. m oi tn » O ro *• -< n > 30 l/> TB ro ■^ Ol 00 O i 1 i^VJ ' i !• ! i i ! ! i V^^Sn l 1 1 'III rM ! ' l '^'rTpT'H-^^n ' i i | 5- 1 1' 1 1 "^ 1 ill 1 1 1 1 1 t ' 1 1 1 1 1 , 1 ^^ CT% i 1 1 1 | I ! 1 1 I 1 1 /[ 1 1 1 1 CO 1 1 / I 1 1 , 1 1 ,/ 1 1 1 ' 1 1 1 ' 1 1 1 O 1 ' ' "' '' 1 i ' I I ! 1 1 1 1 1 1 1 t 1 1 1 1 n> ! ! ! ! .{ i ! ! • - ! • -P> i i i i,'*i [ i i ; i i i i i ' iXi ' cr» ! ! ! J^ j ' ! ! ! ■ ! [ : ■ i Jr 1 ■ 1 CD i i n*^ i 1 i i i I i y ' /'* I 'I i i i i A- 4\ \ C3 1 i PN* \ \ $ ! ' ; ! ' ' ! 1 ' "M ■P- , : fc ? ' 1 ' 1 i 1 ' X* en / ; i ' i • I i VV' 1 / ' ' ' i i ' ' i , y^s i i i oo ' }> i ' ; ! | i ! ; /& \ \ \ o ro 1 / 1 1 1 1 I 1 : !/>'l | I I #| 1 1 1 1 1 Jf 1 - 1 . / . ; i i \S\ i ' i i i 1 / 1 1 1 1 1 JT ' ' | | 1 . 4* i/ | 1 1 1 \jr III f i i ' 1 i r ' l i ' l 3 ^ . 3 - r g 5 in O _ 33 rn :*) 2 ° z 58^ > ? H O 33oO 1 ^ -r a z E 5 S 5 ? £ « 5 z -< > H CT» / 1 1 1 1 I 1 X i ' 1 l ' /i 1 | 1 1 jX . 1 | CO I l l l ' 1" i X 1 i 1 1 ' 1 1 I i XI i ' ' i i O • }»" tf ' ^ ! J-^f i ! ! ! er» ~\—r m i *» ^T 1 1 , | | | ' cr> 1 1 1 1 1 | 1 | '| ' | | J 1 1 ' ! 1 : 1 1 i ! 1 1 1 ! r 10 17 bond issue, that of 1916 for $15,000,000, was carried by every county in the State by a vote of nearly four to one. The third serial bond issue, that of 1919, for $40,000,000 carried by a vote of approximately seven to one. Further details of each bond issue are described in Ap- pendix A. There is shown graphically in Plate II the progress of the total tax requirements to pay interest and principal for the first two bond issues which total $33,000,000, and in the same figure the approximate progress of necessary total payments of both interest and principal on all the issues which total $73,000,000. The State Highways Act of 1909, which pro- vided the first bond issue, stated : "The moneys placed in the State highway fund, pursuant to the provisions of this sec- tion, shall be used exclusively for the acquisi- tion of rights of way for and the acquisition and construction of said system of State high- ways. The route or routes of said State high- ways shall be selected by the Department of En- gineering and said route shall be so selected and said highways so laid out and constructed or acquired as to constitute a continuous and connected State highway system running north and south through the Stale traversing the Sac- ramento and San Joaquin valleys and along the Pacific Coast by the most direct and practic- able routes, connecting the county seats of the several counties through which it passes and joining the centers of population, together with such branch roads as may be necessary to con- nect therewith the several county seats lying east and west of such State highway. . . . The highway constructed or acquired under the provisions of this Act shall be permanent in character and finished with oil or macadam, -or a combination of both, or of such other material as in the judgment of the said Department of Engineering shall be most suitable and best adapted to the particular locality traversed." The routes selected by the Commission in compliance with this law totaled 3,082 miles and are shown in detail in Appendix A and in the frontispiece and Plate III. The second bond issue provided by the legis- lative Act of May 20, 1915, was emphatically approved by the voters in November, 1916. The State Highway Commission by the end of that year had constructed approximately 835 miles of concrete pavement and graded 323 miles in addition, and it was obvious that the original $18,000,000 was insufficient to complete the original system. The funds from the new bond issue were not available until July, 1917, but the old fund was exhausted January, 1917. To carry on work during the intervening months money was borrowed from the Motor Vehicle Fund. The State Highways Act in 1915 stated : "Of the moneys placed in the said second State highway fund, pursuant to the provisions of this section, the sum of twelve million dol- lars, or so much thereof as may be necessary, is hereby made available, and shall be used ex- clusively for the acquisition, construction and improvement of the uncompleted portions of the system of State highways prescribed by said 'State Highway Act' (Act of 1909). And of said moneys so placed in said second State high- way fund, the sum of three million dollars, or so much thereof as may be necessary, is hereby made available, and shall be used exclusively for the acquisition, construction and improve- ment of certain extensions from said system of State highways prescribed by said State High- ways Act 1 . . . provided, however, that ex- penses of the acquisition, construction and im- provement of the extensions above enumerated and the acquisition of right of way therefor shall be partly borne by the county or counties in which said extensions lie, the extent and character of such division of expenses between the State and county shall rest for final deter- mination with the State Department of Engi- neering, and the State Department is hereby authorized to enter into such agreements and undertakings as are necessary to properly carry out the intent of this section." The First Biennial Report of the California Highway Commission was issued December 31, 1918, 2 and closes with the remark: "The data embodied herein may suggest still further legis- lation and any co-operation by the legislature of 1919 tending to the betterment of State high- way work will be appreciated by the commis- sion." The legislature of 1919 passed the third bonding act and on July 1st, 1919, at a special election called for the purpose the electors en- dorsed the Act. This State Highway Act of 1919 states : "The moneys in said 'third State highway fund' shall be used by the State Department of Engineering for the acquisition, construction and improvement of uncompleted portions of the system of State highways prescribed by the act of the Legislature approved May 22, 1909, known as the 'State Highways Act,' and the act of the Legislature approved May 20, 1915, and known as the 'State Highways Act of 1915,' and certain extensions thereof described in said last named act, and also for the acqui- sition of the rights of way for and the acquisi- tion, construction and improvement of the fol- lowing additional highways as State high- ways." 3 IThere follows in the law a list of 698 miles of prescribed extensions given in detail in Appendix A and which are shown in the maps of the frontispiece and Plate III. 2First Biennial Report of the California State Hghway 'Com- mission, a subdivision of the Department of Engineering of the State of California, December 31, 1918. 142 pp. A complete report of activities of the 'Commission to July 1, 1918. 3 There follows in the law a description of 30 adjoined routes which total 1,798 miles and which are shown in the maps of the frontispiece and Plate III., and listed in Appendix A. 18 STATEMENT OF CONDITION CALIFORNIA HIGHWAY COMMISSION FUNDS JUNE SO, 1920 DEBITS HIGHWAYS COMPLETED AND IN PROCESS $31,007,654.05 Construction Equipment Accounts $559,672.22 Office Building 7,261.63 Sand Plants 35,792.46 Maintenance Yards 103,744.70 Powder Magazines 10,654.66 Stores Accounts 64,833.38 Motor Vehicle Fund Charges — Paid from Highway Funds (to be credited later) 72,392.54 Administrative Expense 3,136,790.87 3,991,142.46 Total Expenditures Highway Funds $34,998,796.51 Highway Maintenance $4,592,720.94 Maintenance Equipment $613,729.48 Stores Account 26,418.83 County Expense 21,892.92 Administrative Expense 525,788.75 1,187,829.98 Total Expenditures Motor Vehicle Funds 5,780,550.92 County, Municipal and Private Contributions 632,120.73 Special State Appropriations Expenditures 97,683.99 Federal Aid: Expenditures for Projects $59,571.76 Discount On 3rd State Highway Bonds 222,160.50 281,732.26 Total Expenditures $41,790,884.41 CASH ACCOUNTS: Office Fund, Headquarters $125.00 Office Fund, Divisions 42,500.00 National Bank, D. O. Mills & Co 38,777.34 Farmers & Mechanics Bank Revolving Fund 29,000.00 California National Bank Revolving Fund 1,780.76 Capital National Bank General Fund 15,292.13 Capital National Bank Revolving Fund 10,537.42 Total Cash $138,012.65 FUNDS AVAILABLE: First State Highway Fund $100,000.00 Second State Highway Fund. 55,179.09 Third State Highway Fund 3,819.28 • Motor Vehicle Fund 367,264.07 Special State Appropriations Chap. 746, Act 1917 167,624.37 Federal Aid 286,451.51 Total Funds 980,338.32 Total Cash and Funds Available 1,118,350.97 TOTAL DEBITS $42,909,235.38 With these extensions the designated State account of the State Motor Vehicle Act, certain highway system now totals 5,560 miles. county, municipal and private funds, special It is to be noted that the California State State appropriations and Federal-aid funds. Automobile Association and the Automobile The total of these funds U P to Jul y h 1920, is Club of Southern California both took an active 142,007,330.07, made up as follows : part in campaigning in favor of the various 1st Bond Issue $18,002,129.00 , ,. , A1 ■ ,. • 2nd Bond Issue 13,000,025.00 bond issues and more recently in the campaign 3^ Bond Issue 3,000,000.00 to authorize an increased interest rate for the Motor Vehicle Funds '. 6'.539',563.2l ,, . , . , . County, Municipal and Private Funds. 632,120 73 third bond issue. Special State Appropriation 265,308.36 _, , „ . , . .. n Federal Aid Funds 568,183 77 Except for separate appropriations for salar- ' ies and expenses of Commissioners and High- Total $42,007,330.07 way Engineer, the funds put at the disposal of The total expenditure 1o July 1, 1920, is the State Highway Commission consist of those $41,790,884.41, made up of expenditures for con- funds derived from the sales of bonds issued, structioji and maintenance as shown in detail fifty percentum of the net money collected on j n the financial statement above. 19 STATEMENT OF CONDITION CALIFORNIA HIGHWAY COMMISSION FUNDS JUNE 30, 1920 CREDITS First State Highway Bond Sales $18,000,000.00 Premium : 2,129.00 Second State Highway Bond Sales 13,000,000.00 Premium 25.00 Third State Highway Bond Sales 3,000,000.00 Total Highway Funds $34,002,154.00 Borrowed from Motor Vehicle Fund 506,000.00 Total Available for Highway Expenditures $34,508,154.00 Motor Vehicle Apportionments ' $6,539,563.21 Loaned to Highway Funds 506,000.00 Total Available from Motor Vehicle Funds 6,033,563.21 County, Municipal and Private Contributions 632,120.73 Special State Appropriations: Chapter 704, Act 1915 $7,321.86 Chapter 708, Act 1915 7,986.50 Chapter 748, Act 1917 250,000.00 Total 265,308.36 Federal Aid 568,183.77 Total Available $42,007,330.07 Deferred Liabilities: Vouchers payable $747,960.64 Unclaimed wages: Highway Expenditures $3,230.51 Motor Vehicle Funds 714.16 3,944.67 Total Deferred . . , $751,905.31 Reserves : First State Highway Fund Reserve $100,000.00 Second State Highway Fund Reserve 50,000.00 Total Reserves 150,000.00 Total Deferred and Reserves 901,905.31 TOTAL CREDITS $42,909,235.38 SYSTEMS DESIGNED The system of State highways laid out in separately the adjoined routes provided by the 1896 by the old Bureau of Highways totaled Acts of 1915 and 1919. approximately 4,500 miles, which was about 10 The mileage of the system of 1909 is approxi- per cent of the total of 45,056 miles. No con- mately 3,082 or 6.4 per cent of the estimated struction was done on this system as such. total mileage of 45,009. 2 In 1916 the total mile- The law authorizing the bond issue of 1909 age in California was estimated by the U. S. provided for a system of highways and the laws Bureau of Public Roads at 61,039. The com- of 1915 and 19/9 extended the 1909 system as 'bined mileage of 1909, 1915 and 1919 is 5,560 or above mentioned. Complying with the condi- 9.1 per cent of the total estimated road mileage tions imposed by law the State Highway Com- in the State for 1916. mission laid out the road system shown on the Plate III is a map showing the system laid relief map 1 of the frontispiece, which also shows out by 1he State Highway Commission in'fol- — lFrom the model by Professor N. F. Drake of Leland Stanford ^Estimate by the U. S. Bureau of Public Roads in 1909. A University. ' similar estimate for 1904 was 46,653. 20 PLATE III. CALIFORNIA st.vit: i ii' ;i iv\.\v systkms mi: kkiih-vis A<;i:f<"ii.TruAi/AHi-:\s 21 lowing out the. provisions of the law of 1909, and separately the adjoined roads described in the Highway Acts of 1915 and 1919, and the relation of all these roads to the land classed as agricultural. The combined system is divid- ed into numbered routes and these routes within each county are subdivided into lettered sections. The roads in this combined system are those which the State Highway Commission has been engaged in improving. RELATION OF TOTAL SYSTEM TO AGRICULTURE AND POPULATION. It will be seen from Plate III that, although the system of highways laid out by the Commis- sion under the Act of 1909 is a restricted through system, which in general parallels the railroads, it supplies, to a considerable extent, market roads for the great agricultural valleys. The land classed in this map as agricultural is plotted from the data of the U. S. Bureau of Soils and from that of the University of Cali- fornia. It is clear that the systems adjoined by the Legislatures of 1910 aud 1919 are also well placed to serve additional market areas. The system of roads laid out in compliance with the Act of 1909 served directly about 47 per cent of the State population exclusive of the people of San Francisco and Los Angeles (as listed by the detailed census figures of 1910 for incorporated cities). These proposed roads also served directly an additional unknown per- centage of the rural population living in small unincorporated places and consequently not listed separately in the census but on the high- way, and lastly an indetermined increment of rural population not living in such incorporat- ed and unlisted cities but close to the highways. If the cities of San Francisco and Los Angeles are included it may, therefore, be estimated that at least G6 per cent, of all the people in California in 1910 lived on or immediately ad- jacent to the highway system laid out under the first bond issue. The available 1920 census figures show that at present 54 per cent of the population of California, exclusive of San Francisco and Los Angeles, live in places on or immediately adja- cent to the system of highways now built or projected (including those highways to be built under the third bond issue) . Furthermore, the figures show that while the total increase of population in the State was 44 per cent, from 1910 to 1920, the increase in listed population only on the highway built and proposed and not including San Francisco and Los Angeles was 03 per cent. ORGANIZATION The organization of the State Highway De- partment prior to 1920 is shown in Plate IV, "Organization Chart for 1918" ; Plate V, "Or- ganization Chart for 1920," shows the organi- zation as modified January 15, 1920. Comparison of the two organization charts shows that the principal change made in Janu- ary, 1920, was an increase in the Highway Engi- neer's staff from one to six. This staff now consists of a construction engineer, a mainte- nance engineer, an equipment engineer, a bridge engineer and two general inspectors. The construction engineer directs the con- struction work. He is the senior staff engineer and in the absence of the highway engineer acts in his stead. The maintenance engineer directs the work of maintenance. The equipment engi- neer has charge of all equipment and of its care and maintenance. A bridge engineer has charge of the design of all structures. The general in- spectors, one assigned to the northern part of the State and the other to the southern, act as the field representatives of the highway engi- neer. It is believed that the recent increases in the staff will considerably facilitate the handling of the great volume of business passing through the offices of the Highway Engineer. Other branches of the headquarters organi- zation are a legal department, which handles right-of-way matters, a disbursing department, an accounting department, a purchasing de- partment and a headquarters engineering de- partment, all of which are shown on the charts with a suggestion of their duties. The headquarters organization at Sacra- mento at the present time consists of about 71 employees. The State is subdivided into seven divisions with a division engineer in charge of each. A division office is maintained in the principal city in the division. The division engineer has responsible charge of the location, construction and maintenance of the State roads and high- 22 PLATE IV. Id _l 0- o Id Id X h- a. D h < -J t/> O ul O z (£ UJ ' > O o ID Z DC UJ 15 Z u u. o I- z u QC <■ a. u o a < o CD > o > < u u z Jn r* ;y a: so 15 r'Q o 4 u riiT Z z u 4 r- r- 4 J 111 in l >• a. < 1 — ' z ul £ If) 1- u 4 ir a a ul 1- a u »n z 4 _i a. a 4 o or u i- < -J U) J VI it 4 ¥ z u £ It bl u J J V) u 1 — 1 o H I a a. bl 3 u o z -1 o -J a a s O Ul vt V) z < J z a z u IA Ul tft z > u < H ui Irt h t- D u i h b a r> < 4 tr o u 4 tt. or at Ul a Ul Ul Z in j j a m o < Z — u r u z 3 Z 4 - 4 o (S z Ul O Z I in 71 z < O 4 4 * a u a z in rx a> U) Q w u. O i!> Z in it 3 m Ul o in i- z 4 H !5 10 in 4 in t- z D O u 4 Z 4 CO 1/1 a z 3 b bl o u IL > ul _ z It o _ 23 PLATE V. 53 o I — I L_, CO ^ & 00 l — i ^ IS1 g I — I ■ JH ■ a Id _J u a O h o z Id- a _1 I/) 01 > Id o o »0 I LU H u) o <": z * w V) £<■> 3 ea z o «-» o e o z Id rH> a K z oc z X •< < 00 z H ul o IT u z u) in or ui h- ai z < 10 ul s t 1 3 a o < H a a o SI i- •- f «» •? fe z t o " O 5. LJ CD iD 1 1 tn -1 •< OC ul J z Ul O 5 u _ (J z VI [T Ul u < o < D z a < u L. 4 a. 01 u. Ul Q t Q u o 1- T Z 19 z z < 3 O •J U. to ui u Ul a c wdwN^oo6woJ«^i>H i-i rHrHrHrHrHC^ iH T-l . rH iH tH oq co © Ttj -* cq_ ■* © Ttj oq © cq co ■* cq cq *■* cq os oq ** oq ** cq t-; as co rH oq cq cq ■«* t>COWCO*^*lOOSo6cO^^"«COCqc0^rHir5^^l>U^L3^0^NWcDLd Pass. No.' 30 Ret. No. 40 OCCOWl»OONNOCOtOWN^001NOJNt>HOOqMOO , *«a'^q?OOOTt< cdcoNid^^w^c0^cocoeo'cq*cdi>-ootfSid^^-idwiocq Pass. No. 20 Ret. No. 30 i-t rH rH rH rH rH i-H rH rH rH rH Pass. No. 10 Ret. No. 20 ©oqq^qMNNoqwqqq^N^owqqwoocotooo^qoN^OM HWN6^^'WM^'wdd^T|I«M^rld^HMdWN0ddNM^T|H|> rH rH rH rH iH rH rHrH H H H H ri rl H rl ri H H H rHrH cq rH rH rH rH Pass. % inch Ret. No. 10 oooM^qoooNMq^ooNqojuooNNwqqooNooNoo^qq^ M»odd«ujNsgV©N66i>i>uiHdo)^riNoi6i>PHw6^ciw HMCOHNNHH NCOMMWHHHNHNNIM HMMNHN Pass. % inch Ret. % inch to co ^" ^*no qq^toq^owoH oq rH -^ ©oOi-ii^cqcqcqoq rH t^ cq* TP^idcd cnj co cq rH oo **' id co" t> ■* rH id co t^cdcqi-HTtico^cq' rH « B.P.R. Lab. No. 1 1 ^iWCOt-t^t-OOaJOHNCO^lOlOtfiC-OOOJOrHNM^WtOt-OOOOHN HHHHOSO>OJQOOOOOOHriHHNeO«MMWMM«MM'*'* 1 * OOOOOOOOOOOOQQOOOiOSaiOSOSOSO©©©©©©©©©©©©©©©©© HHfliHHHHHH rH'rH HHHHHrlHHHHrlriHrlHHrlHHHH a o a a o J o 0> d O a) 3 O ffl^WOWH<3^<3WHM O a. Z oo at" o a) J3 .a o. o a o a H vM S 3 S- 5 ^ «-. ^ ^3 *3 CD OJ g K ffi CO CO CO _ cfi aj g Cm fc 3 e a ri ! » Z oi ai nj cq -<* J M N 28 WORK DONE The State highway system, shown in Plate III., on July 1, 1920, totaled 5,560 miles of roads. Of this mileage 1,345.4 miles were com- pletely graded and paved, and 337.1 miles were graded and not paved. In addition, 319.4 miles were in process of grading and not to be paved and 206.8 miles were in process of paving with Portland cement concrete. Sixty-six miles of the pavement were reported to be reinforced. Of the paving, 765 miles are built with Port- land cement concrete unsurfaced (of which 47.6 miles are reinforced), 480.7 miles with Port- land cement concrete surfaced %-inch thick with bitumen, 53.9 miles with Portland cement surfaced with 1%-inch Topeka, 4.2 miles with Portland cement concrete surfaced with Will- ite, 0.9 miles with Portland cement concrete surfaced with Bitucrete, 6.0 miles with asphal- tic concrete on macadam, 0.9 miles with Willite on macadam, and 33.8 miles with oil ma- cadam. 1 The summary of construction proposed and done as of July 1, 1920, under each separate bond issue is shown by the following tabu- lation : 2 BOND ISSUES 1909 . 1915 . 1919 . MILES PROPOSED 3,082.3 679.71 1,798.0 3 MILEAGE ACTUALLY CONSTRUCTED 1,300 550 80 Totals... 5,560.01 1,930 4 In the following tables, Table 2 shows, as of July 1, 1920, the details and costs of the survey, plan and construction work done and in prog. ress, arranged by State divisions, routes, coun- ties and sections ; Table 3 is a reconciliation of the work-done schedule with financial statement showing condition of fund; and Table 4 gives a recapitulation. These tabulations are from the official records of the Commission. Certain projects there shown were improved by con- tract and others by day labor; those done by day labor are indicated by the letter D in the column headed "Contract No." Following these tables are three tables which show in Table 5 a resume of estimated costs and pay- ments made for labor and materials on both contract and day-labor road construction work by divisions to July 1, 1920 ; in Table 6, a simi- lar statement for contract work only, and in Table 7, a similar statement for day-labor work only. In Appendix B is shown a study in greater detail of 10 contract and 10 -day-labor jobs se- lected from Table 2 and showing the greatest percentage of increase in final cost over pre- liminary estimate. iMuch of the work of construction and surfacing with oil top, etc., done by the State after July 1, 1920, was classified, and, consequently, corresponding differences appear in the tables on classification. 2 Figures do not include contracts for surfacing only. 3 One hundred and thirty-four miles maintained under Special Appropriation Roads. 4Mileages shown under various bond issues overlap in some instances due to the fact that separate contracts were let for grading and paving covering the same section of road, or a portion thereof. 29 E «ti h Jfe! -l ,-1 ■*#e» ooos rico ©en i< t- m co c- co oj -<* eo en en oo en en gm cm co ^ ©cooiot-oo ooin oacsixnocoini-icncpcoojmooi-Hi-icoo^r'm CgMHH IHrt lT H ICM-HCOCMJ.tHTM,H iii iO>< I CD o ■ CD I ©•^ooih ©oo r-i en -rrc }< en n cm r-i c- co © to ^p co co en en cm cm °? cm V j* as«g jo suoiq.JodoJ[j[ 3-mpcipj .as i PS H si e- 1 r O m >-g. 3 2" :cq :« SIS roO s- 2? o .o a> bo « bo a> S bo v s|.e'e« £1 £1 ir SIS paasSjgSa&g £0^ to J s3 nwr '-IH rHlO iH rH ,-, CN i-l CD i-H : B :g : g§ : . coco hTO s OS'OfZ O V « O bo 11"- HOtcn N*-<*tft> OH l> CO co od HO oacg o o H o ^S H 6 O O 1) ° D, c3 ' 0: « S -p bo bo h£ S 5 ife ■?t 2» s< C0J4 is W.S « 3 JO t« i : 5o&J r oO c 8 2 M O JiriJ CO o « 'h'3 Q *>2 bo« bo«— 2 & » H fe « P= cga^& g gptg^QJ; y^fg mM« "C t3 t; "o 3 I E : ::;-;;. : •::■== ' - = = : = E= _; ; . 2 2 s a 3 « a a oom ifOiOHOOinM^ioiDtDiflt-^inoiOiij © en" en ■rftco ■* co -^< f-i m co en c- © m co co © cm >-i o co "* t- cm ■<# o Ca tr- io •8 .3 a a-sg 10 1-i io eo" 1 w t- o ■^ o ee to £3 S 00 oo" CO i-H o* O? ri to CM Pk fc 03 69- B > bo ^ i-HlO Oi 5 +3 « c bo . § H "5-S c'-S OS OS CO o_ P 09 S3 2 » gs ■oSuoo t- , -5 a) an 3 .23 =o £ eo- o] c- w <3& to -^ ■* u rt ■<* aS «H g.2 2 u Cft OO) «J +> i-H NrH Q s CO U3CO i-H 1 o U z o astg J° saoi^aodojj CO ojnjxipi > 5 >> B >>> a. aj-^ 1 > > -B > > U M raw ffi I- 1- COQK (S3 OS to •^ e sa[!j\[ c t> c tpJStMl o> « £ « -o B 3 O o « Eh >» ■u w a 63 b o +J a CJ o J I fa 13 a m JS ■*->. 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CO Or^ 18 »5 f 8* S3o a o) W I*' f— 1 • UU -r— 1 1,-J h-> o o) o a tn hh K o „ M .a ^ 0) tH 03 , o> 3 go C3 CO S » Niob ' CJSrH ■ co co -J « -w « 0) 0) j5 1 •"• "C! ■ h- CD O y tn o) 03 5 S _. o aoo„o^° o) tj ^a " si HJ 1 2 O +j (D 2 - ^^.S QJ CO +j w +i co «m £3 oa co ' -il^loS- « 5 ti *S3S*fl SO) 0) 0) 0) 0) 0) Ml M Ml a a a 0) 0) 0) '■"aOa-nOHHlO) a § S|lS«l a-o—igis'-Hr* — 1 "3 0) «h a a a t: • o h-> HJ -t-> a o o O vm S -P-P+J H ft .a >» «H '^~^^W5«k!i sP^S^^w ft f-TflfJ jB&ft CONCRETE BOX CULVERT. 5 ALAMEDA B. CONCRETE CULVERT. 5 ALAMEDA B. 66 PLATE XIV-A. ^^rsi*;.^!!;^:^ ■ -r:r^"X'^ ,m^t'^ *"* YOLO CAUSEWAY. THREE-SPAN CONCRETE CULVERT. 7 TEHAMA A. G7 proaches. Completed 1918. Designed by A. V. Saph for the California Highway Commission. Built by the California Highway Commission. Cost |175,000. Santa Barbara County paid part of cost. "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. "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. "Stony Creek, Glenn County. An earth-filled arch bridge of 13 spans vary- ing from 70 to 100 feet. Built by Glenn County. Completed 1914. A typical earth-filled arch bridge. "The foregoing bridges are examples of the types which may be considered standard con- struction. The prevailing type of bridge on the State highways is the short-span, reinforced concrete girder. "On the whole, the results of this co-oper- ation (county) have been fairly satisfactory, but in some instances a disposition to build bridges according 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 stand- ard. 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 em- barrassing controversies in the future." At present the required uniform live load for the floors of steel bridges, trusses and girders less than 60 feet long and for concrete bridges, except earth-filled arches, is 125 pounds per square foot. For earth-filled arches 150 pounds per square foot is assumed. The uniform live load for girders and trusses is gradually re- duced from 125 to 100 pounds per square foot, for spans between 60 and .100 feet long and also further reduced from 100 to 70 pounds for spans from 100 to 250 feet long. The present specification provides for the concentrated load of a 20-ton motor truck and the maximum stress from either the uniform or concentrated load is to be used. For floor beams two trucks are used. The unit stresses are increased 15 per cent for this condition. From a study of design loading in use by 36 of the State highway departments, it is found that, while the California assumptions are not as high as those used by some of the State highway departments, they are from 10 to 20 pounds per square foot above the average for uniform loads for spans less than 200 feet long and less than tbe average for spans over 240 feet long and about as high as any for con- centrated loads. The bridges and drainage structures built by the State Highway Commission are in general adequate and well designed and constructed. Some of the larger structures are of noteworthy elegance in design. The Yolo Causeway is prob- ably the boldest highway structure of its kind in America. It is to be noted that many streams in the flat valleys demand bridges of excessive length to provide for flood stages. Consistent efforts appear to bave been made to eliminate dangerous grade crossings, but much remains to be done. The practice of setting concrete bound- stones at all points of curvature and tangency to mark the State highway right of way has been consistently followed. MAINTENANCE. The statement of the condition of the funds shows a total expenditure for maintenance from the Motor Vehicle fund of $5,780,550.02. The items making up this amount are shown in the reconciliation, Table 9, and by State, divi- sions in the recapitulation, Table 10, of which Schedule J following is a part. TABLE 9— RECONCILIATION OF HIGHWAY MAIN- TENANCE SCHEDULE, CALIFORNIA, WITH STATEMENT OF CONDITION OF FUNDS, JULY 1, 1920. Total direct charges to highway maintenance per divisional sheet $4,276,211.77 Undistributed charges including: I. Injuries to employees . . . $15,328.17 II. General expense 49,463.84 III. Maintenance of plant 17,947.78 IV. Repairs to motor vehicles 146,208.49 V. Repairs to other equip- ment 62,732.34 Undistributed overhead, removed from direct charges by analysis —since July 1, 1920 24,828.55 316,509.17 Highway maintenance, direct charges, per statement of condition $4,592,720.94 68 It will be noted that the total of the so- called "direct charges" (exclusive of equip- ment) amounts to $4,276,212 so that the indi- rect charges, equipment and overhead amount to $1,504,339. Of this latter amount, however, $613,729 was spent for equipment, much of which is available for use on future mainte- nance. Deducting this item, there remains $890,610 gross indirect charges and overhead. It is believed fair to assume that there is equipment on hand to the value of $500,000 and that the direct charge should be increased by the difference of $113,729. There is a stores account of $26,419, and a county expense item of $21,893, neither of which should be charged against maintenance work already done. De- ducting the total of these two items or $48,312 from the gross indirect charges and overhead, there results $842,298, or an addition of about 19.2 per cent of the direct charges and depre- ciation on equipment. The overhead is 12.5 per cent. This percentage seems high for mainte- nance work and indicates the advisability of study to secure a more economical handling of this branch of the Commission's activities. The direct charges, not including depreciated equip- ment, are: General maintenance proper, $2,470,836 ; improvement, $1,577,691 (which is a construction item) and reconstruction, $227,- 685. The true corresponding direct main- PATCHING CONCRETE. 7 SOLANO E. FENCED REPAIR JOB. 4 KERN C. 69 t- 00 CO rP OS CS CD rH M Ol lfl (N rH LO |> LO a « LO CO co cq" CO t> CO ©" IS -w © CO © £> CO t- CM 00 b o CD lf5 cq OS IC LO OH «* rH rH 09- C0_ rH ^ GO -^ TH CO iH OO 1 CQ T; CD 3 « O O CD K 2 -o ^P tH CO 00 US 00 C- rH oo_ i£5_ " CO ©* t> *■* o oo co ia rH ia ~ g ^ «■ rH rH ia g si 6^ O CO OO t- t- 00 CO 00 '© i cd io co ©_ CD CO rH 0) S tH rH* CO* i£ tH* Cq" ©" co" ■^ ■«* ia tf Tfi th ia rH CO 6*3- ; - rH cq - • • co ■w en CO CD U3 CO as CO 3 0} ©"rH rH rH rH cq o a, m- O « H t-OlWCOOWIM CO CO ' n. 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CM* CO Eh 1=1 lO Lft ^ CO CO CO co o la © rH rH W o o CD tH OS z OS CO CN O0 CO CM CO CD rH © rH Eh CO O O CM CO *9- €©• S9- WJ Q 2 a o> © CO t- © t- to rH OS -*' ■* © rH © K CO CD t- CD -^ OS <1 IC CO US CD CO OS OS CM 00 CD CD CO CO CM ^ <=V9- 6^- 03 r/j Ch -4-» cq CM r~i T-i y-i © ^H o CO :■> rH a w LO t- CO © i-i O OS rH ©_ ee- ««- o — — . — tH OWcqpq cs3 to O m pq m rH rH CO _L 1 T 1 T ^ CD 1 v I 7 CO 03 h O > H<1 a c> - "O o 03 -*-> CD *J CO ■"■a S tssS c o Jh ° s oof a i— t S ^ rH 74 PRESENT CONDITION OF CONSTRUCTED ROADS To determine the present condition of the Portland cement concrete State highways and of pavement of other type incidentally laid, held inspections were made of 1,734 miles of paved roads. These inspections were in such detail that each one-tenth mile of concrete could be classified ; 7,500 photographs were taken and l>38 sample concrete cores were drilled at in- tervals from the pavement. (In addition to the pavement inspected about 350 miles of graded State highways without paving were also in- spected with special reference to the features of grade and alignment.) All inspections were so organized that a thorough initial examina- tion with photographs was first made, directed by such supervision as was found necessary. Then as fast as the data from those inspec- tions developed, supplementary and more in- tensive studies were organized to cover portions of the pavement which presented unusual features or defects. Finally a complete field inspection of the entire pavement with photo- graphic record and field notes in hand was made as a check prior to the compilation of linal figures. All inspection field work and photographs were made with two main purposes in view: First, to determine the present condition of the highways with respect to serviceability or usefulness to traffic, and second, to determine the present physical condition of the pavement itself and the quality of the work done. CLASSIFICATION. To systematically describe the present physi- cal condition of the concrete pavements, whether oiled or not, they were classified into six classes designed by the letters A to F. It is particu- larly emphasized that with the exceptions of those sections of the pavement which contain failed portions all of which are classed F, and also with some additional minor exceptions in the classes E and F, the classification by let- ter lias no necessary relation to the present serviceability of the highways. Classes A to C inclusive, are for practical purposes at pres- ent equally serviceable to traffic. Class D sel- dom presents bad travel conditions; Class E includes some pavement which is rough to travel and Class F in several instances pre- sented pavement very difficult to travel. It is to be noted, however, that where pavement is impaired to such an extent that repairs become necessary which result in fencing of consider- able portions of the road against travel, then physical condition of the pavement becomes an impediment. Classes D, E and F frequently require such repairs and reconstruction. The following definitions of the descriptive classes for cement concrete pavement were adopted. A. A pavement in which the plainly visi- ble transverse cracks do not exceed the normal number expected of a pave- ment constructed without expansion joints, and which has no plainly visi- ble longitudinal cracks. B. A pavement having more than the nor- mal number of plainly visible trans : verse cracks or with some "crowfoot" cracks at the edges or with both. C. A pavement similar to classes A and B and with one plainly visible longi- tudinal crack or with a considerable number of "crowfoot" cracks. D. A pavement so cracked transversely and longitudinally that numerous slabs are formed of less area than in Class C, but that do not average less than about 50 square feet. E. A pavement in which the plainly visi- ble transverse and longitudinal cracks are so numerous that it is broken into slabs having areas less than about 50 square feet but in which no general disintegration appears. F. A pavement badly broken and with disintegrated portions. The engineering inspection in the field de- termined by tenths of a mile, as measured by automobile odometer, to which of the above classes all concrete pavement belonged. This classification operation disregarded the pres- ence or condition of the %-inch asphaltic oil surfacing but sometimes where such oil surfac- ing was present, or particularly where it had been recently applied or renewed, the obser- vation of cracks and other defects was made difficult and for this reason 26.2 miles of con- crete pavement with new laid %-inch oil top was not classified, nor for similar reasons 50.39 miles of concrete "pavement-base" with li/^-inch Topeka or similar top. On sections with %-inch oil top an error in classification may be assumed to be one which tends to raise rather than lower the class. This is particu- larly true as between Classes A to C inclusive. The record of this field inspection for classi- fication is presented with explanatory legends in the "Condition Diagrams," which constitute 75 PLATE XV. z u o cc ui a. DIAGRAM SHOWING PRESENT CLASSIFICATION OF PAVEMENT LAIO EACH YEAR FROM 1913 TO 1920 76 PLATE XVI. DIAGRAM SHOWING PERCENTAGES OF CONCRETE PAVEMENT CLASSES, IN SURFACED AND UNSURFACED PAVEMENT 45 40 35 30 25 Z LJ U 20 15 10 SURFACED ^UNSURFACED 77 Plates XC to CXLV inclusive, in Appendix J, and which are arranged according to the stand- ard numbering system of the State Highway Commission for route, county and section. The horizontal scale of these diagrams is two miles to the unit and the classification of the pave- ment by tenths of miles is schematically indicat- ed by negative ordinates to an arbitrary ver- tical scale. With reference to the descriptive classifica- tion of the 4-inch concrete pavement itself, it is to be noted that cracking is mainly the basis of measurement of classification and that prac- tically all the pavement laid by the California State Highway Commission was without trans- verse joints. The classification required judg- ment in many instances to evaluate mixed classification within a tenth of a mile and also to evaluate unusual combinations of defects. It is not mathematically rigid and is subject to some small error of position in the sections due to differences in odometer calibrations. In the main it is correct in detail, and the totals are probably subject to very little error. For all other than concrete pavement such classi- fication as excellent, good, fair, etc., only was made. The results of the concrete pavement classi- fication are summarized in Tables 21 and 22 and in Plates XV and XVI. In addition, Table 23 presents a classification of concrete pavement and subgrade soil and Table 24 shows the mileage of all pavement and other roads constructed in the California State highway system. There are also shown in Plates XVII to XXIV inclusive a series of pho- tographs of each class of concrete pavement above described. TABLE 21— SHOWING THE CLASSIFIED CONDITION OF CONCRETE PAVEMENT BUILT EACH TEAR BY THE STATE HIGHWAY COMMISSION. CONCRETE WITH %-INCH OIL TOP. YEARS CONSTRUCTED. Class 1913 1914 1915 1916 1917 1918 1919 1920 Totals A Miles 2.83 5.83 3.85 1.83 .10 6.00 Miles 71.35 63.75 18.27 2.67 .40 11.50 Miles 135.59 89.44 60.19 11.40 2.40 19.04 Miles 26.90 15.19 6.49 1.75 .35 Miles 2.87 1.79 2.81 1.50 .10 Miles .27 • .63 Miles .04 Miles Miles 239.85 B 176.65 c 91.61 D 19.15 E 3.35 P - 36.541 Total 20.46 167.94 318.06 50.68 9.07 .90 .04 567.15 2 UNSURFACED CONCRETE. Class 1913 1914 1915 1916 1917 1918 1919 1920 Totals A Miles Miles Miles 3.74 16.91 7.98 3.25 .75 .10 Miles 46.48 104.43 46.92 30.84 11.20 5.13 Miles 3.78 24.50 ■ 12.47 , 7.16 2.19 Miles 37.27 48.87 24.37 10.24 3.29 .05 Miles 53.87 66.78 23.90 12.20 8.23 .25 Miles 33.24 37.32 4.15 1.60 1.00 .10 Miles 178.38 B 298.81 c 119.79 D 65.29 E 26.66 F 5.63 Total 32.73 245.00 50.10 124.09 165.23 77.41 694.562 lThis total includes 17.75 miles of new Topeka on concrete pavement classified as failed. 2 There -were 26.20 miles additional of %-inch oil-top concrete which, on account of new surface, could not be classified ; 2.7 miles laid in 1916, and 23.5 miles laid in 1916. There were also 26.56 miles of additional unsurfaced concrete pavement that was inac- cessible and not classified ; 6.99 miles built in 1916, .44 in 1919 and 19.13 in 1920. In addition to these unclassified items is a total of 50.39 miles of unclassified concrete on which 1%-inch Topeka and some Willite has been laid. 78 TABLE 22— SHOWING ALL CLASSIFIED CONCRETE PAVEMENT BUILT BY THE STATE. (SURFACED AND UNSURFACED COMBINED.) Year Built 1913 1914 1915 1916 1917 1918 1919 1920 Totals Class Miles Per cent Miles Per cent Miles Per cent Miles Per cent Miles Per cent Miles Per cent Miles Per cent Miles Per cent Miles Per cent A B C D E F 2.83 5.85 3.85 1.83 .10 6.00 13.8 28.6 18.8 9.0 0.5 29.3 71.35 63.75 18.27 2.67 .40 11.50 42.5 38.0 10.9 1.6 0.2 6.8 139.33 106.35 68.17 14.65 3.15 19.14 39.7 30.3 19.4 4.2 0.9 5.5 73.38 119.62 53.41 32.59 11.55 5.13 24.8 40.5 18.1 11.0 3.9 1.7 6.65 26.29 15.28 8.66 2.29 11.3 44.4 25.8 14.6 3.9 37.54 49.50 24.37 10.24 3.29 .05 30.0 39.6 19.5 8.2 26.6 01 53.91 66.78 23.90 12.20 8.23 .25 32.6 40.4 14.4 7.4 5.0 0.2 33.24 37.32 4.15 1.60 1.00 .10 42.9 48.2 5.4 2.1 1.3 0.1 418.23 475.46 211.40 84.44 30.01 42.17 33.1 37.7 16.7 6.7 2.4 3.4 Totals 1 20.46 100 167.94 100 350.79 100 295.68 100 59.17 100 124.99| 100 165.27 100 77.41 100 1,261.71 100 Per cent of total ecch yar 1.7 13.3 27.8 23.4 4.7 9.9 13 1 6 1 inn TABLE 23— CONCRETE PAYEMENT CLASSES AND UNDERLYING SOIL TYPES. Total Per- Miles In Each Class centage in Classes 1 1 D, E Classes | A B C D | E F Total and F Soil Type 1 1 131.9J225.7 116.1 58.2 24.2 27.5 583.6 18.9 2 0.3 0.9 0.2 0.1 0.0 0.0 1.5 0.0 3 89.5 104.9 •56.0 11.5 2.0 9.0 272.9 8.2 4 156.8 124.1 38.1 11.7 1.6 5.5 337.8 5.6 5 53.2 34.8 8.5 3.1 2.3 0.2 102.1 5.5 Total 431.7 490.4 218.9 84.6 30.1 42.2 1.297.9 1 12.1 1. Clay and adobe soils (includes clay, silty clay, clay loam and clay) . 2. Marsh Lands (includes salt marsh and peat lands). 3. Loams (includes loam, clay-loam, silt-loam and silty clay- loam). 4. Sandy loam (includes coarse sandy loam, sandy loam and fine sandy loam). 5. Sand, and sand and gravel. i Includes 36.2 miles built by counties. TABLE 24— SHOWING ALL ROADS CONSTRUCTED STATE SYSTEM BY TYPES AND AND UNDER CONSTRUCTION IN THE CALIFORNIA BY YEARS COMPLETED.* 1913 1914 | 1915 1916 | 1917 1918 | 1919 | 1920 | Total LAID BY CALIFORNIA STATE HIGHWAY COM- MISSION. Miles Miles Miles Miles Miles Miles Miles Miles Miles 20.46 167.94 318.06 32.73 7.74 50.68 245.00 2.09 6.99 23.50 9.07 50.10 3.44 .90 124.09 4.24 .04 165.23 .44 79.41 1.40 19.13 567.15 694.56 Concrete, unclassified surfaced with 1^-inch bituminous 11.15 20.33 50.39 2 26 56 3 2.70 26.20 31.61 188.27 361.23 328.26 62.61 129.23 165.71 97.94 1,364.86 140 05 19.04 7.64 16.37 8.22 .31 7.36 .07 8.27 4.91 .91 55.44 4 17 66 Total paving of all kinds built by California 50.65 212.28 1 369.76 335 62 62.68 137.50 170.62 98.85 1,578.01 377 10 319.40 1 2,274.51 LAID BY COUNTIES AND INCORPORATED IN STATE SYSTEM. 22 81 101 13.58 171 15 16.54 225.09 lApproximately as of September 15, 1920. 217.75 miles of 1%-inch Topeka or concrete which was classed F %-inch oil top. 3This total includes 9.26 miles of "double-decked" or second-story concrete, 415.22 miles resurfaced only, base built by county. included, but appears elsewhere under concrete surface with 79 PLATE XVII. CLASS A PAVEMENT. 9 LOS ANGELES A. CLASS A PAVEMENT. 4 MERCED A. 80 PLATE XVIII. CLASS A PAVEMENT. 1 SONOMA C. CLASS A PAVEMENT. 17 PLACER A. 81 PLATE XIX. WELCOME TO TOLME COMITY THE COUKTY OF- GOOD ROADS DIVERSIFIED PRODUCTS 1, AND PROSPERfTY - | CLASS B PAVEMENT. 4 TULARE A. CLASS B PAVEMENT. 4 LOS ANGELES A. 82 PLATE XX. CLASS B PAVEMENT. 4 KERN E, OIL TOP. '<:•:?• ■'■■■''-V'?--///??./":'.-, ■ wsmm CLASS B PAVEMENT, 7 SOLANO D. 83 PLATE XXI. CLASS C PAVEMENT. 7 SOLANO A. CLASS C PAVEMENT. 5 ALAMEDA A. OIL TOP. 84 PLATE XXII. CLASS D PAVEMENT. 8 SOLANO A. - ." ■' .'/•/ ;.•■■•' CLASS D PAVEMENT. 4 LOS ANGELES A. 85 PLATE XXIII. CLASS E PAVEMENT. 7 SOLANO D. CLASS E PAVEMENT. 4 KERN C. 86 PLATE XXIV. CLASS F PAVEMENT. 15 COLUSA A, OIL TOP. CLASS F PAVEMENT. 2 VENTURA B. OIL TOP. 87 PHOTOGRAPHS. Photographs at standard intervals of from one-tenth to five-tenths miles were taken throughout the inspection. Supplementary close-up pictures of special features or defects were also taken. The photographs supported the field classi- fications and checked in general with the notes but also tended to indicate a higher class than existed, particularly where oil surfacing was present. On the other hand, the photographs by foreshortening tended in exceptional cases to indicate as Class B some pavement that be- longed to Class A. All such cases were care- fully rechecked in the field but the oil-surface concrete is still probably classed somewhat too high and consequently the. diagram of Plate XVI must be interpreted with this in mind. The photographs arranged by routes are filed in the Bureau of Public Roads. SUBGRADE SOIL. Supplementing inspection of the pavement an inspection and classification of the underlying soil was simultaneously made and subsequently checked in the field by soil experts from the Bureau of Soils and the division of farm irri- gation investigations of the Bureau of Public Roads, all in the Department of Agriculture. The soil classification was also further checked by soil maps and other published and unpub- lished information available in the Department of Agriculture or at the University of Cali- fornia. This soil classification also is indi- cated symbolically on the condition diagrams in accordance with the legends there shown. In addition to the soil classification reported by the engineers in the field, a supplementary determination of the class of soil was made from several hundred samples of soil taken at those points on the different routes where it was deemed desirable to take sample cores of the pavement itself. Such soil samples were taken to indicate the soil and the subsoil to a depth of G feet, and these samples were classified by experts of the Bureau of Soils ; results from the classification of these samples were given precedence in any apparent conflict of soil classification. For those special portions of the pavement where intensive study was found desirable to determine the cause and nature of failure of pavement, additional soil samples were taken in considerable numbers and were examined in the laboratory of the University of California for moisture content and moisture equivalent, and the results are described in the reports on the special defective sections below. SOIL CLASSIFICATION. The classifications of the subgrade soil used and shown symbolically on the condition dia- grams of Appendix J are as follows : 1. Clay and adobe soils (includes clay, silty clay, clay loam and clay). 2. Marsh lands (includes salt marsh and peat lands). CRACKS IN ADOBE SOIL. 3 BUTTE D. 88 3. Loams (includes loam, clay-loam, silt- loam and silty clay loam). 4. Sandy loam (includes coarse sandy loam and fine sandy loam). f>. Sand, and sand and gravel. In connection with the photographic exhibits accompanying this report are shown photo- graphs of the laboratory experimental tests for shrinkage of various samples of soil of the above classes. SPECIAL STUDIES OF DEFECTIVE PAVEMENT. To investigate particular causes of failure on twelve sections of the State highway, where classification showed a large percentage of classes D to F, special intensive studies were mine alkali conditions and the source of mixing and curing water for all concrete. As a result of these 12 special studies there are reports in great detail on file in the Bureau of Public Koads. These reports show varying primary and secondary causes of failure. Among these causes subsoil and drainage con- ditions, particularly on new location, predomi- nate and poor and thin concrete follows. One failure is apparently due to construction of concrete pavement in the cool fall, winter and early spring seasons followed by the high tem- perature of July in the interior valley. Several reports raise the question of alkali in the mix- ing or ponding water or in the moist subgrade and particularly in basin or flat valley areas. ALKALI CRUST ON ADOBE SOIL. 7 GLENN A. made over periods of from 3 days to 14 days by 6 senior highway engineers of the Bureau of Public Roads. In each case the interval of construction, the name of the contractor and resident engi- neer, the nature and source of materials, the available reports of State inspectors, weather and other details surrounding the work were carefully determined. The test results of ma- terials used were also investigated together with the reports of tests of concrete by the laboratory of the State Highway Commission and of concrete cores drilled from the pave- ment. Extensive investigations of drainage conditions on the ground and in the vicinity were also made and local people were inter- viewed and a special effort was made to deter- Other contributory causes are dirty sand and poor curing, lax inspection of mix, rough finish and impact of heavy truck traffic and combina- tions of two or more of the above causes. The State repair trucks over-loaded with material have greatly contributed to the completion of failure during repairs on parts of the same or nearby sections. A special effort was made to determine the nature of the subgrade soil and its moisture content. All of these investigations were made between the middle of September and the first of November and the soil studies occurred largely in September and early in October, at the end of the dry season. It is to be noted also that the season of 1920 was usually dry and that previous seasons had also been notice- ably dry ones. 89 The soil investigations required borings to be made at intervals across the entire section of the roadway and to a depth of about six feet. From six to eight such borings were made in each instance on 35 sections. They were made with a 2-inch soil auger in the center of the pavement and at the edges and through the embankment in fill, and in the ditch line in certain instances. The samples which were brought up from the various depths were im- mediately placed in tightly sealed tin cans and shipped to the soil laboratory of the University of California, In all 1,207 such samples were taken. In the laboratory three principal tests were made on the soils : a. Soil moisture determination. b. Moisture equivalent determination. c. Contraction or shrinkage measurement. SOIL MOISTURE DETERMINATIONS. The contents of each can were thoroughly mixed and reduced by rolling about ten times on a sheet of celluloid and duplicate 100-gram samples weighed into aluminum dishes two inches in diameter and one-half inch in depth. Moister soils were kneaded to a round mass. The filled dishes were weighed and placed in an electric oven for five hours or more (and all night in case of heavy soils) and all at a tem- perature of about 100°C. They were then cooled in a calcium chloride dessicater and again, weighed. The percentage was then cal- culated as the ratio (in hundredths) of the difference between the first two weighings (of wet and dry soil and dish) divided by the net weight of the dry soil so that the moisture content was the weight of the moisture loss in drying divided by the weight of the dry sample in hundredths (percentage). In all there were 1,428 such moisture determinations. MOISTURE EQUIVALENT DETERMINATION. 1 To develop a comparison basis for degree of saturation of soils,, moisture equivalent deter- minations were made on 150 type samples. The method of Briggs and Schauntz was used and consisted essentially in determining the amount of moisture that a sample can hold against a force of one thousand times gravity developed by centrifugal force. The contents of each can were air dried, reduced by rolling and sifted. The centrifuge used to drive off moisture held 16 sample cups and 8 samples in duplicate were run simultaneously. Two wetted check sam- ples were placed in cups directly opposite in the machine, which was revolved at a speed of 2,400 E. P. M. for 30 minutes. Then the samples were quickly removed to tightly cov- ered cans and weighed at once. The can lids were then removed and the sample dried over night at 100°C. The cans were then covered and when cooled were again weighed. The per- centage of moisture in the sample was then 1 See reprint from proceedings of American Society of Agronomy, Volume 2, 1920, "Moisture Equivalent Determina- tions and their Application," by Lyman J. Briggs and J. W. McLane. •..;.•-• "RIDGE ROUTE." 4 LOS ANGELES D. 90 determined as the quotient of the loss by dry- ing after removal from the centrifuge, and the weight of the dry soil. SHRINKAGE TEST. One hundred and forty shrinkage tests were run on the soil samples in order to determine the per cent of shrinkage under standard con- ditions. The soils varied from light sand to heavy adobe, and consequently contraction varied greatly and with the different degrees of saturation. Typical samples were dried and sifted and then wetted to about capillary saturation and kneaded and placed in aluminum cups to dry. The wet soil was struck level and allowed to dry in room tem- perature four days. The volume of each soil take was then determined by mercury displace- ment and compared with the volume of the cup. The volume of the dried soil was expressed as a percentage of the wet volume or of the volume of the cup. DETAIL REMARKS. Exact details of each process of all of the above tests are on file in the Bureau of Pub- lic Koads. In the shrinkage tests water was first tried instead of mercury but it was found necessary to waterproof the cakes with sprayed shellac. The volume of this shellac coating was negligible but the coating was not perfectly waterproof and air clung to the inside of the cup and cakes and prevented an accurate read- ing before water could penetrate the shellac, consequently mercury was substituted. There was some difficulty with the mercury accumu- lating dirt and oxidizing at the surface which required wiping the mercury surface with chamois after each run. Table 25 shows the percentage of shrinkage, moisture equivalent and moisture content of typical sub-grade soils and Plates XXV to XXXI inclusive, are corresponding pictures showing shrinkage. SUBSOIL MOISTURE CROSS SECTION. In appendix F, Plates LXX to LXXVIII in- clusive, are given 13 cross sections of the State highway showing lines of equal moisture con- tent as determined by the moisture content test described above. . These sections are selected as representative of the 35 reported and indicate in a general way the loss of moisture in the different parts of the section. In some cases the nature of the soil is shown on the section. The general nature of the soil in each case is also indicated on the "Condition Diagram" for the corresponding section. (Plates XC to CXLV inclusive, Appendix J.) These moisture content sections are presented as indicative of a condition which probably operates to cause unequal bearing power across the section of the pavement. The samples were nearly all taken before any rains fell in the fall of 1920 and after a very dry summer. The cross sec- tions clearly show that, on heavy soil, moisture remains directly below the center of the pave- ment indefinitely and leaves the pavement at the edges with resultant shrinkage and change in bearing power. BEARING POWER. Soil studies begun in the laboratory of the Bureau of Public Koads at Washington have re- sulted in preliminary and tentative tests for studying the bearing power of soils. The tests consist essentially in subjecting previously prepared samples of the soil contain- ing various percentages of moisture to uni- formly increasing loads applied through a bear- ing block 10 inches square and measuring the corresponding penetration. For two samples of soil with varying mois- ture content, results are shown in Plates XXXII. AND XXXIII. 1 Since a soil is characterized by its moisture equivalent, when the moisture content exceeds the moisture equivalent it contains sufficient free water to considerably reduce the bearing power, therefore, the moisture equivalent per- centage is a critical percentage in respect to bearing power. 1 These are advanced studies from work now under way. 91 PLATE XXV. i;%. .•*- ■ ■■ « ■ ■ « ■ * I m PROFILE VIEWS OF SOIL SHRINKAGE. SAMPLES FROM 2 LOS ANGELES B. 92 PLATE XXVI. .,'>>-;■ • ,»/ *V> PROFILE VIEWS OF SOIL SHRINKAGE. SAMPLES FROM 5 ALAMEDA B. 93 . PLATE XXVII. 20 t -.15; ^^mm^mmm^>mmi0M PROFILE VIEWS OF SOIL SHRINKAGE. SAMPLES FROM 1 SONOMA C AND 4 KERN F. 94 PLATE XXVIII. TOP VIEWS OF SOIL SHRINKAGE. SOIL SAMPLES FROM 14 CONTRA COSTA B. 95 PLATE XXIX. TOP VIEWS OF SOIL SHRINKAGE. SOIL SAMPLES FROM 4 KERN F AND 4 KERN B. 96 PLATE XXX. TOP VIEWS OF SOIL SHRINKAGE. SOIL SAMPLES FROM 1 SONOMA C. 9t\ PLATE XXXI. TOP VIEWS OF SOIL SHRINKAGE. SOIL SAMPLES FROM 5 ALAMEDA B. 98 PLATE XXXII. D z O Q. Q < O 2 o 440 400 360 320 28C 240 200 CURVES SHOWING RELATION BETWEEN MOISTURE CONTENT AND BEARING POWER OF SOIL 16807 = 31.81' 20 40 60 80 100 120 140 160 180 200 220 PENETRATION IN .001 INCHES MOISTURE EQUIVALENT NOT AVAILABLE SAMPLE FROM COLUSA 7-0 8.1 MILES NORTH OF COLUSA JUNCTION 99 PLATE XXXIII. 440 400 380 3S0 10 Q z O 0. 280 -240 200 l- o •IGO 120 80 40 CURVES SHOWING RELATION BETWEEN MOISTURE CONTENT AND BEARING POWER OF SOIL 17227 • &£ A^cr^* ^ ,£> 1 ) #V& 3& l'~~ S*" r' o^o- S « 6 °1 0— •0— / / rt • .-•°*" ■0 — URE* .0 0— 2?-°"~ MO a'' STURE = 31.0' 20 40 60 80 100 120 140 |60 180 200 220 PENETRATION IN .001 INCHES SAMPLE FROM LOS ANGELES 2-B MOISTURE EQUIVALENT = £4.0 •/« MOISTURE CONTENT OF ADJACENT SAMPLES IN PLACE ABOUT £1.5 t- o V) o o. 2000 1000 ( »-^ ^ \ \ \ J \ * ^ 2 3 4 5 AGE IN YEARS 115 CRUSHED CORE AFTER TEST. REMARKS. Individual results in compression consider- ably lower than the general average were noted in the following cases. Section C, Los Angeles County, Route 2. In this section three cores were secured after six trials; the other three cores crumbled during drilling. The three cores tested showed crush- ing strengths of 2,190, 2,020 and 1,685 pounds per square inch — much lower than the general average. An inspection of all cores showed the presence of considerable dirt in the sand which may be the cause of the low strength obtained. In Orange County, Section B, of Route 2, four cores (Serial Nos. 13, 14, 15 and 16) were taken, two of which broke during the drilling operation. The other two cores, however, showed strengths considerably over 3,000 pounds per square inch, although the broken concrete indicated that the sand contained con- siderable dirt. The other cores tested from Orange County, Section B, showed strengths averaging 2,600 pounds per square inch. In Stanislaus County, Section A, Route 4, cores 17 and 18 gave strengths of 2,550 and 2,510 pounds per square inch, respectively. The concrete after failure indicated a rather fine sand. The concrete was also more porous than the general average. In Merced County, Section C, of Route 4, Serial No. 27 showed a crushing strength of 2,065 pounds per square inch. The only dis- tinguishing characteristic of this core was that it showed a very small percentage of coarse ag- gregate — 36 per cent. In Madera County, Section A, of Route 4, cores 53 and 54 gave crushing strengths of 1,690 and 1,470 pounds per square inch. There were no unusual characteristics about this concrete to account for the low strength obtained. It is possible, however that in this one case the oil skin top was allowed to remain in place during test, which would account for the low results. In Gleun County, Section A, of Route 7, cores 62, 63, 65 and 68 showed considerably lower strength than the average or about 2,100 pounds per square inch. There were no unusual characteristics of the concrete, however, which would indicate the reason for the low strength, except that the presence of alkali crusts raises the question as to possible injury to the concrete by alkali in either the wet subsoil or in the mixing water. Other cores on Glenn County, Section A, showed strengths averag- ing 3,000 pounds per square inch. The general high average quality of the concrete is indicated by the fact that, out of a total of 481 samples tested, only 1 per cent gave values for crushing strength less than 2,000 pounds per square inch, and only 8 per cent less than 2,500 pounds per square inch. The general average of all 1 :2 :4 specimens is 3,640 pounds per square inch and of all 1 :2y 2 :5, 3,370 pounds per square inch. Since specimens were of different heights it was impracticable to test standard size speci- mens. To obtain some idea of the effect of 116 PLATE XLV. ' •$ GRINDING LOWER SURFACES OF CORES. PLACING CORE IN 100,000-POUND TESTING MACHINE. 117 height of specimen on the crushing strength, 30 special cores were drilled from class A pave- ment, Route 2, Santa Barbara, Section B 1 :2y 2 :5 concrete, 1 years old. These cores were tested as follows : 4 at 314 inches in height 5 at 4 inches in height 5 at 41/2 inches in height 5 at 5 inches in height 5 at 6 inches in height The results are given in the column headed "observed values" in Table 29, showing com- parative compression tests of concrete check cores. It will be noted that except in a very general way there is no relation between height of specimen and the crushing strength. 1 These values could, therefore, not be used in deriving a law for correcting the strengths obtained on the routine specimens. To correct the observed values of crushing strength for varying height of specimen, the comparative results obtained by a committee of the American Concrete Institute on "Speci- fications and Methods of Tests for Concrete Materials" were used. 2 All values for crush- ing strengths given in the following tables, as well as all individual results noted, have teen corrected according to methods given in the above report and are the equivalent crushing strengths tvhich would be obtained on cylinders ±y 2 inches in diameter by 9 inches in height. The "corrected values" in the comparison table indicate that after eliminating the effect of height of specimen there still remains a con- siderable variation in the strength of concrete even when the specimens are taken from a rela- tively small pavement area. lDoubtless the actual variation in the quality of the concrete in different spots in the pavement was greater than the varia- tion caused by the difference in height of tested specimen. 2Report of this committee is given on Page 422 of the October- November (1914) edition of the Journal of the American Con- crete Institute. TABLE 26— SHOWING PER CENT OF COARSE AGGREGATE IN CONCRETE CORES BY PLANIMETER MEASUREMENT. PERCENTAGE OF COARSE AGGREGATE. Route. 1:2:4 Mix. 1:2%: 5 Mix. Remarks. 2 4 7 14 48 ( 4) 50 (17) 49 (11) 50 (12) 50 (28) 48 (52) 50 (60) 53 (10) Measurements taken on odd numbered cores only. Measurements taken on odd numbered cores only. Measurements taken on all cores. Measurements taken on all cores. Average 50 (44) 49 (150) Figures in parenthesis indicate number of specimens averaged. Average variation between measurements of two sides of core about 3 per cent. Average variation between measurements of check cores about 5 per cent. TABLE 27— SHOWING AVERAGE COMPRESSION TESTS OF CONCRETE AVERAGED BY MIX, AGE, AND CLASS OF PAVEMENT. Mix 1:2% :5 Age In Years Average by Classes Pavement 3 4 5 6 7 A B C D E F 4085 (2) 3040 (4) 3240 (2) 4560 (4) 3780 (11) 3660 (40) 3370 (30) 3090 (25) 3070 (8) 2980 (9) 3460 (30) 3540 (30) 3160 (29) 3650 (12) 3780 (7) 3660 (6) . 3390 (27) 3310 (15) 3120 (20) 2990 (4) 3210 (8) 2980 (14) 3235 (4) 2740 (2) 3340 (4) 3190 (6) 3490 (74) 3510 (91) 3230 (83) 3240 (43) 3520 (27) 3140 (85) Average : By Years 3755 (12) 3390 (123) 3450 (114) 3220 (88) 3180 (16) 3370 (353) Note: Figures in parenthesis indicate number of tests averaged. Results are equivalent values for specimens 4% inches in diameter by 9 inches high. Mix 1:2:4 Age In Years Average by Classes Pavement 1 2 4 5 A B C D E F 3470 (6) 3740 (24) 3950 (6) 4430 (1) 4060 (9) 3890 (6) 3560 (12) 3650 (14) 3490 (17) 3460 (13) 3130 (6) 4440 (6) 2940 (2) 3080 (6) 3470 (20) 3610 (44) 3650 (23) 3800 (20) 3700 (15) 3890 (6) Average : By Years 3810 (52) 3500 (62) 4440 (6) 3045 (3) 3640 (128) 118 TABLE 28— SHOWING AVERAGE COMPRESSION TESTS OF CONCRETE AVERAGED BY MIX, ROUTE, AND CLASS OF PAVEMENT. Class of Pavement Mix Route Mix Route 1:2:4 1:2%:5 1:2:4 1:2%:5 1 A B C D E F 3635 (2) 3030 (2) 4465 (5) 4905 (2) 4365 (2) 4560 (4) 2 4020 (2) 3650 (16) 4440 (7) 4110 (14) 3555 (4) 3390 (4) 3250 (24) 3695 (18) 3245 (S3) 3430 (22) 3730 (12) 3270 (15) Average 4140 (11) 4495 (6) 3890 (47) 3435 (124) 3 A B C D E F 3190 (2) 4260 (8) 3170 (12) 2795 (12) 3775 (6) 4730 (1) 4 3470 (14) 3290 (14) 3940 (1) 2815 (2) 3065 (4) 3320 (19) 3280 (34) 3010 (24) 3245 (4) 2850 (2) 3065 (12) Average 4042 (10) 3790 (31) 3385 (35) 3185 (95) 5 < A B C D E F 4020 (2) 3910 (4) 4410 (4) 3225 (5) 3395 (2) 2985 (2) 7 3080 (4) 2335 (2) 3465 (IS) 3360 (23) 3150 (13) 2785 (12) 3180 (6) 2690 (4) Average 3945 (6) . 3580 (13) 2830 (6) 3180 (71) 14 A B C D E F 3090 (7) 3230 (4) 3255 (2) 3580 (1) 3815 (4) 15 4130 (3) 3360 (1) 3485 (2) 3615 (2) Average 3160 (13) 3760 (5) 3745 (8) Figures in parenthesis indicate number of specimens averaged. Note: Results are equivalent values for specimens 4% inches in diameter by 9 inches high. TABLE 29— TABLE SHOWING COMPARATIVE COM- PRESSION TESTS OF CONCRETE CHECK CORES. 1 Height of Specimen When Tested Crushed Strength Pounds Per Square Inch Inches Observed Values Corrected Values 3.5 4940 2980 5940 3580 4325 2600 5545 3340 Average 5190 3125 4.0 6380 3630 4000 2700 6040 4080 5650 3820 5270 3560 Average 5150 3560 4.5 6175 4680 4690 3550 4540 3440 4535 3440 5040 3820 Average 4995 3785 5.0 3940 3150 3750 3000 3450 2760 4920 3940 3920 3140 Average 3995 3200 6.0 5420 4710 3930 3420 3910 3400 5230 4550 3890 3380 Average 4475 3890 Note— Results under "corrected values" are equivalent values for specimens 4% inches in diameter by 9 inches high. Specimen cores were taken from Class A Pavement on Route 2, Santa Barbara Co., Section B; 1:2% :5 con- crete, age 4 years. i See footnote 2 page 117. v GRADE, ALIGNMENT AND LOCATION. Nearly all the graded and unpaved sections of the main routes built by the Commission were carefully inspected with respect to loca- tion features. Such features were also spe- cially investigated on selected paved roads. These location inspections covered particularly Route 14 in Contra Costa County (Eckley to Martinez), Route 7 in Solano and Yolo Coun- ties, Route 1 from Sausalito to Willits and Route 4 in Los Angeles County, also Route 3 from Sacramento to the Oregon line. In addi- tion location features were also examined in connection with all field inspections made to check the preliminary pavement classifica- tion. Grade and alignment in all cases were particularly studied and with respect to (a) present traffic conditions, (b) topography and (c) right-of-way limitations. No attempt was made to classify location. Much of the road inspected is above criticism. There follow a few examples of location fea- tures that demand notice. Contra Costa— 14-B (Eckley-Martinez). On this section are short radii, blind curves and excessive rise and fall. Probably more than a mile of distance could have been eliminated in the four easterly miles. Solano 7 and Yolo 7 (Benicia-Sacramento). There are some locations on this road that in- 119 GRADED ROAD. ROUTE 3 SHASTA COUNTY. dicate too close an adherence to the old rights of way, notably between Fairfield and Vaca- ville. North of Dixon are two right angle turns in order to follow section lines, and this is re- peated north of the Yolo County line. lioute 1 (Sausalito-Willits). From Sausalito to Larkspur the road presents excessive curva- ture and impaired vision. The alignment ap- pears to be worth straightening to make this trunk line less slow and less dangerous. From Cloverdale to the north line of Sonoma County (1-A), a sweeping revision is indicated as very desirable in order to eliminate both blind curvature and the switch-back at Stations 29 and 50 and to avoid the development from Sta- tion 185 to the end of the project by a heavy cut in the saddle near Station 202. On Sec- tion A in Mendocino County a route of less than 7 per cent grades might have been found along the Russian River between Cloverdale and Hopland, but heavy mud slides would have been encountered. On Section D in Mendocino County a new line in certain places is under construction to eliminate curvature and heavy grade,, and such work could advantageously be continued in other places. Los Angeles 4-B, 4-C and 4-D. This is the Ridge Road over the Tehachapi Mountains and is built on higher standards than other moun- tain roads. Curves of less than 100-foot radius have seldom been allowed and the vision has been improved by cutting the inside banks to POOR ALIGNMENT. 1 MENDOCINO D. 120 GRADED ROAD. ROUTE 3 SHASTA COUNTY. within 3 feet of grade. The road is paved 20 feet wide and the curves carefully superele- vated. Some straightening could have been done and some of the alignment improved as work progressed. Route 3 from Sacramento to the Oregon line presents much excellent location and the elimi- nation of grade crossings in Division II is spe- cially commendable. There are nevertheless many curves which, in the light of present con- ditions, should have been made easier. Some of the blind curves from the summit north of Redding and toward the Pitt River bridge occur in relatively steep grades. The good loca- tion so generally obtains, however, that it serves to emphasize the inconsistency. In several instances, notably on Route 3 in Butte County, the floors of small bridges are noticeably rough but serve as a pavement. The connection with the adjacent pavement is often quite uneven and it would appear possible to eliminate this condition by lowering the floors of bridges and carrying the pavement continu- ously across. ECONOMIC AND OTHER STUDIES GENERAL ECONOMIC FEATURES. California, the second largest State, had in 1910 a population of 2,377,549 and ranked twelfth. The 1920 census figures indicate the present population as 3,426,536.. The increase is 44 per cent In 1910 only 36 per cent of the people were classed as rural, so the population was largely in cities and towns. The topography in general may be character- ized as one great interior valley and numerous small valleys, all surrounded by the Coast Range and the Sierra Nevada and Siskiyou mountains. The Sierra Nevada mountains are highest in the southwest, between Tulare Lake and Owens Lake and on to Nevada. The north- ern counties are generally mountainous. Th^se features are shown to a distorted vertical scale in the frontispiece. The main valley is subdivided into the Sacra- mento River Valley in the north and the San Joaquin River Valley in the south. There are numerous small agricultural valleys but these two valleys with the Santa Clara Valley south of San Francisco and the valley lands south of the Tehacbapi Mountains are the principal agricultural lands of the State. The Agricultural products of the State were valued by the 1910 census at $153,111,013; they have since greatly increased and in 1920 may be conservatively estimated at $539,000,000. The acreage of improved farm land in 1910 was ap- proximately 11,389,894. The value of mineral and timber products in 1910 was estimated at $63,382,454. * There are about 1,000 miles of coast and be- sides the harbor of San Francisco there are harbors at Monterey, Los Angeles, San Diego, iThese figures are compiled from reports of the U. S. Census, of the State Controller, State Commission of Horticulture in co-operation with U. S. Bureau of Crop Estimates, Annual Reports California Development Board, Statistical reports Cali- fornia State Board of Agriculture, etc. 121 Eureka and Crescent City. Commerce with the Orient, Australia, New Zealand and South America is extensive, and is supplemented by coastwise shipping and European cargoes through the Panama Canal. The bank clear- ings at San Francisco for August, 1920, were $645,480,714. The State ranks eighth in ex- ports. The climate of California is characterized by the virtual absence of snow or frost, except in the mountains. There is considerable winter rainfall in the northern counties, particularly on the coast. In San Francisco the average rainfall for normal years is 22.27 inches. This precipitation occurs largely in the interval October 15th to March 15th. In Sacramento the average rainfall is 20.09 inches for normal years. In San Diego, 10.01 inches. The sum- mers in the big valleys are hot with unbroken sunshine. Railroad transportation in the State is ade- quate and is furnished by the Southern Pacific from the Oregon line straight through the great Sacramento and San Joaquin Valleys and over the Tehachapi Pass to Los Angeles, thence through the San Bernardino and Imperial Valleys to Yuma, Arizona. The main line east also connects San Francisco with Sacramento and Reno, Nevada, and the coast route traverses the Santa Clara and Salinas Valleys to Los Angeles. The Sante Fe enters the State from the east at Needles, and crosses the fruit belt around San Bernardino, thence across the Tehachapi Pass and down the San Joaquin Valley to Sacramento and San Francisco. A branch runs to Los Angeles and San Diego. The State is also crossed by the Western Pacific and the Salt Lake roads and there are smaller roads, including the Northwestern Pacific through the Sonoma Valley north of San Fran- cisco, the San Diego and Arizona, connecting San Diego and the Imperial Valley with the coast, and various electric interuban lines. There are numerous auto truck freight lines .and auto bus passenger stage lines which are described below. MOTOR VEHICLES^GENERAL.i The California Highway Commission is di- rected by law as previously mentioned to ex- pend one-half the net motor vehicle registration receipts for maintenance and improvement of State highways. 2 The Commission is also authorized to issue special written permits for loads, in excess of those permitted by the motor vehicle law, to proceed over State highways or bridges and also to reduce the maximum permissible loads on particular highways and bridges under special conditions. The Commission is also charged with the duty to provide forms upon which county supervisors shall report expenditures from their one-half of the net motor vehicle fund returned to the respective county funds. With reference to these county expenditures, the Commission states in the first annual report that the forms prepared were somewhat com- plicated and the returns extremely crude. There was an indication that the vehicle money was merged with other county funds and it seemed to be a general practice to divide the money into five parts — one for each supervisor's district — and thus to dissipate the revenue. There has been a rapid and large increase in motor vehicle registration and use in Cali- fornia since 1907 and corresponding increase in the receipts in the motor vehicle fund. This progress of registration and revenue is shown in Table 30. TABLE 30— APPROXIMATE TOTAL MOTOR VEHICLE REGISTRATION AND REVENUES IN CALIFORNIA— BY YEARS. 1 Years Total Trucks Only Increase By Years Total License Receipts 1907 10.020 2 14,051 19,561 28,633 44,122 60,779 91,194 118,716 123,516 163,795 235,440 310,916 370,800 493,463 545,0003 1907 4,031 5,510 9,072 15,489 16,657 30,415 28,522 3,800 40,279 68,645 75,476 53,884 128,663 51,537 1908 1909 1910 1911 1912 1913 1914 1915 1916 6,156 8,189 $1,343,110 2,059,683 2,192,790 2 846 030 1917 1918 1919 13,953 3,540,306 4,468,721 4,922,250 4 1920 32,555 5 1A summary of motor vehicle legislation in California will be found in Appendix D. . 2 Also for maintenance and improvement of roads in State parks under certain conditions. The progress of registration is also shown by Plate XLVL, which also presents for compari- son a curve of total registration progress in the entire United States since 1906. In Plate XL VII. is shown the relative prog- ress of motor-vehicle registration in the five leading States, including California, from 1914 to 191 9. iTotal automobiles and trucks from the records of the Secretary of State, 1907-1913, and from those of Motor Vehicle Depart- ment for 1914-1920. Trucks only from other sources except for year 1918 and 1920. 2Prior to April 8, 1907. •'Estimated for Calendar Year 1920 from registered automobiles and trucks to July 3, 468,211, and to September 24, 507,255, and exclusive of 8,107 U. S. Government and other motor vehicles exempt from license fees. 4Estimated at 1919 average per vehicle. 5Trucks to September 24 and with solid tires only. About 6,200 trucks additional with pneumatic tires estimated June, 1920, are included in the column headed total. >i|rS 122 PLATE XLVI. CALIFORNIA U1 o o o o o o o o o en o o o o ru o o o o © ru bl Ul o o o o o o o o o en o o o o o o o o o Ul o o o o Ul o o o o o 2 o H o < n x o 3} m en X o o ■jo z > z a H x n o u> n CO -< > CD co (5 1 1 o I \ o CD \ \ I \ o co (5 \ \ \ \ o 55 \ * \ (0 \ \ \ ro co \ \ \ co ? 1 1 A <0 ' \ \ \ > Ul CO N < ^ ^ ^ 0> CO \ v> ~4 CO *' •F» Ul ff) ^1 CD o O o o o © o o O o o o o o o O o o o o o o O o o o o o o o o o o o o o o o o o o o UNITED STATES 123 PLATE XLVII. O £ * >: J E < 5 z ~ o o a. \ £\ \ V v \\\ \ \\ \ \ \ \ V \ en — tr> ui % * en o C9 U IX Ul -I o cr o l- o S310IH3A H010W 124 Further statistics showing total motor vehi- cle traffic in 1!>2(1 on the California State high- ways are presented in detail under the subject — Traffic Count. Since the duty of California roads is almost exclusively to carry motor traffic, special supplementary studies of cer- tain aspects of this traffic have also been made and the results are also described below. TRAFFIC COUNT. The traffic count was made to determine in a short interval ( a ) an index to the usefulness of the California State highways to the people of the State and (b) a measure of the relation of travel to the condition of the constructed roads. The principal traffic count was for an inter- val equivalent to one day of Id consecutive hoars, from 6 A. M. to 10 P J/., and taken at 103 stations between Aafja.it 7 and October 1.'/. Kupplcmcntary co/ints irrre also taken. To check the positions selected for the 103 traffic stations for the principal one-day count, the California State Highway Commission in- dependently selected l!S7 proposed traffic sta- tions which were compared with 103 stations already selected which stations were found sufficiently in accord with a corresponding set of the State selection to require no extensive changes. The stations are carefully identified and described as shown in Appendix E so that recount at future intervals may be made. The positions of the stations used are also shown on the State map, Plate XLVIII. The traffic blank used is shown in Appendix G and the summary of the traffic count is shown tabulated in Appendix K. From this traffic record were prepared traffic diagrams by State routes. These diagrams, which are shown in Appendix I, were made with a horizontal scale of twenty miles to the unit and the total numbers of vehicles of all kinds counted at the various stations were plotted as ordinates. The ordinates of these diagrams were subdivided to show (a) the num- ber of all motor trucks, (b) the two-way divi- sion of travel (either north and south or east and west). Tt will be seen that most of the traffic sta- tions were near towns and thus there result "peaks" of travel corresponding roughly to the size of the town and incidentally showing the relative importance of local travel. It is note- worthy also that the flow of traffic both ways is one that tends to balance. The sum of the areas beneath the total traffic curve gives the approximate total number of vehicle-miles for a 16-hour day and counted between August 7 and October 14 on the system of California State Highways. This total is 2,582,201 vehicle- miles and about seven-tenths occurs on the State-constructed ] laving. This daily figure represents summer traffic when the movement of agricultural produce and tourist traffic may be assumed to be high- est, and it probably does not indicate effect of the minimum traffic between towns. But, on the other hand, this figure omits excess Sun- day traffic and all night traffic from 10 p. m. to C> a. m. It is also based on the "Traffic curve" which is a combination of straight "lines which shape tends to reduce the total vehicle-miles near centers. This summer interval extends roughly from June 1 to November 1. Using the total daily traffic-miles as 2,500,000 for this interval of say 150 days only, results in a total of 375,000,000 vehicle-miles. 1 For the remain- der of the year another index traffic count is required. These figures as stated neglect all special occasions, night traffic and extra Sun- day traffic which tend to increase them, rainy days, etc., which affect this increase. The resulting average of the different kinds of traffic for one equivalent 10-hour week day throughout the State is shown in the follow- ing' table: TABLE SHOWING AVERAGE 16-HOUR WEEK DAY TRAFFIC AT 103 STATIONS. Per cent Average Per cent of of total Type vehicles total traffic trucks Light Automobiles . . . 472 34.10 Heavy Automobiles. . 674 48.50 Passenger Busses... 31 2.20 Trucks, Class 1 73 5.30 42.40 Trucks, Class 2 41 3.00 23.70 Trucks, Class 3 28 2.00 16.20 Trucks, Class 4 29 2.10 16.80 Horse-drawn traffic. 32 2.70 Extra heavy traffic. 2 .10 1.10 Total of all vehicles. 1,387 100.00 100.00 Total of trucks, only 173 r Trucks, Class 1. Less than one ton with pneu- matic and less than % tons with solid tires. Trucks, Class 2. One to 2y 2 tons with pneu- matic tires and % to iy 2 tons with solid tires. Trucks, Class 3. Three to 5 tons with pneu- matic tires and 2 to 3 tons with solid tires. Trucks, Class 4. Five tons plus with pneu- matic tires and 3 tons plus with solid tires. !This figure is supported by the estimated gasoline consump- tion of 22,000,000 gallons per month by motor vehicles. At 10 miles per gallon for five months, if one-third of the resulting motor vehicle-mileage is on the State highway, there results 367,000,000 vehicle-miles. 125 PLATE XLVIII. - OiniJNK MAP CALIFORNIA SHOWING ■ TRAFFIC-STATIONS- AND THEIR LOCATION AMD DESIGNATIONS NOVEMBER' 1920 * f.£/f£NO or net HO Trmf(,e Stthon |3-I7| fonts a Sta Hunt* v ■*"$ a 126 From the tables in Appendix K and the traf- fic diagrams, it is again apparent that the duty of the State highways is preponderate^ to carry motor vehicles — horse-drawn traffic is actually only 2.7 per cent of the average daily traffic at the 103 stations. There is a uniformly large increase in total traffic on Sundays. The ratio of the average 16-hour week-day total count to the correspond- ing average 16-hour Sunday count is approxi- mately 1 to 1.7. The average distribution of Sunday traffic is shown for 16 stations in the following table: TABLE SHOWING AVERAGE 16-HOUR SUNDAY TRAFFIC AT 16 STATIONS. i 1 1 Per cent Average Per cent of of total Type vehicles total traffic trucks Light Automobiles . . . 833 36.8 Heavy Automobiles . . 1,282 56.6 Busses 29 1.3 Trucks, Class 1 62 2.7 50.5 Trucks, Class 2 18 0.8 14.6 Trucks, Class 3 10 0.4 8.1 12 0.5 9.7 Horsedrawn Vehicles 21 0.9 17.1 Extra'dinarily Heavy Total of all vehicles. Total of trucks only 2,267 123 100.0 100.0 The daily motor truck traffic throughout the State as determined by the actual count for equivalent 16-hour days at the 103 official sta- tions was 12.48 per cent of the total traffic. 1 The total daily motor truck-miles over the California State highways was then computed separately from the actual traffic count. This daily truck mileage is the total of the areas be- low the motor truck curve shown in the traffic diagrams or 286,375 truck-miles. The result does not apply throughout the year because the interval of the count, between August 7 and October 14, fell within the limit of the "peak- load" interval on the California highway sys- tem for hauling of agricultural products. This "peak-load" interval for agricultural products was determined separately for a group of thirty counties north of the Tehachapi Moun- tains and for a group of eight counties of south- ern California, and all traversed by the State highways. The data was obtained from the report of the State Board of Equalization for 1918 and from field investigations. The field investigations were made by an engineer and resulted in satisfactory determination of the en- tire interval of market hauling of nine separate groups of crops and of the "peak interval" With these separate crop marketing intervals and the total yields from the report of the Board of Equalization and from comprehensive road maps for each county it was possible to make a fairly satisfactory estimate both of the "peak interval" and the "peak load" in tons which it is the duty of the California State highways to carry. It was found that ap- parently about 23 per cent of all agricultural products is hauled for some distance over State highways. The results are shown plotted in Plate L for the two portions of the State designated. In this figure is also indicated the interval within which traffic counts occurred. Prom this dia- gram it is at once seen that the motor truck traffic counts were taken during such period of the year that they probably represent more than the average daily market hauling. TRUCK QUESTIONNAIRES. A questionnaire, a copy of which is shown in Appendix G, was sent out during the month of August to approximately 21,000 owners of trucks with solid tires. From this question- naire 4,707 replies were received of which 364 were blank and 1,495 were operating more than 95 per cent within cities. An additional 1,078 could not be used because of defective data. There remained 1,930 replies which could be identified from owners using one or more of the State highways. There follows tables showing answers to various questions in this question- naire : Average Average Average advantage- Average Capacity distance weight ous speed- mileage of trucks operated cargo miles per gallon in tons daily pounds per hour of gas % 31.0 1,007 18. 14.7 % 29.8 1,462 17.6 11.1 1 44.7 1,963 13.9 11.4 1% 34.0 3,591 15.7 9.5 2 53.9 4,624 14.5 8.6 2% 47.4 5,776 13.2 7.8 3 44.8 6,992 12.6 7.8 3% 47.7 8,353 9.9 5.9 4 a 56.6 9,800 11.8 5.1 5 b 60.8 10,950 11.1 4.9 5% c 69. 14,000 12.4 4.1 6 d 59.8 14,222 12.8 4.7 6% e 42.5 12,500 12.5 5.5 7 f 38. 13,888 9.6 5.2 iThere is found to be considerable truck traffic before 6 a. m. This traffic was, therefore, not included in the standard 16-hour day. a. From an average of 91 replies. b. From an average of 130 replies. c. From an average of 5 replies. d. From an average of 9 replies. e. From an average of 2 replies. f. From an average of 7 replies. 127 PLATE XLIX. TRAFFIC ON STATE HIGHWAYS. 128 PLATE L. 129 The commodities reported as hauled by motor truck in the available answers to the question- naire are shown in the table below: WHAT TRUCKS HAUL— FROM QUESTIONNAIRES FARM TO MARKET. Class Number reporting Aggregate load in lbs. Garden Truck 312 438 329 2 95 131 11 18 81 1,444,885 1,763,225 1,729,910 4,500 289,950 461,128 18,800 45,750 315,850 Fruits of Kinds Cotton Meat and Livestock Dairy Products Poultry and Eggs Honey and Bee Products Fuel Wood Totals 1,417 6,073,998 AWAY FROM MARKET. Class Groceries, Provisions and General Merchandise Drygoods and Laundry House Furnishings Building Materials and Machinery of all kinds Seed and Nursery stock Ice Soft Drinks, etc '. Freight Gasoline and" Oil Totals Number reporting 187 7 103 500 16 51 44 32 45 985 Aggregate load in lbs. 631,900 10,250 267,900 2,777,150 46,400 173,700 164,300 107,820 211,700 4,391,120 The data in this table is of little value in re- spect to information as to the total commodity hauling by motor truck in California since it is compiled from only 2,402 answers. It probably indicates (a) the relative amounts of various commodities hauled and (b) the ratio of in- bound to outbound loads which is 1.44 1 ; (c) the arithmetic average load of about 2.1 tons; (d) the relative number of trucks hauling agricul- tural products and merchandise, etc. In order to develop further information on the operation of motor trucks and to gage the effectiveness of the truck questionnaire, there is shown in Plate LI the numbers of the vari- ous classes of trucks reported in answer to the questionnaire together with the relation of the percentage of such trucks in the various classes to the corresponding percentage computed from the traffic census. In each case the classifica- lNot restricted to any given time or part of year in the questionnaire. tion of trucks is that used in taking the traffic census. PASSENGER BUS LINES. Organized automobile stage truck transpor- tation originated in California and promises to develop into a necessary and large public serv- ice. Rail and electric transportation systems are vitally interested and regulatory and con- trol legislative action was early essential. By legislative act approved May 10, 1917 (amended May 13, 1919) the Railroad Commis- sion of the State of California was given "The supervision and regulation of the transporta- tion of persons and property for compensation over any public highway by automobiles, jitney busses, auto trucks, stages and auto stages." Under this law the Railroad Commission fixes rates, classifications and rules and regulates the accounts, service and safety of such trans- portation companies. This jurisdiction super- seded conflicting jurisdiction of any municipal or county authority. Carriers operating over a regular route between fixed termini must secure a permit from municipal authorities through whose territory they operate, provided they were not operating prior to May 1, 1917. Car- riers operating other than wholly within the incorporated limits of a city or town must se- cure a certificate of public convenience and necessity from the Railroad Commission. Rules and regulations were established by the Com- mission governing fares and rates, time schedules, filing of bonds and safety of oper- ation of stages and trucks. The applicant for a permit to operate a stage or truck line, having secured a permit from the municipal authorities, must file a statement set- ting forth the termini and description of the route; time schedule and fares; description of equipment, of officials of the company, etc., and names of stage or truck lines, steam railroads and electric railways operating between same points to be served. Upon filing of the application, a public hear- ing is fixed, and the applicant and existing transportation lines affected are asked to pre- sent evidence and arguments for and against granting the application. If it is found that public necessity and convenience make advis- able the proposed line, and that the applicant is financially able to render the service and otherwise capable, the Railroad Commission grants permission to operate the line. The powers of the Railroad Commission rela- tive to operation of the lines are far reaching. 130 PLATE LI. 1200 1100 1000 900 800 tr CD 3 700 600 500 39.60 300 S00 100 400 Sir- 39. So ^N 1 CLASS DIAGRAM SHOWING TOTAL NUMBER OF TRUCKS IN FOUR CLASSES REPORTED BY OUESTIONAIRE AND RELATION OF PERCENT IN EACH CLASS TO CORRESPONDING PERCENT FROM TRAFFIC COUNT. 131 Reports upon the manner of operation, charac- ter of service, 1 assets and liabilities, numbers of persons or tonnage carried, receipts and dis- bursements, and other related data are re- quired and rules and regulations for operation are issued. When the original act became effective a number of auto stage and truck lines were actively operating, in most cases with but a single truck, driven by the owner. There was no law specifically regulating State authority and the business was practically without sys- tem. Irregularities and abuses were common. The entire auto stage business, and to a some- what lesser degree, the truck business, has now iDeviation from schedule is not permitted. become stable and systematized. Lines operat- ing under the most favorable conditions, or best able to adapt themselves to the new law, con- tinue to operate under the authority of the Commission. Under the sanction of the State and with the protection accorded against unfair and un- necessary competition business has improved and expanded enormously, and promises to grow with even greater rapidity with the exten- sion and development of the State highways. A systematic study of these passenger bus and freight truck lines was made with special reference to the use of the State highways. A summary of the passenger bus information is presented in Table 31. TABLE 31— SUMMARY OF BUS LINE DATA LINES IN WHOLE OR IN PART TRAVERSING STATE HIGHWAYS Total miles No. of trips Car- Car- Number Total paved State each way miles miles No. of Passenger- Passenger- State of bus distance highway between between on paved through miles miles on highway lines between between termini termini State passengers between paved State route number operated termini termini daily daily 1 highway * daily 2 termini highway 31 (1 99.25 31.3 6 199.5 187.8 Incomplete 13 67.25 49.7 22 784.5 607.5 484 23746 | 18901 2 (3 41 32.5 58 477 377 Incomplete 130 1918 1217.75 Incomplete 31860.5 22960.5 9342.25 519649 1 389103 3 3 36.75 21.0 73 778.5 435 700 7635 4260 M {1 12.75 12.5 4 51 50 Incomplete lie 607.75 347.75 214 10370 7632 2009 90504 64761 5 7 278.75 176.75 140 5637 9883 1310 62178.5 43716.5 6 1 14.25 14.25 6 85.5 85.5 24 342 342 7 2 926 180.5 2.14 207 57 9 1206 299.5 8 1 36 6.5 6 216 39 12 432 78 9 4 171.25 123.75 82 3789.5 3135.5 1027 50456.25 44794.25 10 1 60.75 8 4 243 32 24 1458 192 11 3 82 72 22 651 574 208 4890 4273 12 (1 5 5 12 60 60 Incomplete 76 498.25 271.75 22 1907 1025 136 12179 | 6500 14 (3 36.5 25 3 476 430 Incomplete (6 168 86 159 2159.2 | 1538.4 908 20231 10608 18 1 93 15 2 186 30 70 6510 1050 22 1 172 7 2 344 14 12 2064 84 26 1 193 5 .85 165 4.28 6 1158 30 Combinations r of 15 of above i 14 11 8 112 88 Incomplete : routes h 608.75 355.5 52 4461.5 2801.5 383 33230 | ,21755 Total 3 103 6074 3075 900 65220 46046 16664 837869 | 610747 1 One line from Fresno to Bakersfield not included (total distance, 109%miles — paved State highway 106% miles) record lost in mail. In this summary table one car per scheduled trip is taken as the basis for car-mile calculations, but on many runs two or more busses are regularly dispatched and as many as ten on special occasions. Flexibility of service is one of the main claims of the motor stage operators. 2 Estimated average number through passengers — local passengers estimated as 15 per cent of through traffic. 3 Three lines out of Eureka not included for want of data (total miles, 25 ; paved State highway, 18% miles) . Of the 103 lines, 54 have schedules involving 2 to 5 round trips per day between termini. The least frequent schedule authorized by the State Eailroad Commission is that of one trip weekly on the line from San Francisco to Portland, Ore. (786 miles, of which 163 are on the State- paved highway). The most frequent is 54 round trips per day between Los Angeles and Santa Ana, a distance of 36 miles (of which 25 miles is over State highway No. 2.) As far as practicable, bus-line routes or divi- sion points on routes are so located that the 132 PLATE LII. AUTO STAGE DEPOT, LOS ANGELES. SAN FRANCISCO — MARTINEZ STAGE. 133 distance can be covered in not to exceed one day. In 47 per cent of the routes this distance ranges from 25 to 99 miles, which permits one or more round trips per day. The average length for the 103 lines is 59 miles. A large number of the companies co-operate to make practicable the purchase of through transportation over connecting lines. The longest through trip possible by such arrange- ment is that from El Centro via San Diego, Los Angeles and San Francisco to Portland, Ore., a distance of 1,488 miles. There is a tendency to combine ticket offices and establish common starting places or union stations at Oakland, Los Angeles, Fresno, Ba- kersfleld, etc. Plate LII. shows pictures indicative of the passenger motor-bus business. Below are given three additional tables of data regarding the passenger motor-bus busi- ness. Daily Trips Between Termini. No of trips No of lines daily. operating. 2 or less 15 3-10 54 11-20 12 21-40 14 41-60 4 61-80 2 80 or more 2 Total 103 Number op Bus Lines of Various Length. Length in No. of lines miles. operating. 0-4 8 5-9 15 10-14 11 15-24 14 25-49 26 50-99 22 100-199 3 200 1 Total 103 PASSENGER CAPACITY OP EQUIPMENT, SCHEDULED TRIPS, ETC., OF SOME OF THE LARGER BUS LINE COMPANIES. No. of Cars Passenger Capacity Total Capacity Daily Trips Each Way Distance Between Termini Termini Highway Route No. 40 38 27 4 12 24 1 10 5 6 3 1 3 2 7 13 4 7 17 20 20 5 2 16 1 2 5 18 14 to 22 23 22 16 14 23 19 15 11 11 14 18. 15 8 to 11 181 14} 19 14 11 720 674 621 616 378 195 195 186 170 160 160 118 112 102 62 108 102 32 48 26 52 36 10 6 6 14 2 6 36 36 31 67.75 43 77.5 117.5 23 127.5 134.5 134.5 52.25 93 51.5 Los Angeles-Santa Ana. . Los Angeles-Santa Ana . . San Francisco-Palo Alto. Los Angeles-Redlands . Oakland-San Jose Stockton-Oakland Sacramento-Merced San Fernando-Los Angeles Los Angeles-Bakersfield . San Diego-Los Angeles . . . Los Angeles-San Diego . . Santa Rosa-Sausalito Merced- Yosemite Sacramento-PIacerville . . . 18 11 134 PLATE Llll. 135 MOTOR TRUCK FREIGHT LINES. A special investigation was made of the motor truck freight lines licensed under the State Railroad Commission and as one result there is presented Plate LIIL, which shows the reported number of motor trucks of the several existing classes as returned by this investiga- tion and also as determined by replies to the questionnaire to all owners of solid-tired trucks. Additional commercial motor-truck traffic information is shown in Appendix H. FIELD WEIGHING. In addition to the above indicated studies, 219 motor vehicles (and 5 horse-drawn ve- hicles) were weighed in the field as shown by the following table : Weighing Data. No. of Place. Date. Vehicles Gilroy Sept. 25, 27, 1920 86 French Camp Sept. 29, 1920 46 Modesto Sept. 30, 1920 40 Yuba City Oct. 2, 1920 24 Santa Rita Oct. 4, 5, 1920 28 . ... 224 The results of the weighing are shown below. The truck capacities there indicated conform with the classification used in the field traffic counts since no heavy pneumatic-tired trucks came to the scales. Summary of Result of Field Weighing. Average Kind of gross weight vehicle. No. in pounds. Light autos, motorcycles, Ford, Chevrolet, Saxon, Dodge and like run- abouts 13 1924 Heavy autos, all autos heavier than those classed as light 23 3828 Miscellaneous trucks, empty 4 Trucks, less than %-ton capacity 14 2091 Trucks, % to iy 2 tons capacity 42 4708 Trucks, 2 to 3 tons capacity 44 10,034 Trucks, 3 tons or greater capacity 33 14,640 Trailers 33 4863 Busses 12 7461 Horse-drawn 6 5838 Tractors 1 6290 Total 225 SPEED MEASUREMENT. Measurement of speed of motor vehicles was made in the field with measured distance and stop watches at four stations as follows : Mo- desto, Gilroy, Saugus, Richmond. These sta- tions were chosen from the traffic count and where total travel was not excessive. The results of this study with respect to speed of the various classes of vehicles are shown in the following table: Speed of Motor Vehicles. Miles Number Type. 1 per hour, observed. Light autos 24.3 990 Heavy autos 26.1 1177 Busses 29.7 113 Trucks, Class 1 ' 23.2 153 Trucks, Class 2 19.9 61 Trucks, Class 3 16.5 41 Trucks, Class 4 13.7 83 GENERAL. There was found to be a certain typical hour- ly variation throughout the 16-hour day in all traffic throughout the State. This average hourly variation in per cent of total daily traf- fic for a week day as determined from 111 week- day counts taken at 101 stations is shown in Plate LIV, together with the corresponding hourly variation of Sunday total traffic from 56 partial and complete Sunday counts at 37 stations. The corresponding hourly variation in truck traffic only is similarly shown for a week day in Plate LV. This curve indicated a consider- able truck traffic before 6 a. m. The figure of 12.48 per cent for total truck traffic is, there- fore, subject to a plus correction as the per- centage of total traffic prior to 6 a. m. is much less than that of trucks. There is shown in Plate LVI the typical aver- age variation of total traffic during an entire week based on all counts taken. In Plates LVII and LVIII are shown respectively the relative decrease of horse-drawn traffic and the relative increase in motor-truck traffic as de- termined from traffic counts in Kern and Los Angeles Counties. A summary of various truck data from vari- ous sources is shown in Table 32. IThe classes of trucks refer respectively to those adopted In the traffic census. 136 PLATE LIV. DIAGRAM SHOWING AVERAGE HOURLY VARIATION OF WEEKDAY TRAFFIC AT 101 STATIONS AND CORRESPONDING AVERAGE HOURLY VARIATION OF SUNDAY TRAFFIC AT 37 STATIONS AM R 7 ^ ^ 7-8 8-9 9-10 10-11 s \ ^ •s. V. Yl T> • s X » \ N \ M 11-12 1 / P.M. 12-1 1-2 UJ £ 2-3 1- 3-4 4-5 i / r\ \ \ \ Y \ i S-6 6-7 7-8 8-9 9-10 ^ / / A *r ' J4& S * r s CT C » 2 4 6 8 10 PERCENTAGES OF TOTAL FOR THE DAY 137 PLATE LV. A.M. 6-7 7-8 8-9 9-10 * V "\. 10-11 M. 11-12 P.M. 12-1 2-3 • 3-4 4-5 5-6 6-7 7-8 8-9 bJ J 9-10 2 4 6 8 10 PERCENTAGE OF AVERAGE DAILY TOTAL DIAGRAM SHOWING AVERAGE HOURLY VARIATION OF WEEKDAY TRUCK TRAFFIC AT 101 STATIONS 138 PLATE LVI. OIAGRAM SHOWING VARIATION OF TOTAL TRAFFIC DURING THE WEEK BASED ON £83 WEEKDAY COUNTS 139 PLATE LVII. KERN COUNTY AVERAGE NUMBER OF TRUCKS AND HORSE DRAWN VEHICLES PASSING FIVE STATIONS 150 UJ -i u E u > u. o oc Ul 03 T. Z3 100 50 "--<}- J>*4ty/y .VEH/CLES 3 IT) 00 2 o CM YEARS 140 PLATE LVIII. 141 TABLE 32— SUMMARY TABLE SHOWING TRUCK TRAFFIC DATA (From Traffic Census, Field Weighings, and Questionnaire.) Fromtrafficcensus Weighted average speed miles per hour Weighted average weight from field Average cargo weight Average length of haul Class Weight- ed daily average No. of trucks Per cent of total daily vehicles weighings in pounds 1 in pounds in miles of trucks From speed count From ques- tion- naire Front Rear Total Field weigh- ings | Ques- tion- naire 2 1 | Weight - 1 ed aver- 1 ageques- Field 1 Itionnaire 2 Less than 1 ton pneumatics Less than %-ton solid 73 5.3 23.2 18 697 1394 2091 , 1007 14 31 1 to 2% tons pneumatics % to iy 2 tons solid 41 3.0 19.9 14.7 1674 3034 4708 1684 2332 43.7 39.1 3 to 5 tons pneumatics 2 to 3 tons solid 28 2.0 16.5 14.1 3227 6807 10034 4649 5970 48.6 51 5 tons plus, pneumatics 3 tons plus, solid 29 2.1 13.7 110.8 4751 9889 14640 6989 9603 73.5 54. 4 4 Extra heavy 2 0.1 1 Total 178 12.5 Weighted average 19.4 14.0 2848 5810 8658 3682 4324 48.6 45.3 i-From replies to questions at the 138 weighings at 5 stations. 2 From 2,766 replies to 21,000 inquiries. 3 Styles of body too variable to permit accurate estimate of weight of trucks. Weights of all other trucks determined from manu- facturers' catalogs. 4Twenty trucks of this class and above 5 tons' capacity were reported by the questionnaire, but the data is not included in this figure. VIOLATIONS OF STATE LAW. In connection with truck traffic the .Califor- nia State Highway Commission states in the first biennial report: "The present State highways are being sub- jected to constant abuse by too heavily loaded trucks and other agencies. "The statute books of California already con- tain sufficient legislation to regulate and pen- alize 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 re- sult from the establishment of a State motor police limited both in numbers and authority under the jurisdiction of the Motor Vehicle De- partment, who could apprehend both motor ve- hicle offenders and persons injuring the im- proved highways of the State." The chief engineer states in the same report "that in the northern part of the Sacramento Valley a new difficulty presents itself in the rapidly increasing use of the land for rice cul- ture. * * * In November and December of this year (1918) the State highway has been damaged seriously by motor trucks hauling rice. All the trucks carry loads in excess of their rated capacity, and it is probable 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. It would be folly to direct or discourage all trucks and tractors, but they should conform to the legal requirements of the vehicle act, which are rea- sonable and were enacted in 1917 at the sug- gestion of the Motor Truck Dealers Association. If such excessive loads are to be permitted the State must spend much money to strengthen the roads, and why should such selfishness be permitted? Why should not the reasonable provisions of the vehicle act be enforced?" The inspection force of the motor vehicle de- partment is composed of nine men working under the direct supervision of one chief. Each man is assigned to a particular district, and the secretary of the motor vehicle department reports that it is impossible for these men to enforce all the provisions of the motor vehicle act. Their paramount duty is the collection of 142 license fees. The enforcement of the law re- garding weight limit and speed limits has been left almost entirely to the local officers throughout the State. The State officers work in conjunction with the local police and, where a case arises, the traffic officer of the district is called upon to do the prosecuting. Violations of the motor vehicle act or convictions that are carried to the court are reported to the motor vehicle department. The abstract of the court records so filed from July 22, 1919, to October 18, 1920, shows a total of 33 convictions of vio- lations of the law; with respect to flanges (4), weight per inch width (19), number of trailers (2), special permits (3) and with respect to unspecified provision of the section governing all these points (5) . The fines range from $100 for flanges to $4.00 for operation without spe- cial permit and in the case of excess weight per inch of width from $50.00 to $10.00. DISCUSSION BOND ISSUES AND SYSTEMS DESIGNED AND GENERAL POLICY. The system of 4,500 miles laid out in 1896 by the old State Bureau of Highways reached every county seat and traversed the main val- leys. It was doubtless of value as a guide to the selection of the system of 5,560 miles now building — and the present system visibly re- flects the original one. Apparently the interval from 1896 to 1909 demonstrated the futility of attempting to cre- ate an adequate system of State highways by small special appropriations for selected roads. The State highway bond issue of 1909-1910 had been preceded by an issue of $1,250,000 in San Diego County and of $3,500,000 in Los An- geles County and by highway bond issues in Eastern States. The deferred serial type of bond chosen was in accord with the best prac- tice, but the term of forty-five years for the longest serial is unnecessary and will require a corresponding excessive total interest pay- ment. The legal provisions fixing both the nominal interest and the sales price proved em- barrassing to the Highway Commission. There is every evidence that the bonding principle itself at this period was sound. The Highways Act of 1909 created by impli- cation a system of 3,082 miles, which was mani- festly far in excess of the possible construction with the fund of $18,000,000 provided. The in- fluence of this discrepancy has been far reach- ing. The State Highway Commission stated in their final report: "Notwithstanding the ad- mittedly impossible task the Commission en- deavored by the employment of every honor- able expedient to obtain the greatest possible return in roads for the money." 1 Actually 1,300 miles, including graded roads, were built from proceeds of the first bond issue. The system of roads laid out under and by the various laws is an excellent one and the por- tions built by the Commission prior to January, 1917 (when the funds of the first bond issue were exhausted) appear, in general, to have been most needed. The distribution and the order of this first construction may have been conditioned by necessary policy. Under the le- iFirst Biennial Report of the California Highway Commission, December 81, 1918, Page 40. gal restriction for sale of bonds it became neces- sary for various counties to buy the bonds, and naturally roads in those counties which bought took some precedence. Counties were also ob^ liged to pay the interest charges on the funds used for highways within their boundaries — some of the poorer counties were not easily able to do this. In order to make the bond money go as far as possible the Commission also influenced the various counties to furnish the necessary expensive bridges and rights of way, which action created some opportunity for preference in construction. In addition to these influences, which conditioned the distribu- tion of construction, it was doubtless good pol- icy to acquaint as many voters as possible with the proof of the advantages of improved roads by actual examples. The maps, Plates VI. to XIII. show the progress of construction from year to year. 2 The success of the initial policy of the Com- mission with respect to type of road and dis- tribution of construction is evidenced by the increased majority for the second bond issue of 1915, and the still larger majority for the third issue of 1919 is evidence of its continued success. The general policy of the Commission, espe- cially with respect to the order of construction, in attempting to carry out the terms of the laws which conditioned the sale of bonds and implied or prescribed excessive mileage to be built, must be judged by its progressive reaction on the whole State rather than by comparing it with other alternative policies that may now be apparent to a State community enlightened by the benefits of the improved roads. Such a possible alternative policy, for example, might have given priority to the trunk road from Los Angeles to San Francisco. MANAGEMENT. The actual construction work of the Commis- sion was also conditioned by the Highway Act : (a) in respect to its permanent character and (b) by the first implied order for more than three thousand miles of highway. The Commission obviously attempted to com- bine the element of durability in design with ^Nearly ' all the gaps in the 1920 map indicate pavement acquired from the counties. 144 rapid extension of mileage. Although the moneys was theoretically available after the fall election of 1910, no construction was start- ed until August, 1912. There were also theo- retically, sufficient funds to allow large plan- ning of the work and the Commission took ad- vantage of the opportunity to conduct business on a big scale. They began work deliberately. In the fall of 1911 with the Highway Engi- neer they made a comprehensive tour of the State and established seven divisions. On the 21st of October, 1912, they signed contracts with the Natomas Consolidated of California (a corporation) for 500,000 tons of crushed cob- bles at 45 cents per ton, P. O. B., and also contracts with the Russian River Gravel Com- pany and the Grant Gravel Company for 175,000 tons of screened gravel at 27^ cents per ton, F. O. B. These were low figures for concrete aggregates and the Commission states : "Tended to fix a low price which had its influ- ence on other producers of concrete aggre- gates." 1 Effective on October 30, 1912, the Commis- sion secured from the Southern Pacific Rail- road Company a local freight tariff for com- modities "consigned to and for use by the Cali- fornia Highway Commission" at substantially one-half the prevailing rates. These rates were extended by Tariff No. 742-C, one year later. In the purchase of cement the Commission states i 1 "Under unwritten agreement the com- panies agreed with the Commission that during the life of the work the price should not ex- ceed $1.40 per barrel at the mills. This special price, far below the general market price, was made to encourage the use of cement in high- way construction." The actual yearly purchases of cement to July 1, 1920, with net prices, are tabulated below : Barrels Average Cost Year. Purchased. milllase. at mill 1912 142,465.50 1913 242,514.40 1914 677,790.25 1915 355,005.50 1916 110,090.00 1917 220,794.00 1918 221,418.00 1919 231,737.00 1920 43,048.00 (Up to July 1) $1,240 $176,683.24 1.309 217,376.36 1.325 898,403.48 1.367 485,267.31 1.371 150,958.28 1.454 321,064.61 1.621 359,036.76 2.038 451,270.72 2.158 89,699.56 Totals and average 2,244,862.75 $1-443 lFirat biennial report, Page 39. $3,249,780.32 After the first bond issue of $18,000,000 was exhausted, the cement companies felt that their obligation should end. When the railroads came under national jurisdiction during the war the preferential freight rates were abolished. On account of difficulty of delivery due to war conditions, which resulted in (valid) claims by the con- tractor and required stock piling at times, and due to the general rise in prices the Commis- sion has temporarily discontinued to supply, materials. They state that during the war the work progressed with increasing difficulty due to high costs, open-top car embargo, lack of bidders, restriction of the Capital Issues Com- mittee and the United States Highway Council, but did not stop. The totals of administration, engineering and other overhead costs have been presented in the section "Data" under the item "Work Done" and are very reasonable with the possible exception of the total overhead on maintenance. STANDARD PAVEMENT DESIGN. The standard design adopted for surface was a concrete "base" of 4 inches with a %-inch wearing surface of asphaltic oil and pebbles. The concrete mix was 1 :2y 2 :5 and the width was 15 feet with 3-foot earth shoulders as shown in Plate LIX, Type D. Although the concrete surface was doubtless originally laid as a base, only approximately 43 per cent has been given the oil surface. The average price in the earlier years for the 4-inch 1 :2y 2 :5 concrete and including grading and structures of $1.14 per square yard was remarkably low. This price was equivalent to about $10,000 per mile of completed 15-foot road and compared very favorably with the similar price of $1.21 per square yard for oil macadam. Neither price includes either indi- rect changes or overhead. The corresponding average price for the 4-inch, 1:2:4 concrete laid since 1917 has been $1.84, which is also low. The concrete pavement has probably produced a smoother and more satisfactory riding sur- face than any of the other types incidentally laid. This concrete pavement is the thinnest that has been extensively laid in any State, and would have been rejected as too thin in any State subject to winter frosts. It is one foot narrower than the minimum width of concrete roads built in most other States, and it is be- lieved that under present conditions it is in general 3 feet too narrow. The original mix 145 PLATE LIX. 146 PLATE LX. /0-6- -/2-0 - /S-0" PAVEMENT - SLOPE f PER FT. i mfflm'i^fflmJuYit-Miffliitotft. A <>>/>>»>>>/>> TYPICAL SECTION -5IDEHILL USE! ON TANGENTS AND CURVES OVER 300 'RADIUS CURB TO BE USED WHERE MECESSARYTO L ,0' n "_ _ P JL°I E . C I^ K ^\f0"^^/5-dPA mi , FROM WASH. 12-0 m^ SLOPES PER FT. 4 TYPICALSECTION FILL USE ON TANGENTS AND CURVES OVER 300' RADIUS 10-6- -IZ-0 ^ I 5'- O' PAVEMENT SLOPE A3 PER TABLE H TYPICAL'SEQION USE ON CURVES UNDER 300'RADIUS CONCAVE TO CUT /0-6 1 /2-0 /S'-O'PAVEME/VT-—-^^^ SLOPE AS PER TABLE m;mmmf)yymmi^/^ mm^ TYPICAL 5ECTI0N USE ON CURVES UNDER 300' RADIUS CONCAVE TO FILL curb on all curveshawng slope greater tran4"perft or wren re - quired to pro- 'ECT3L0PES. TABLE OF CROSS SLOPES RADIUS OF CURVE SLOPE SO' TO 75' Wperft. 75, ■■ 100' >/z" " 100, " 150', W " ISO, " 225 >U" ' 225 ' 300' /a" ' TYPICAL ROAD SECTIONS 147 of 1 :2i/ 2 :5. was leaner than that extensively used in other States and the present mix of 1 :2 :4 is not as rich as that used in several States, but it is believed to be adequate for the traffic. In this connection it is to be observed that California was the pioneer State in adopt- ing concrete as the standard pavement for the State highway system. The function of the %-inch asphaltic-oil wearing surface or "skin top" has not been completely determined. That it is not a neces- sary element of construction is evident from a comparison of the service and condition of bare and covered concrete which now exists. It was probably considered that the asphaltic-oil top would (a) take the wear of travel from the concrete, (b) protect to some extent the concrete base from impact and (c) prevent the penetration of water through such cracks as occurred. It has not been observed that the bare concrete itself shows evidence of wear by rubber-tired traffic, which traffic is now almost exclusively the traffic throughout California. Trucks with solid tires, however, cause disinte- gration at open cracks. It is doubtful if a %- inch bituminous layer materially lessens im- pact. A comparison of the data presented in the tables of classification and in the summary class diagram will show that the condition of the pavement covered with asphaltic-oil top compares favorably with the bare concrete, but it is to be noted that because of the presence of the asphaltic-oil top the classification of the concrete base beneath was made difficult and, in all probability, was higher than it would have been had the concrete base been uncov- ered throughout. To some extent the asphaltic top has sealed the concrete from water during the rainy periods and thus prevented softening of the subgrade which is important. It has cost about 8 to 9 cents per square yard and re- quires considerable repair and renewal and, under non-abrasive, rubber-tired traffic, it is doubtful if it serves a purpose commensurate with its cost, but more study of the extent of subgrade moisture protection is desirable. It is more slippery in wet weather than is bare concrete. The 4-inch, plain concrete of lean mix has proved in places very durable. There are 580 (distributed) miles built prior to 1917 that are of classes A and B. Under adverse con- ditions, particularly of soil, it is, however, evi- dent that a pavement of such thinness has a very low safety factor and is inadequate. Its use has now been abandoned and a minimum thickness of five inches of reinforced concrete is required. 1 The original construction pro- duced considerable rough-surfaced concrete, which, as traffic developed, doubtless material- ly increased impact. On the narrow 15-foot pavement loads passing each other necessarily traveled close to the edge. The "crow foot" de- fects are doubtless due to such travel of trucks whenever the conditions were unfavorable. There is little, if any, decisive evidence that reinforcing introduced in the 4 or even in the 5-inch concrete (particularly of the triangular- mesh variety, see Plate LXIV.) has proved ef- fective on adverse soils or under combinations of adverse subgrade and traffic. Nor will the widening of a 4-inch pavement to 20 feet elimi- nate the "crow-foot" cracks which are observed on such width concrete, even in instances on sandy soil. The original concrete pavement design, in short, now has little or no factor of safety and, under unfavorable conditions, has not with- stood the internal stresses produced by traffic flexure and variations in temperature and sub- soil moisture. It is doubtful if such a safety factor can be introduced without considerably increasing the mass of concrete. It appears that under adverse soil condition there is con- siderable flexure with traffic. To introduce sufficient steel to prevent flex- ure of a 4-inch or even 5-inch pavement over a shrunken or wet sub-grade, or even a loose, sandy sub-grade, is probably a doubtful econ- omy. The existing longitudinal cracks that are accompanied by any separation or by "fault- ing" along the crack, or by displacement, are evidences of sub-grade displacement or settle- ment or uneven sub-grade shrinkage as a pri- mary cause. Such defects are typical either with a single center crack or two longitudinal quarter cracks (see Plates XXL, XXII. and LXII.) and the soil moisture sections in Ap- pendix F appear to confirm this behavior. Some special treatment of adverse sub-grade soils, particularly of Class 1, will be necessary. Capillary action and high moisture retentive- ness and violent shrinkage must be met. The amount of admixture or the thickness of pro- tective layers of non-capillary and supporting soils is not yet known. A flat sub-grade might help to a slight extent to counteract such de- fects by eliminating some transverse tension due to normal pressure. The crown of 2% inches (see Plate LIX.) in the present 15-foot ^General Orders 421 and 427, May 1 and September 15, 1920, respectively. 148 PLATE LXI. DISINTEGRATION AT EdGE, AND TRAVELLED SHOULDERS. 4 KERN C. IjffpJlPlsJgfea^l^ CROW-FOOT CRACKING AND BREAKING. 4 KERN B. 149 PLATE LXI1. LONGITUDINAL CRACK WITH FAULTING. 7 SOLANO D. LONGITUDINAL CRACK WITH FAULTING. 7 SOLANO D. 150 PLATE LXIII. PITTING OF CONCRETE. 1 SONOMA C. •CHECKING" OF CONCRETE. 4 KERN B. 151 standard design may well be reduced to 1% inches and with a flat sub-grade and an added 1% inches maximum thickness, there is an add- ed factor against center longitudinal cracks. By January, 1917, the State Highway Com- mission had constructed a total of 835 miles mostly of 4-inch by 15-foot concrete pavement. They continued to build the same type except that the mix was increased to 1 :2 :4. In the light of the increase in thickness and the ad- dition of reinforcing steel rods in 1920, it must now be inferred that the Commission was again in 1917 governed in policy by the neces- sity for increased mileage. They say, with reference to the second bond issue: "The un- toward condition accompanying the world war soon set at naught the expectation of complet- ing the State highway system with the pro- ceeds of the second bond issue, and the Com- mission for the second time confronting an im- possible task, is again forced to secure the greatest value receivable with the funds at its command." This bond issue was based upon an estimate furnished from 1914-1915 figures. It is to be noted that the standard plans do not provide for widening the pavement on curves, although some widening of the "lune" type has been done subsequent to construction. The cross sections are -in general noticeably "shallow" or "tight" and require a minimum amount of excavation. 1 However, in the north- ern part of the State particularly, the climate appears to demand more pronounced drainage than has resulted from the present design. The sections do not provide for very pronounced super-elevation, which is now frequently and successfully made y 2 -inch to 1 inch to the foot in many States. It is believed that the width of the main roads should be increased from the present width of 21 to 24 feet to a width of from 24 to 30 feet (see Plate LXIV.) except in heavy cuts. The crowns, as has been noted above, could well be reduced to 1% inches even on a wider pavement. DESIGN OF GRADE ALIGNMENT AND SECTIONS. Many miles of the California State highways lie on flat valley floors and have excellent align- ment. There are scores of other miles of good location, including difficult mountain roads. It is disappointing in the valleys, therefore, to find any location defects such as right-angle, section-corner turns and unnecessarily quick reverse curves in passing around railroad sta- tion sites and in the mountains and on steeper lSee Plate LX. hills to encounter sharp blind curves and un- necessary rise and fall. Compensation of grade has not in all cases been sufficient to prevent exceeding the maximum grade if, in the future, the radii are lengthened. It appears that the defects in grade and alignment are due largely to a too strict adher- ence to a standard. That standard is not in- variably economical. A bolder line with con- siderably increased grading between Eckley and Martinez, for example, would probably not have added much to the first cost and will pos- sibly ultimately have to be built, as this is the main route from San Francisco to Sacramento and is now rather dangerous. Other locations on hill and mountain roads evidence minimum standards that are too low for trunk lines under present traffic conditions. There are numbers of 50 and 60-foot radii curves and grades of 7 per cent that might have been eliminated or reduced at slight additional cost. In a few cases a radical change in line, though doubtless involving added right-of-way costs, would have been a great improvement. It appears that valuable land has often been avoided and that a location that follows close- ly the topography has been the rule. These ele- ments have at intervals impaired the alignment and grade. Although the first report of the Commission states that travel can proceed at 30 miles per hour over the State highway pavement, it is not safe to travel at that speed at many points, partly because of the narrow pavement and lack of super-elevation, but largely because radii are too short. It would appear that where the method of cutting the inside bank to improve sight has been adopted, longer radii should have been selected in the first design. In the effort to economize in construction, it appears that at times (for example on, Route 2 between King City and Santa Barbara) too many sharp, vertical curves have been used in order to fit the ground. SPECIFICATIONS. The State Highway Commission has until re- cently adhered to the 1912 specifications with few changes. These specifications appear to have been rigidly enforced. The grading has been neatly finished and the sub-grade evident- ly well prepared. The original lean concrete mix of 1 :2!/2 :5 for a pavement should have been abandoned sooner, and the permission of 6 per cent of the fine aggregate passing a 100 screen allows a possible excessive clay content. The 152 PLATE LXIV. DEFECTIVE PLACEMENT OF MESH REINFORCING ON ADOBE. 2 SAN MATEO B. SHOULDER WEAR FROM INSUFFICIENT WIDTH. 5 ALAMEDA A. 153 requirements for coarse aggregate, with respect to size, grading, quality and cleanliness are, in the light of recent developments, somewhat inadequate. It is believed the specifications should also exclude the use of alkaline or salt water and permit larger aggregate than 2y 2 inches. The originally required rough finish has been abandoned, but the finish now ob- tained can be improved. This rough finish was evidently for a pavement base, but it shows through a %-inch top and, where not covered, has doubtlessly tended to increase impact. The old specifications for mixing until texture and color were uniform were evidently unsatisfac- tory and have been abandoned in favor of a ten-turn or one-minute mix. The requirements for curing by ponding or wet earth are excel- lent, but some checking (see Plate LXIII.) due either to lax enforcement of this provision for curing or a too wet mix has occurred. The omission of transverse joints appears to have been a justifiable innovation, particularly in a frostless country, but it is believed there should be exceptions to this practice. The pres- ent requirement for concrete mixture of 1:2:4 if laid dry, it is believed, should produce a good pavement for traffic preponderately rubber tired, but it is remarked that several States use a richer mix. Eeinforcement has not been re- quired until 1920, but the present specifications for about 42 pounds of i/ 2 and %-inch steel rods in the center plane per 100 square feet, it is believed, are excellent. The triangular mesh reinforcement used on Federal-aid project No. 1 was a failure due possibly to improper place- ment (see Plate LXIV.). With reference to Topeka specifications, it is believed that an asphaltic oil of penetration not •exceeding 70 should be specified, especially where the temperatures exceed 100° F., and where traffic is also unusually heavy. With reference to oil macadam, eastern ex- perience indicates that a surface treatment with the largest quantity of oil specified (1% gallons) will work into ridges and lumps un- der traffic. It may be inferred also that with oil paid for by the barrel there will be a corre- sponding tendency to use the maximum amount. Numerous cases of "viscosity waves" are ob- servable throughout the State, although there are many miles of excellent oil macadam roads. It is to be remarked that in general the speci- fications for concrete have, as shown by the tested samples, produced good quality, and that they have permitted an economic use of local material with a minimum of failures. FURTHER DISCUSSION OF POLICY OF EXTENSION OF MILEAGE. It is necessary in a critical analysis of the standard design to which the State Highway Commission has adhered for eight years, to make full allowance for the advantage in exten- sion of service made possible by its use. That this concrete construction was begun as a base, however, must not be overemphasized since it was continued for 694 additional miles, not- withstanding that supplementary surfacing for financial or other reasons was omitted. The design must be judged as above indicated with reference to the necessity to extend service and with respect to its contitmance under the second ftond issue, and, in addition, with refer- ence to its upkeep and its adaptability to sup- plementary construction in those cases where it fails, owing to increase in volume or intensity of traffic or other causes. It is to be remarked that the total motor ve- hicle registration in 1920 is about 6 times that of 1912 — and the total truck registration is ap- proximately 6 times the 1915 figures. The State Highway Commission has as yet taken no Statewide traffic census. That the thin, narrow pavement and close grading enabled the rapid extension of very serviceable miles of road is without question, and that the implied order in the Legislative Act of 1909 demanded extension, is equally evi- dent. Because the second bond issue was voted in 1915 and the third in 1919 may, in a sense, indicate such a capacity for road financing by the State as to deny the assumption that the State of California, at any time, was obliged to take chances with thin pavement in order to produce mileage, but it is undeniable that the very extension of the pavement developed suffi- cient sentiment to provide additional money in 1915 and again -in 1919. So it cannot be said in 1920 in the light of the fact that the great use- fulness of the highway system is now proved, that the State would have realized its useful- ness and provided funds in equal volume had not the system been extended as rapidly as it was and at some sacrifice of either temporary or ultimate durability to increased mileage. There appears, however, to be a serious ques- tion in the light of the fact that 70 per cent of the defective pavement of Classes D, E and F occur on clay and adobe soils, as to the wis- dom of a policy which continued the risk of a thin slab on such soils. It is undeniable, how- ever, that a large mileage of the same thin pave- ment and on adverse soil still remains of 154 PLATE LXV. OIL MACADAM PAVEMENT. LOS ANGELES COUNTY OIL MACADAM PAVEMENT, SACRAMENTO COUNTY. 155 PLATE LXVI. SUPPLEMENTARY CONSTRUCTION SHOWING NEW 30-INCH SHOULDERS BEFORE LAYING OF TOPEKA SURFACING. 4 TULARE D. FEDERAL-AID PROJECT NO. 24. SUPPLEMENTARY CONSTRUCTION WITH 30-INCH CONCRETE SHOULDERS AND TOPEKA SURFACING. 2 ORANGE B. 156 PLATE LXVII. '■', ■ " " ~-~- ' J *-~*;.'~', t Xl< " -J,}— 3S5*** -.**..-"*. . '"*?■:„* SUPPLEMENTARY CONSTRUCTION. NEW LAYER OF 4-INCH CONCRETE ON TOP OF OLD OILED CONCRETE. ROUTE 2, LOS ANGELES COUNTY. HEAVY PATCH REPAIRING. 7 COLUSA C. 157 Classes A, B and C. We find, however, no con- clusive final demonstration of the best con- struction on the adverse soils and, in that re- spect, failure to vary the design on such soils in the past has postponed the solution of this problem. The concrete itself is shown by the tests of the sample cores and other samples to be uni- formly good, its weight per cubic foot and ab- sorption is practically constant and the amount of coarse aggregate also. The crushing strength averages well above 3,000 pounds to the square inch. There is raised by the diagram of crush- ing strength by years (see Plate XLIV) a ques- tion as to whether or not the concrete may be slowly deteriorating, but this condition has not been conclusively proved. More study of this phenomenon is required before any conclusion can be reached. Certainly the slight indicated decrease in strength would not account for any of the adverse conditions found in the pave- ment. The question of initial extension vs. durabil- ity of design is further discussed under the topic of economics with reference to the indi- cated operating income. There seems grave question, however, as to the decision in 1917 to continue with the construction of pavement of a low factor of safety. By that time, it would seem, from a study of the summary tables of class condition, that the behavior of the design on adverse soils should have been known. Still the change to a mix of 1 :2 :4 appears to be re- flected in the class condition, since only 48 miles of the construction, beginning with 1917, has gone into Classes D to F, inclusive, while 109 miles of construction prior to that time are in these classes. The adaptability of the pavement laid to sup- plementary construction when it fails is indi- cated by about 37 miles of this work already done with 30-inch concrete shoulders and 11/2- inch Topeka or other bituminous concrete sur- facing and with second-story concrete. None of this work is sufficiently old to prove its ultimate durability. At present it appears to be carrying traffic .with success. The expense of extensive repairing of certain sections prior to such reconstruction has been necessarily heavy. Much of the work so far done has been on roads in such sections that the cross section has not been a serious item, but in many places the road-bed will have to be widened before such supplementary construction of shoulders .and surface top can be done. PRESENT CONDITIONS. With reference to the classification adopted for determining the present condition of con- crete pavement, it is to be noted that for 4-inch concrete pavement, Class A is a rather abnor- mally high type. Pavement of Class B, in the light of the present stage of development of con- crete roads, appears to be a very normal type of concrete pavement, that is to say, transverse cracks at intervals of approximately 25 feet in a 4-inch pavement without joints may be con- sidered characteristic. Pavement of Class C, where no separation or faulting follows or ac- companies the longitudinal cracks in a 4-inch slab, is not unexpected. But where faulting occurs along the longitudinal cracks or where there is a distinct separation of the two edges of the crack, an unusual condition is present, and the pavement must be regarded as considerably impaired as a structure. Such cases are not infrequent. Pavement of this Class C may, however, and usually does, carry traffic without inconvenience. "Crowfoot" cracks at the edge of the pavement in any considerable number are distinct defects, and are not normal and are a characteristic type of defect, and, when fol- lowed by settlement or disintegration, impair the service of the road. Pavement of Class D, in which occur many areas of concrete of about 50 square feet, is decidedly defective, and when accompanied by settlement the service of the road is slightly impaired. Pavement of Class E is a failure and pavement of Class F usually indicates that the concrete itself was bad or that the design of the pavement was inade- quate. Travel on this type F is in some in- stances quite difficult. The State laid 1,365 miles of concrete and 1,262 miles were classified. Of that classified, 157 miles, or 12.5 per cent, was found in Classes D, E and F, but the degree of impairment is somewhat greater than the percentage, since the defective pavement is distributed through- out the State. The pavement in Class F was largely concentrated and less than 6 miles re- mains unrestored. The pavement in Classes E and D will require reconstruction or heavy repairs and supplementary construction in the immediate future ; there are about 114 miles of these 2 classes. CONSTRUCTION AND MAINTENANCE. An analysis of construction done and the costs thereof shows a rapid building of the im- portant trunk highways to approximate com- pletion and at a very reasonable cost. The 158 total average percentage of construction costs on both day-labor and contract work, charge- able to administration, engineering and over- head, is 15.86 per cent and is reasonable. The percentage of total overruns of 6.24 per cent on final total payment on construction over the engineer's estimate, in view of the recent rise in prices, is low. On day-labor jobs this corre- sponding percentage is higher, as expected, but is not excessive. The analysis in Appendix B of the 20 jobs, both contract and day-labor, which presented the greatest apparent percent- age of overruns, shows adequate reasons in practically every instance for such overruns of the estimate. The accounts in the headquarters office on all work were found very complete and with- out discrepancies, and the cost figures here pre- sented are accurate and official. The direct charges for maintenance and im- provement are found not to be excessive; the overhead and indirect charges, however, are ap- parently 19.2 per cent, overhead alone 12.5 per cent, which seems rather excessive. The direct control of maintenance by the State of State highways and the application of the net automobile revenues to this work is believed to be an excellent arrangement. The organization of maintenance under a headquarters mainte- nance engineer operating through the 7 divi- sion offices appears adequate, though in some instances rather important job work appears to require more competent direct supervision. There are at present under maintenance a total of 3,293 miles of State-controlled roads. These include 1,524 miles of earth and gravel roads, including special State roads built prior to 1912, and about 150 miles of oiled county- pavement which the State has acquired from the counties. The expenditure for maintenance and improvement of earth and gravel roads is nearly one-third of the entire expenditure. . Since the law now allows the automobile money accruing to the State Highway Com- mission to be used for "improvement," it is found that considerable gravel and other sur- facing has been done from this fund. The com- plete analysis or tabulation of distributed main- tenance and improvement costs for each origi- nal project built by types and by years was not attempted, but the data for such analysis, while sometimes confusing, exists in the head- quarters records. Sufficient investigation of the maintenance books was made to determine accurately the unit costs and the summary costs here given. It appears that up to 1920 the Commission has thought of necessary travel more in direct relation to the increasing maintenance costs rather than in respect to its influence on de- sign of new construction. In this connection it is to be observed that in 1912 the increase of traffic could not be foreseen, but it would appear that by the end of 1915, when 1912 regis- trations had nearly doubled, that the 1918 registrations should have been foreseen. ADMINISTRATIVE AND ENGINEERING ORGANIZATION. The organization was highly developed. It has continued with little change since 1911. During the war, in common with other State highway departments, it was impaired by loss of personnel and its work hampered by bad in- dustrial conditions. It is not unwieldy and in form is unusually well adapted for the large scale operation it has conducted. The salary scale is good. The details of the engineering standards are carefully thought out and unusually complete. The standard plans and drawings are excellent, and the clear-cut precision of all engineering operation makes for speed and efficiency. The cost of all overhead and administrative and engineering items on contract jobs has aver- aged, as mentioned, 15.86 per cent, which, in view of the average low cost of construction per mile is very reasonable as is similarly 15.88 per cent on day-labor jobs. There is some evidence of a cramped con- dition in the functioning of the organization. It appears that headquarters control is so com- plete that it may inhibit those reciprocal actions necessary for healthy growth. There is a good opportunity with such an organization to develop this reaction function and initiative of the engineering employees who are in first- hand contact with the job. With the extraor- dinarily efficient directive functioning in all de- tails, a corresponding return functioning of the organization through the division engineers to headquarters is desirable to develop new ideas with the extension of contact with the job. More initiative and authority would increase efficiency; thus the significance of the adobe re- action might have developed sooner and better alignment could have been produced by changes authorized during construction from reports by resident engineers. The procedure in advertising and letting of contracts appears to be satisfactory. Some of the early contractors were inexperienced in 159 road work and lost money. This condition has frequently occurred in other States. There is some apparent delay in the completion of final payments due to the routing of the paper. CONVICT LABOR. The State highway department officials re- port favorably regarding this convict work. They bring out these points : The inaccessible, difficult, inspiring and re- mote regions selected proved of advantage as environment and eliminated any criticism of competition with free labor or contact with undesirable "free" citizens. The kind of work selected — heavy grading and clearing and grubbing — has been well adapted for success. Unguarded, honor and long-term convicts work best. Good camps and food pay and the outdoor life is wholesome. There was difficulty at the start due to dual administrative control by the State Prison authority and the State Highway Commission authority. This conflict was eliminated, and, with reward for good behavior and punishment for misbehavior, the work of the convicts has proved economical, especially during the war. ECONOMIC AND OTHER STUDIES. The one-day traffic at 103 Stations on the State highways is an index of the use of the roads. This traffic-day was distributed be- tween August 7th and October 14th and throughout the State and the assumed daily average total of 2,500,000 vehicle-miles should be representative for the summer interval, or say from June 1st to November 1st. The re- sulting total vehicle-mrles of 375,000,000 is 70 per cent on the State-paved highways alone. There results 262,500,000 vehicle-miles indicat- ed service by such paved highway. The oper- ating income at five cents a vehicle-mile is $13,125,000. To this amount must be added an operating income for the service interval November 1st to June 1st. This latter amount cannot be based on a traffic figure, but a minimum figure would indicate a total annual operating income of $20,000,000 for 1920. For preceding years, when there were less miles of State pavement and fewer vehicles, the operating revenue cannot be placed at a figure greater than the corresponding percentage of this total. Thus in 1919, with an average of, say 450,000 motor vehicles in use, or 90 per cent of the 1920 average, and 93 per cent as much paved highway, there could not have been more than 83 per cent as much corresponding oper- ating income. If the figure is placed at $15,000,000 there results an indicated gross operating revenue in the last two years of $35,000,000. The element of assumption in the above reasoning is regarded as conservative. It is unnecessary to extend the computation to make immediately evident that the operating income from the State-paved highway system alone since 1913 has more than equalled the total expenditure for construction and for re- pair, improvement and maintenance of the en- tire mileage paved and graded by the State. The operating income from the graded portion and the portion built by the counties and acquired and maintained by the State has been disregarded. A corresponding decrease in oper- ating revenue to the community would have occurred had the mileage been shortened by constructing a more durable type. It is observed that during the decade 1910 to 1920 the estimated value of agricultural products has increased over 300 per cent, the population of the entire State 44 per cent, and the population on the highways, exclusive of the two largest cities, 63 per cent. These facts are evidence that the policy of extension of mileage of serviceable pavement was justified in the initial period. Highways, like the railroads, build up business, and a period of supplementary construction follows without financial strain because of increased operating revenue. The advertising value of the highway system has, without question, add- ed to the population and to the tourist at- traction. Although for the most part the. service ren- dered by the roads built is still uniformly good, it is very evident that the State can now well afford to raise the standard of construction. This standard must satisfy all motor-vehicle operators. The increase in the use of the trucks will doubtless for a time be increasingly rapid. It has been over 500 per cent in 7 years and 250 per cent during the past 3 years, and will demand a greatly increased factor of safety in the pavement. But the increase in motor registration figures cannot be the only index of the future duty of 160 the roads. Additional information useful for the State Highway Commission can be secured by elaborating the form used for registration, but the necessity of a comprehensive traffic census at frequent intervals is great. Only a traffic count will determine the distribution of highway operations and yield corresponding control both of design and maintenance allot- ments. The maintenance and repair operation in the past period has involved excessive patching in certain sections due to the thin 4-inch pave- ment and the increase in traffic volume, weight and speed. In the future, however, the demand for better quality of pavement service will be- come more exacting, and the increased traffic will require maintenance for various items on any type or standard of pavement, so that as the system develops the aggregate maintenance charge may be expected to increase. There is evidence that relatively few vehicles have excessive total loads, but field weighings showed a large percentage of over-load of trucks per linear inch of solid tire. Unfortu- nately the exact record of this item was lost. It must be inferred that the infrequent and incidental heavy load is very destructive. De- fects of the "crowfoot" type in the pavement are regarded as due solely to traffic impact on the thin slab with adverse subgrade condition. Crow-foot defects developed largely since Sep- tember, 1920, on Federal-aid project No. 11, 10 Fresno D, between Goalinga and Oil King School, show by actual count 54 on the incom- ing or unloaded edge, against 283 on the out- going or loaded edge. This is 6-inch pavement 18 feet wide on adobe. Not only heavy soils but also sandy soils underlie defects of this type, nor is a 4-inch pavement of greater width ex- empt from such defects. Excessive transverse cracks are also inevitable in a thin slab with any combination of adverse traffic and subgrade conditions. Whatever design is adopted and whatever the legal speed and loading, there is evidence that increased enforcement of the law is required. CONCLUSION The State highway system has in general been well selected and laid out. The mileage prescribed by law has far exceeded the funds and this discrepancy distorted the policy. The mileage remaining to be built is far in excess of the combined capacity of the third bond is- sue and all available Federal aid. The deferred serial type of highway bond adopted is good, but the longest terms of every issue (44-45 years) are very excessive, and the long terms will require millions of needless in- terest. The amounts of money were sufficient to permit planning of comprehensive construc- tion programs and economy of large operations. The legal restrictions on the bonds were seri- ously embarrassing. 1 The order of selection and construction of roads from year to year has been largely con- trolled by necessary policy. The policy of permitting unpaved exceptions in small incorporated towns is uneconomical and impairs the efficiency of service of the State highways. The financial administration has been scrupu- lously honest and careful, and the adminis- trative and engineering costs have not been excessive, nor have final costs much exceeded the engineer's estimates. Convict work bas been successful, especially during the war, and from both aspects — the road work and reflex effect on the convict — it has been found necessary for success to largely eliminate any dual control of convicts on the job. The State prison funds clearly should bear some expense. There has been a conspicuous growth of motor vehicle registration in California during the past construction period and a correspond- ing increase in volume and intensity of traffic. The Commission evidently did not anticipate this increase and did not provide for it in their original design, nor did they count the traffic throughout the State. A very careful traffic census should be taken at intervals. It is not believed that modern rubber-tired traffic on a smooth concrete road is abrasive, although solid-tired vehicles doubtless produce lSuch restrictions were removed by the vote of November 2, 1920. some breaking down of edges of separated cracks. No definite correlation was found be- tween the total of vehicles and the condition of the concrete pavement itself, but the total traf- fic does largely determine the wear of shoulders and in many places does indicate a too-narrow width of pavement. It is believed that the im- pact of excessively heavily loaded trucks, par- ticularly at high speeds, is very destructive to a thin, narrow pavement on adverse soils, but it is evident from the data that such trucks are in a small minority in California. Truck traffic is increasing; the size and number of commercial passenger busses is very noticeable and there may be expected a parallel increase in the development of commercial freight motor truck traffic. Passenger busses are already operating on the 15-foot pavement to the disad- vantage of other traffic, and the law allows a total width of farm load of 10 feet which is excessive for such pavement. State authorities cannot control the volume nor the distribution of traffic on the State high- ways, but complete and effective co-operation between the State Highway Commission and the Motor Vehicle Department controlling the character of traffic is necessary. The creation of special State police exclusively to enforce the vehicle laws may be required. There is a very large annual operating reve- nue to the community from the State highways. The total of this revenue has probably paid for all construction costs to date and would have been correspondingly decreased with Ihss mileage. A sum equal to the total net motor-vehicle fees at the present average rate will probably always be required for the absolute mainte- nance and improvement of State highways as construction of the 5,560 miles progresses. The original theory of a license to operate a motor vehicle is obsolete in a community where 97 per cent of traffic is by motor and the registra- tion fee becomes a charge for use of the road. Systematic financing of the upkeep will ulti- mately adjust the average fee to the require- ment of upkeep and also adjust the fee to the vehicle type to more closely indicate the impair- ment produced. An immediate increase of the State's share of the net automobile revenue 162 would be good economy as a large mileage of defective concrete road must be at once repaired and resurfaced. The tables and the diagrams of condition and the statistics of sample core and soil tests clear- ly indicate: (a) A correlation between defective pave- ments of Classes D, E and F and adverse soil subgrades ; about 11 miles or 70 per cent of 157 miles total of these three classes occur on soils of Class 1, which includes all adobe soils. (b) That since the average corrected test- ing strength of concrete cores is above 3,000 pounds to the square inch, the concrete itself is not generally defective in strength, nor does it show any wear by traffic. (c) The class condition of all concrete pavement indicates a slow progressive deterior- ation- and that the type built tends to reach its approximate stage of classification compara- tively soon and thereafter to change more slowly. DUNSMUIR BRIDGE OVER SACRAMENTO RIVER. (d) The diagram showing average strength as determined by cores tested from concrete laid during the various years indicated that there may be a slow, progressive deterioration of the concrete itself, or "fatigue" in a thin slab subject to excessive flexure. (e) There is no conclusive indication, so far, that the previous reinforcement in a 4-inch or 5-inch slab has produced a measurable in- crease in the quality or durability of the pave- ment. (f) There is shown by the diagram of com parison between class condition of oil-surfaced concrete and the class condition of bare con- crete a slight superiority in the average con- dition of the pavement surfaced with the %- inch oil top, but in view of obscured classifica- tion there is no demonstrated marked superior- ity of oil-surfaced pavement. (g) Typical longitudinal (and other) crack- ing found on adverse sub-grade soils, and shown by many of the 7,500 photographs now on file in ■the Bureau of Public Roads, indicates a dis- tortion of the sub-grade due to varying moist- ure content and shrinkage. The diagrams showing lines of equal moisture content clearly indicate the influence of the concrete pavement 'in preventing evaporation. The high capillar-- ity of adobe soils and the great shrinkage in the long hot summers thus produce very un- favorable conditions for a thin pavement under increasing traffic. All unrepaired pavement of Classes D to F, inclusive, which totals 120 miles and much of which is on adobe soils, is doubtless deteriorat- ing and demands immediate repair and supple- mentary construction. It is doubtful if much of the pavement of these classes, especially on "adobe" will ultimately prove an adequate base for a 1^-inch Topeka top. An adequate "second-story" concrete construction, if extend- ed to a total width of 20 feet to thus include two new concrete shoulders of full depth, is to be [(referred. There are sufficient typical failures to show that in the future only designs of increased strength and adapted to resist such failure should be used. There will be necessary every possible precaution to prevent failure on adverse sub-soils of adobe, clay adobe or similar soils. On such soils, in the absence of any proved successful design, short sections only of tentative design should be attempted, or there should be first developed frank experi 163 mental construction to determine a workable and economical design. Such a design will require the reinforcement now provided by the Commission and a more massive type of concrete and not less than six inches in average depth and some adequate cor- rective treatment of sub-grade and possibly a form of "mulching" of shoulders to prevent evaporation. A flat sub-grade is desirable and less crown. It is believed that on the main roads more satisfactory results will follow a considerably bolder standard of location on hill and moun- tain grades and that an increase in width of pavement to a minimum of 18 feet is now de- sirable, with more systematic widening and super-elevation on curves. Under modern traffic conditions there is an increasing demand for unimpaired alignment and fast travel between centers. To this end designs of highways must produce in general a road that can be traversed at a speed of 30 miles per hour throughout and without exces- sive operating costs due to changing speeds, etc. Therefore, first economy in grading becomes of rapidly decreasing advantage and must give way to the increased safety and comfort of travel. There would be advantage in some exceptions to the present standard of no transverse joints. In the hot valleys considerable buckling of the 4-inch slab occurs with attendant disintegration in infrequent instances. This tendency to buckle would doubtless be reduced by a thicker slab. Experiment with transverse joints at varying intervals is desirable on adverse or adobe soils. The future pavement will require a much larger factor of safety. The policy of construction of grading and drainage structures and gravel surface only, on certain roads in Districts 1, 2 and 3 in particu- lar, was economically sound and deferring of paving up to the present doubtless justified. Through roads with a minimum of unimproved gaps resulted from such policy and with ade- quate standard for most interstate travel. The standard of design and workmanship of structures is high and the costs have been very reasonable. Many bridges exhibit attractive de- signs of unusual elegance. In many places the side-hill type of inlets is not functioning. The prevailing type of guard rail is a reflection of the original purpose to protect horse-drawn traffic and might be modified to advantage in maintenance cost. Railroad grade crossing elimination, where undertaken, has been well done and will require constantly more atten- tion and investment of State funds. The standard of finish on concrete pavement has improved, but it is believed that still great- er refinements will constantly be demanded and will probably pay in reduction of impact and resulting injury to, and by traffic. It is not believed that the continued use of the %-inch oil top is justified by past experience. The con- crete should be laid not as a base but as a wear- ing surface. There is nothing presented by the entire California Study that indicates that concrete is not a successful pavement. One of the clear- est results is the emphasis on the need of better sub-grade protection. Highway grading is more exacting than railroad grading. There should be further studies in respect to : (a) Traffic, with a new traffic census be- fore June 1, 1921, and periodically thereafter. (b) The indicated slow deterioration of the existing concrete, with continuing core tests. (c) Soils, with considerable elaboration of the moisture-content study in pave- ment-protected sub-grades, and the thickness of necessary protective soil layers on adobe and of the required percentage of admixtures to lessen shrinkage and to increase the bearing power, also with respect to capillarity and critical moisture content. (d) Alkali and its effect when present in the sub-grade or in the mixing or pond- ing water. It is believed that the motor vehicle registra- tion law should provide separate records of the numbers of (a) all commercial trucks, includ- ing rubber-tired trucks, (b) all public freight trucks of certain important classes, (c) all for- eign cars, and (d) all public passenger-carrying busses and should contain strict provisions re- garding tire conditions on all solid-tired trucks .with respect to the minimum rubber cushions and flat tires, o'r projections, etc. The work of the State Highway Commission and the Highway Engineer shows a continuous and intelligent devotion to public duty. Their construction operations have been widely ex- tended under greatly varying conditions. A high degree of standardization was doubtless necessary and is evident. The failures (12.5 per 164 cent of D, E and P pavement) are not extensive and some were inevitable on large-scale work. The 4-inch, 15-foot concrete pavement was con- tinued beyond the point of success on adverse soils, and more time will be needed to develop a type of construction certain of success on such soils. The operations have produced a large mileage of very serviceable road and from an economic standpoint are conspicuously success- ful and of continuing benefit to the State. The operating income from the highways is now sufficiently large to insure the economic success of a considerably increased standard of con- struction. PLATE LXVIII. ROUTE 9, LOS ANGELES COUNTY, SECTION A. "COAST ROUTE." 2 SANTA BARBARA K. 165 PLATE LXIX. ROUTE 7. SOLANO A. ROUTE 9. LOS ANGELES A. APPENDIX A DETAILS OF STATE HIGHWAY BONDS AND HIGH- WAY SYSTEMS PROPOSED FIRST BOND ISSUE, 1909— $18,000,000. The nominal rate of interest is 4 per cent and the maximum terms 45 years.' As the law pro- vided that the bonds must not be sold below par, the issue was hard to market and only $4,280,000 was sold publicly; the remainder, $13,720,000, was taken by the counties. 1 Had this procedure not been adopted the work could probably not have continued. The State highway act of 1909 states relative to the first bond issue: "A system of State highways in and for the State of California shall be constructed and acquired as and in the manner provided by law by the Department of Engineering of said State, at a cost not to ex> ceed eighteen million dollars. * * * The first four hundred of said bonds shall be due and payable on the third day of July, 1917, and four hundred of said bonds in consecutive nu- merical order shall be due and payable on the third day of July in each and every year there- after until and including the third day of July, 1961. The interest accruing on all of said bonds that shall be sold shall be payable at the office of the Treasurer of the State on the third day of January and the third day of July of each and every year after the sale of the same. * * * There is hereby created in and for the State Treasury a fund to be known and desig- nated as the 'State Highway Fund' and imme- diately after such sale of bonds the Treasurer of the State shall pay into the State Treasury and cause to be placed in such State Highway Fund the total amount received for said bonds, etc. The moneys placed in the State Highway Fund * * * shall be used exclusively for the acquisition of rights of way for and the acqui- sition and construction of said system of State highways." SECOND BOND ISSUE, 1915— $15,000,000. The nominal rate of interest on these bonds is 4i/ 2 per cent and the maximum term 40 years. These bonds found a ready market, except when the Federal Capital Issues Committee was in operation. The "State Highway Act of 1915" states relative to this second issue : "The fund created for the construction and acquisition of a system of State highways by the 'State High- ways Act' of 1909, being inadequate to fully carry out the objects of said act, the uncom- pleted portions of said system prescribed by said 'State Highways Act' and certain exten- sions therefrom hereinafter specified shall be constructed, improved and acquired as and in the manner provided by law by the Department of Engineering of said State at a cost not to- exceed fifteen million dollars." The usual pro- visions follow for the sale of bonds and "The said bonds shall be payable * * * the first three hundred seventy-five of said bonds * * * on the third day of July, 1923, and three hun- dred seventy-five * * * on the third day of July in each and every year thereafter until and including the third day of July, 1962. The interest accruing * * * shall be payable on the third day of January and the third day of July of each and every year after the sale of the same." This act creates the "Second State Highway Fund" and directs |;hat pro- ceeds of the sale of the second bond issue be paid into it and used "exclusively for the acqui- sition -of rights of way for and the acquisition, construction and improvement of the uncom- pleted portions of the system of State highways prescribed by said 'State Highway Act'. And of said moneys so placed in said second State highway fund, the sum of three million dollars, or so much thereof as may be necessary, is here- by made available and shall be used exclusively for the acquisition of rights of way for and the acquisition, construction and improvement of certain extensions," etc., extensions specified in the act. lAct of March 22, 1909, provided in Section 8 that counties in which bond money was spent should pay the corresponding interest charges and the Act of March 10, 1911, Ch. 165, P. 889, provided amended and detailed procedure. Act of April 23, 1913, authorizes counties to purchase State highway bonds. 167 THIRD BOND ISSUE, 1919— $40,000,000. The nominal rate of interest provided in the law is 4V2 P er cent and the maximum term 40 years, and the bonds are required to be sold at not less than par. The act for the third bond issue specified that the "interest shall be pay- able on the third day of January and the third day of July of each and every year after the sale of said bonds, and said bonds to become due and payable in annual parcels of one thousand bonds, commencing July 3, 1926, and ending July 3, 196.")." The act established the "Third State Highway Fund," into which the proceeds of the sale of the third issue of bonds shall be paid and "the moneys in said 'Third State Highway Fund' shall be used by the State Department of Engineering for the acquisition of rights of way and for the acquisition, con- struction and improvement of uncompleted portions of the system of State highways pre- scribed by previous State Highway Acts and certain additional highways named in the Act providing for the third bond issue." Under the market conditions of 1919 and 1920, with these restrictions, the bonds were unsalable and the 'Board of Control' arranged, March 3, 1920, to sell |3,000,000 of the bonds for 92.59 plus and pay the discount, amounting to $222,160.50, with accrued Federal aid. 1 PROCEDURE REGARDING SALE OF $3,000,000 THIRD HIGHWAY BOND ISSUE. The State Board of Control consists of three members ap- pointed by the Governor and holding office at his pleasure. This Board examines and audits claims against State funds and has general powers of supervision over all matters concerning the financial business policies of the State. The State Board of Control, together with the State Treasurer, are authorized to designate as a "Surplus Fund" any money in the State Treasury not necessary for immediate use. The State Board of Control is further authorized to invest the same in the purchase of certain classes of bonds, including bonds of the State of California. The only limitation on the authority of the State Board of Control is that no sale or exchange of bonds so purchased by the State Board of Control shall be made at a price which will result in a net los^ to the State. The Advisory Board of the State Department of Engineering is empowered by law to designate the fund or funds to which the State Controller shall credit moneys received by the State Treasurer from the United States Government under project agreements relating to Federal-aid road work. lThe following is a memorandum from the State Highway Commission, dated September 25, 1920. In the sale of State highway bonds, the State Treasurer must obtain therefor the par value of the bonds plus accrued interest. In February, 1920, the State highway bonds were below par in the general market.' The State Treasurer had received cer- tain moneys from the United States Government under project agreements relating to Federal-aid road work. Unless State highway bonds could be sold, State highway work would be vitally affected. All State officials concerned therein concurred in the fol- lowing plan of financing: Out of the Surplus Fund the Board of Control first paid to the State Treasurer the par value of $3,000,000 worth of State highway bonds with accrued interest to the date of delivery and took the bonds into its own physical possession, custody and control. Thereafter the Board of Control sold and delivered such bonds to a syndicate of bond buyers at a price less than par. Upon the consummation of such sale and the "receipt of moneys arising therefrom, the Board of Control, by proper direction to the State Controller and State Treasurer, caused all such moneys to be paid into the Surplus Fund. Simultaneously therewith the Advisory Board of the State Department of Engineering directed the Treasurer to cash certain Federal-aid road money checks and from the proceeds thereof to pay the sum of $222,160.50 into the Surplus Fund in such manner that the sum so paid into the Surplus Fund was exactly equivalent to the sum which would otherwise have been obtained from the sale of the bonds had the latter been sold in the open market for par and accrued interest to date of delivery. The Appellate Court of the State of California has upheld che validity of the above plan and has decided that such trans- action was not in violation of the provision of the Surplus Fund Act to the effect that any sale or exchange of bonds purchased by the State Board of Control out of the Surplus Fund shall not be made at a price which will result in a net loss to the State. The Appellate Court further held that the Advisory Board of the State Department of Engineering was within its powers in directing the crediting of Federal-aid road moneys to the Surplus Fund. A petition for a rehearing of the matter is now pending in the State Supreme Court. This action was decided legal by the State Appellate Court, but the decision was appealed September 14 to the Supreme Court of the State of California. At the date of rendering this report the Supreme Court had not ren- dered a decision. For the purpose of authorizing the issue of bonds more readily saleable, petition was made to cancel the unsold highway bonds of the third issue and authorize other bonds to the same amount to be issued at an interest rate not ex- ceeding 6 per cent. This initiative measure was submitted to the people for vote at the general election, November 2, 1920, and carried decisive- ly. This measure also relieved the counties of the payment of interest on all State highway bonds in the future. Tables 33 to 37, inclusive, which follow show the annual payments which will be required to pay interest and principal on the various bond issues until all are completely amortized. 168 TABLE 38— SCHEDULE OF INTEREST AND PRINCI- PAL FIRST BOND ISSUE— $18,000,000. Interest for Principal the Year Principal Total Year Outstanding (4 Per Cent) Repaid Payments 1911 $400,000 1,731,000 1912 $16,000 $16,000 1913 5,225,000 114,800 114,800 1914 11,715,000 311,100 311,100 1915 16,400,000 514,300 514,300 1916 18,000,000 688,000 688,000 1917 17,600,000 720,000 $400,000 1,120,000 1918 17,200,000 704,000 400,000 1,104,000 1919 16,800,000 688,000 400,000 1,088,000 1920 16,400,000 672,000 400,000 1,072,000 1921 16,000,000 656,000 400,000 1,056,000 1922 15,600,000 640,000 400,000 1,040,000 1923 15,200,000 624,000 400,000 1,024,000 1924 14,800,000 608,000 400,000 1,008,000 1925 14,400,000. 592,000 400,000 992,000 1926 14,000,000 576,000 400,000 976,000 1927 13,600,000 560,000 400,000 " 960,000 1928 13,200,000 544,000 400,000 944,000 1929 12,800,000 528,000 400,000 928,000 1930 12,400,000 512,000 400,000 912,000 1931 12,000,000 496,000 400,000 896,000 1932 11,600,000 480,000 400,000 880,000 1933 11,200,000 464,000 400,000 864,000 1934 10,800,000 448,000 400,000 848,000 1935 10,400,000 432,000 400,000 832,000 1936 10,000,000 416,000 400,000 816,000 1937 9,600,000 400,000 400,000 800,000 1938 9,200,000 384,000 400,000 784,000 1939 8,800,000 368,000 400,000 768,000 1940 8,400,000 352,000 400,000 752,000 1941 8,000,000 336,000 400,000 736,000 1942 7,600,000 320,000 400,000 720,000 1943 7,200,000 304,000 400,000 704,000 1944 6,800,000 288,000 400,000 688,000 1945 6,400,000 272,000 400,000 672,000 1946 6,000,000 256,000 400,000 656,000 1947 5,600,000 240,000 400,000 640,000 1948 5,200,000 224,000 400,000 624,000 1949 4,800,000 208,000 400,000 608,000 1950 4,400,000 192,000 400,000 592,000 1951 4,000,000 176,000 400,000 576,000 1952 3,600,000 160,000 400,000 560,000 1953 3,200,000 144,000 400,000 544,000 1954 2,800,000 128,000 400,000 528,000 1955 2,400,000 112,000 400,000 512,000 1956 2,000,000 96,000 400,000 496,000 1957 1,600,000 80,000 400,000 480,000 1958 1,200,000 64,000 400,000 464,000 1959 800,000 48,000 400,000 448,000 1960 400,000 32,000 400,000 432,000 1961 16,000 400,000 416,000 Total $18,204,200 $18,000,000 $36,204,200 TABLE 34-^CHEDULE OF INTEREST AND PRINCI- PAL SECOND BOND ISSUE— $15,000,000. Interest for Principal the Year (4% Principal Total Year Outstanding Per Cent) Repaid Payments 1917 $5,000,000 7,116,000 12,500,000 13,000,000 15,000,000 1918 $225,247 385,110 573,750 $225,247 1919 385,110 1920 573,750 1921 585,000 585,000 1922 15,000,000 675,000 675,000 1923 14,625,000 675,000 $375,000 1,050,000 1924 14,250,000 658,125 375,000 1,033,125 1925 13,875,000 641,250 375,000 1,016,250 1926 13,500,000 624,375 375,000 999,375 1927 13,125,000 607,500 375,000 982,500 1928 12,750,000 590,625 375,000 965,625 1929 12,375,000 573,750 375,000 948,750 1930 12,000,000 556,875 375,000 931,875 1931 11,625,000 540,000 375,000 915,000 1932 11,250,000 523,125 375,000 898,125 1933 10,875,000 506,250 375,000 881,250 1934 10,500,000 489,375 375,000 864,375 1935 10,125,000 472,500 375,000 847,500 1936 9,750,000 455,625 375,000 830-.625 1937 9,375,000 438,750 375,000 813,750 1938 9,000,000 421,875 375,000 796,875 1939 8,625,000 405,000 375,000 780,000 1940 8,250,000 388,125 375,000 763,125 1941 7,875,000 371,250 375,000 746,250 1942 7,500,000 354,375 375,000 729,375 1943 7,125,000 337,500 375,000 712,500 1944 6,750,000 320,625 375,000 695,625 1945 6,375,000 303,750 375,000 678,750 1946 6,000,000 286,875 375,000 661,875 1947 5,625,000 270,000 375,000 645,000 1948 5,250,000 253,125 375,000 628,125 1949 4,875,000 236,250 375,000 611,250 1950 4,500,000 219,375 375,000 594,375 1951 4,125,000 202,500 375,000 577,500 1952 3,750,000 185,625 375,000 560,625 1953 3,375,000 168,750 375,000 543,750 1954 3,000,000 151,875 375,000 526,875 1955 2,625,000 135,000 375,000 510,000 1956 2,250,000 118,125 375,000 493,125 1957 1,875,000 101,250 375,000 476,250 1958 1,500,000 84,375 375,000 459,375 1959 1,125,000 67,500 375,000 442,500 1960 750,000 50,625 375,000 425,625 1961 375,000 33,750 375,000 408,750 1962 16,875 375,000 391,875 r fotal $16,281,607 $15,000,000 $31,281,607 Actual amount sold is $13,000,000 only. 169 TABLE 35— SHOWING APPROXIMATE TOTAL BOND REQUIREMENTS, FIRST AND SECOND ISSUES. (All Totals Include Both Principal Retired and Interest From 1912 to 1962 Inclusive, By Years.) Total First Total Second Total for Year Issue Payment Issue Payment 1 Both Issues 1912 $16,000 $16,000 114,800 1913 114,800 1914 311,100 311,100 514,300 1915 514,300 1916 688,000 688,000 1,120,000 1,329,247 1917 1,120,000 1918 1,104,000 $225,247 1919 1,088,000 385,110 1,473,110 1920 1,072,000 573,750 1,645,750 1921 1,056,000 585,000 1,641,000 1922 1,040,000 675,000 1,715,000 1923 1,024,000 1,050,000 2,074,000 1924 1,008,000 1,033,125 2,041,125 1925 992,000 1,016,250 2,008,250 1926 976,000 999,375 1,975,375 1927 960,000 982,500 1,942,500 1928 944,000 965,625 1,909,625 1929 928,000 948,750 1,876,750 1930 912,000 931,875 1,843,875 1931 896,000 915,000 1,811,000 1932 880,000 898,125 1,778,125 1933 864,000 881,250 1,745,250 1934 848,000 864,375 1,712,375 1935 832,000 847,500 1,679,500 1936 816,000 830,625 1,646,625 1937 800,000 813,750 1,613,750 1938 784,000 796,875 1,580,875 1939 768,000 780,000 1,548,000 1940 752,000 763,125 1,515,125 1941 736,000 746,250 1,482,250 1942 720,000 729,375 1,449,375 1943 704,000 712,500 1,416,500 1944- 688,000 695,625 1,383,625 1945 672,000 678,750 1,350,750 1946 656,000 661,875 1,317,875 1947 640,000 645,000 1,285,000 1948 624,000 628,125 1,252,125 1949 608,000 611,250 1,219,250 1950 592,000 594,375 1,186,375 1951 576,000 577,500 1,153,500 1952 560,000 560,625 1,120,625 1953 544,000 543,750 1,087,750 1954 528,000 526,875 1,054,875 1955 512,000 510,000 1,022,000 1956 496,000 493,125 989,125 1957 480,000 476,250 956,250 1958 464,000 459,375 923,375 1959 448,000 442,500 890,500 1960 432,000 425,625 857,625 1961 416,000 408,750 824,750 1962 391,875 391,875 Totals $36,204,200 $31,281,607 $67,485,807 i Assumed completely sold. TABLE 36— SCHEDULE OF INTEREST AND PRINCI- PAL, THIRD BOND ISSUE— $49,000,000. (Interest Assumed 6 Per Cent.) Principal Interest Principal Total Year Outstanding for the Year Repaid Payments 1920 $3,000,000! 1921 6,000,000 2 $135,000! $135,000 1922 12,000,000 2 315,000 315,000 1923 21,000,000 2 675,000 675,000 1924 30,000,000 2 1,215,000 1,215,000 1925 40,000,000 1,755,000 1,755,000 1926 39,000,000 2,355,000 $1,000,000 3,355,000 1927 38,000,000 2,310,000 1,000,000 3,310,000 1928 37,000,000 2,265,000 1,000,000 3,265,000 1929 36,000,000 2,220,000 1,000,000 3,220,000 1930 35,000,000 2,160,000 1,000,000 3,160,000 1931 34,000,000 2,100,000 1,000,000 3,100,000 1932 33,000,000 2,040,000 1,000,000 3,040,000 1933 32,000,000 1,980,000 1,000,000 2,980,000 1934 31,000,000 1,920,000 1,000,000 2,920,000 1935 30,000,000 1,860,000 1,000,000 2,860,000 1936 29,000,000 1,800,000 1,000,000 2,800,000 1937 28,000,000 1,740,000 1,000,000 2,740,000 1938 27,000,000 1,680,000 1,000,000 2,680,000 1939 26,000,000 1,620,000 1,000,000 2,620,000 1940 25,000,000 1,560,000 1,000,000 2,560,000 1941 24,000,000 1,500,000 1,000,000 2,500,000 1942 23,000,000 1,440,000 1,000,000 2,440,000 1943 22,000,000 1,380,000 1,000,000 2,380,000 1944 21,000,000 1,320,000 1,000,000 2,320,000 1945 20,000,000 1,260,000 1,000,000 2,260,000 1946 19,000,000 1,200,000 1,000,000 2,200,000 1947 18,000,000 1,140,000 1,000,000 2,140,000 1948 17,000,000 1,080,000 1,000,000 2,080,000 1949 16,000,000 1,020,000 1,000,000 2,020,000 1950 15,000,000 960,000 1,000,000 1,960,000 1951 14,000,000 900,000 1,000,000 1,900,000 1952 13,000,000 840,000 1,000,000 1,840,000 1953 12,000,000 780,000 1,000,000 1,780,000 1954 11,000,000 720,000 1,000,000 1,720,000 1955 10,000,000 660,000 1,000,000 1,660,000 1956 9,000,000 600,000 1,000,000 1,600,000 1957 8,000,000 540,000 1,000,000 1,540,000 1958 7,000,000 480,000 1,000,000 1,480,000 1959 6,000,000 420,000 1,000,000 1,420,000 1960 5,000,000 360,000 1,000,000 1,360,000 1961 4,000,000 300,000 1,000,000 1,300,000 1962 3,000,000 240,000 1,000,000 1,240,000 1963 2,000,000 180,000 1,000,000 1,180,000 1964 1,000,000 120,000 1,000,000 1,120,000 1965 60,000 1,000,000 1,060,000 T Hals $53,205,000 $40,000,000 $93,205,000 i$3,000,000 sold March 2, 1920, at discount of $221,160.50, at 4% per cent nominal rate. -Amounts sold are assumed. 170 TABLE 37— SHOWING APPROXIMATE TOTAL HIGHWAY BOND REQUIREMENTS, FIRST, SECOND AND THIRD ISSUES 1 (All Totals Include Both Principal Retired and Interest From 1912 to 11)65 Inclusive, By Years.) Total for Year Three Issues 1912 $16,000 1913 114,800 1914 311,100 1915 514 300 1916 688,000 1917 1,120,000 1918 1,329,247 1919 1,473,110 1920 1,645,750 1921 1,776,000 1923 2,030,000 1923 2,749,000 1924 3,256,125 1925 3,763,250 1926 5,330,375 1927 5,252,500 1928 5,174,625 1929 5,096,750 1930 5,003,875 1931 4,911,000 1932 4,818,125 1933 4,725,250 1934 4,632,375 1935 4,539,500 1936 4,446,625 , 1937 4,353,750 1938 4,260,875 1939 4,168,000 Total for Three Issues $4,075,125 3,982,250 3,889,375 3,7£ 6,500 3,703,625 3,610,750 3,517,875 3,425,000 3,332,125 3,239,250 3,146,375 3,053,500 2,960,625 2,867,750 2,774 875 2,682,000 2,589,125 2,496,250 2,403,375 2.310,500 2,217,625 2,124,750 1,631,875 1,180,000 1,120,000 1,060,000 Total | $160 690,807 ITable assumes last installment, 52,000,000, of Second issue sold, and interest rate of 6 per cent for Third issue, and as- sumes also the sales indicated in detailed table showing interest pnd pri ncipal of third bond issue. . The list of highways laid out by the Commis- sion in compliance with the Highway Act of 1909 and the adjoined list of highways de- scribed in the laws of 1915 and 1919 to be built under the respective bond issues of those years are given below : Route FIRST BOND ISSUE. From To 1 San Francisco Crescent City 2 San Francisco San Diego 3 Sacramento Oregon line 4 Sacramento Los Angeles 5 Stockton Santa Cruz via Oakland 6 Sacramento Woodland Junction . . . 7 Tehama Junction Benicia 8 Ignacio Cordelia, via Napa . . . 9 San Fernando Son Bernardino 10 Goshen Hanford 11 Sacramento Placerville 12 San Diego El Centro 13 Salida Sonora 14 Albany Martinez 15 Williams Colusa 16 Hopland Lakeport 17 Roseville Nevada City 18 Merced Mariposa 19 Route 9, W. of Clare- mont Riverside 20 Redding Weaverville 21 Route 3, near Richvale . Oroville 22 San Juan Bautista Hollister 23 Saugus Bridgeport 24 Route 4, near Lodi San Andreas 25 Nevada City Downieville : 28 Redding Alturas 29 Red Bluff Susanville 30 Oroville Quincy 34 Route 4, near Arno Jackson Mileage 371.2 481.8 291.3 359.0 116.9 14.3 142.7 38.6 53.5 13.2 46 5 127.5 49.2 20.6 8.7 19.3 33.4 39.2 17.7 50.0 7.0 7.1 337.5 36.6 47.0 151.1 100.0 67.0 1 34.4 SECOND BOND ISSUE. Route From To 10 Hanford San Lucas 18 Mariposa EI Portal '-. 20 Douglas City Route 1, Areata 26-27San Bernardino Yuma, via El Centro 31 San Bernardino Barstow 32 Route 4, near Califa. . .Gilroy 33 Route 4, near Bakers- field Paso Robles Total THIRD BOND ISSUE. Route From To .... Mojave Needles, via Barstow Oxnard San Juan Capistrano Santa Maria Freemans, via Ba- kersfield San Francisco Santa Cruz Rio Vista Fairfield Auburn Verdi Ukiah Emigrant Gap Truckee Tahoe City Crescent City Oregon Line Santa Rosa Shellville Big Pine Oasis II 3 Placerville Sportsman's Hall 21 Oroville Quincy 41* Gen. Grant Nat. Park. Kings River Canyon. 49 Calistoga . Lower Lake 64 Mecca Blythe Runsey Lower Lake Azusa Pine Flats in San Gabriel Canyon . . La Canada Mt. Wilson Rd., via Arroyo Seco Lancaster Baileys McDonalds Mouth of Navarro River Carmel San Simeon Klamath River Bridge, Route 3 Route 1, near mouth of Klamath River Susanville Nevada State Line. . Pacheco Pass Road into Hollister 10 Visalia Sequoia Nat. Park. . 43 Deep Creek Metcalf Creek 47 Orland Chico 52 Tiburon Alto 54 Near Michigan Bar Dry town 58 60 57 55 53 37 1 15 38 2 1 51 63 50 62 61 59 48 56 46 29 22 Mileage 98.25 32.60 102.00 195.86 76.33 83.45 91.22 679.71 Mileage 255 86 202 67 24 95 212 40 24 40 10 27 20 32 100 35 10 10 40 47 97 177 53 8 36 14 20 5 12 Total 1,798 1 95 mi. maintained under Special Appropriation. Roads. 2 15 mi. maintained under Special Appropriation Roads. :t 10 mi. maintained under Special Appropriation Roads. 4 14 mi. maintained under Special Appropriation Roads. TABULATION OF STATE SPECIAL APPROPRIATION ROADS TAKEN OVER FROM DEPARTMENT OF ENGINEERING. DIVISION I. Miles Miles None in this division. 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 3.° 82 - 3 1 Route 30 has been abandoned, and Route 21 extended, to cover approximately the same mileage. Total for Division II DIVISION III. Alpine County: Route 34 — Carson Pass Branch 14.1 Route 23— Trunk Line, El Dorado Co. line to Picketts 2.3 Route 23— Picketts to Woodf ords ... 6.3 Route 23— Woodf ords to Loop 12.5 Route 24 — Calaveras Branch Junction of Alpine trunk to Calaveras Co 31.8 Route 13 — Sonora-Mono road, Sonora Pass to Brightman's Flat 12.5 Total 64.9 79.5 171 9.3 22.6 99.7 22.4 2.2 26.7 Miles Miles Amador County, Route 34 — Alpine Road, Carson Pass . Basin 57.8 Butte County, Route 45 — Westerly Co. line to Biggs Calaveras Co., Route 24 — Big Trees to Alpine Co. line El Dorado County: Route 11 — Placerville to State line.. 65.0 Route 38— Myers-McKinneys 24.0 Route 23 — Osgoods to Alpine Co. line 10.7 Total Glenn County, Route 45 — Willows to East Co. line Mariposa Co., Route 40 — Tioga road... Nevada County: Route 37— Emigrant Gap 21.1 Route 38 — McKinney's Donner Lake.. 5.6 Total 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-McKinneys 1.25 Route 39— Tahoe City-Crystal Bay.. 11:2 Total 92.8 Sierra County, Route 37 — Nevada Co. line to State line 12.5 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 527.3 DIVISION IV. Santa Cruz Co., Route 42— Calif. Red- wood Park 16.0 Total for Division IV 16.0 Miles Miles DIVISION V. None in this division. DIVISION VI. Fresno Co., 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 Riv 1-0 Route 23 — Alpine Co. line to Little Antelope Val 9.4 Route 23 — Little Antelope Valley to Junction, Sonora-Mono road 17.0 73.7 Total for Division VI 88.2 DIVISION VII. San Bernardino County: Route 43 — End of County pavement to most easterly point Great Bear Lake, say 60 miles 60.0 Total for Division VII 60.0 RECAPITULATION. Miles Division I 0.0 Division II 64.9 Division III 527.3 Division IV 16.0 Division V 0.0 Division VI 88.2 Division VII 60.0 Total 756.4 APPENDIX B There follows a table showing a comparison of the engineer's estimate and final cost on 20 selected jobs which showed the greatest over- runs of final costs. Following the table is a discussion of these jobs. Contract No. Division Route County 2 1 1 Mendocino 215 1 1 Mendocino 235 2 3 Siskiyou 207 3 3 Butte 227 3 21 Butte 16 4 1 Sonoma 102 4 5 Santa Clara 83 4 5 Santa Cruz 157 6 18 Mariposa 73 7 2 Ventura COMPARISON OF ENGINEER'S ESTIMATE AND FINAL COST ON 2» SELECTED JOBS. CONTRACT JOBS i — Cost of Labor and Materials — v Engineer's Pinal Overrun Section Class of Work Preliminary Paid Per Cent A Grading $70,508 $93,019 32 F Grading 95,266 128,878 36 A Grading 15,273 24,237 58 A 15-Foot Concrete Base. 77,534 107,469 38 A 15-Foot Concrete Base. 100,933 143,778 34 B 15-Foot Concrete Base. 129,482 198,079 52 B Grading 79,725 104,555 31 A Grading 63,996 86,772 35 A Grading 53,596 72,342 35 F&G 15-Foot Concrete Base. 54,819 71,091 30 Totals $741,132 $1,029,120 39 DAY- LABOR JOBS /—Cost of Labor and Materials—-, Engineer's Final Overrun Section Class of Work Preliminary Paid Per Cent A Grading $3,500 $9,418 170 B 12-Foot Oil Macadam.... 25,619 97,392 280 C 12-Foot Concrete Base, Oiled 61,291 160,375 160 A 15-Foot Concrete Base. 21,352 51,192 140 B Grading 51,195 141,806 160 C Bridges 2,318 7,158 210 B&C Oil Surfacing 11,086 32,240 190 D 15-Foot Concrete Base. 1,137 7,679 570 A Oil Surface and Shou:ders 5,005 16,725 230 C Grading 6,000 26,542 340 Totals $187,503 $549,527 193 Contract No. Division Route County D-74 2 3 Siskiyou D-2 3 11 El Dorado D-5 3 11 El Dorado D-61 5 2 Monterey D-108 6 18 Mariposa D-129 6 23 Mono D-ll 7 2 San Diego 7 2 San Diego 7 2 Ventura 7 12 San Diego Inquiry at the office of the State Highway Commission, relative to the reasons for the overruns shown in tlie foregoing statement elic- ited the following: CONTRACT JOBS. No. 2. "The contractor abandoned this job during the winter of 1912 and left it in a de- plorable condition so that when the State took over the work considerable extra expense was incurred in getting it back into shape and bringing it to completion. A gravel sur- facing was also applied to the job which was not contemplated in the preliminary esti- mate." No. 215. "Upon this contract there were several slides aggregating in the neighborhood of 6000 cubic yards. The bid on this contract was |24,760.24 over the preliminary estimate." No. 235. "Several slides occurred on this job, which increased the cost considerably. The contractor's bid on this job was $5,843.55 over the estimate." No. 207. "This contract was completed by State forces upon the failure of the contractor. The excavation overran 7,425 cubic yards and the preliminary estimate appears to have been somewhat too low. The cost of material over- ran the estimate by |4,084.35." No. 227. "The original estimate was appar- ently too low for the work at the time bids were received. Excess yardage excavation, 7,516 cubic yards. Extra work, $10,715.33." No. 16. "Work on this contract done by the contractors was found to be very faulty and it was necessary for the State to replace considerable quantities of work performed by them. This contract was completed by State forces after the failure of the contractor, who left the work in a deplorable condition. There was also an increase in quantities of excavation 173 and concrete put in on this job, which tended to make the cost excessive." (Note low bid and excess quantities of work done by contractor.) No. 102. "An increase of 49,900 cubic yards of excavation over that shown in the pre- liminary estimate accounts for the increase in cost of this job. This increase in yardage was due to slides, damage by storms, line changes, grade changes, etc., which developed during the progress of the work." No. 83. "An increase of 39,954 cubic yards of excavation over that shown in the prelim- inary estimate, accounts for the bulk of the difference between the preliminary estimate and the final cost. This increase in excavation quantities was due to line and grade changes to save large redwoods and for other reasons which developed during the course of con- struction." No. 157. "Considerably more rock excava- tion was encountered than had been expected — although the total yardage (earth and rock) excavated was practically the same as orig- inally estimated." The original estimate for rock was $1.00 a cubic yard and the contract price was $1.50 a cubic yard. The estimate for earth excavation was 45 cents a cubic yard and the contract price 38 cents. No. 73. "The original contract covered 3.58 miles in section F, with an optional extension of 1.47 miles, which, on account of right-of-way difficulties, was not included in the contract- or's work. This 1.47 miles was, however, im- proved about the same time Contract No. 73 was in progress, but by State forces and the charges carried under Contract No. 73. This work amounted to $10,329.38 for labor, and probably about an equal amount for materials, although there is no way of segregating the material charges on this stretch." DAY-LABOR JOBS. "Except D-2 and D-5, all day -labor jobs (listed above) were not advertised for bids and so no comparison can be made of bids. There are no final estimates of quantities <"•!> these day-labor jobs, so there is shown no com- parison of quantities and unit costs." D-74. "The engineer's preliminary estimate for this work should be $23,325.00. The work originally contemplated at an estimated cost of $3,500, and covering 0.3 miles, was extended to include 1.52 miles. With the coining of win- ter, work was shut down and the following spring was let under Contract No. 235." D-2. "The work contemplated originally was water-bound macadam. The construction was oil macadam, which item alone increased the cost of this work about $6000. A much greater amount of rock excavation was encountered than had been estimated. A great number of shallow rock cuts required drilling and blasting, the rock breaking into such large pieces that it was impracticable to use them in the light fills. The cost of rock excavation made the unit cost of excavation exceedingly high as , compared with the esti- mated unit costs. "The overrun of 10,000 yards of excavation was due to excavating G inches below sub-grade in rock and loose cuts to reach the grade de- sired and to the necessary waste of large boulders. Figured at actual unit cost, the ex- cess yardage increased the cost of this work about $14,000. "An excess of 2,600 tons of crushed rock and screenings over the preliminary estimate was necessary to complete the work at an addi- tional cost of approximately $6,000. The final cost also includes the purchase of considerable equipment, viz. : Qil-heating plant, tank wagons, camp outfits and other incidentals not in- cluded in the preliminary estimate." D-5. "The original estimate for this work contemplated a water-bound macadam. The construction was a 12-foot concrete base. • In making the preliminary estimate for excava- tion due consideration was not given the char- acter of the material to be excavated. The cost of drilling and shooting alone was about one-- half of the original estimated amount for ex- cavation. "The final cost of this work includes the pur- chase of considerable equipment, viz.: Paving mixer, engine, pump, pipe line, paving equip- ment, camp outfits, dump wagon, etc." D-Gl. "The engineer's estimate is for plac- ing concrete base on 2.1 miles (approximately). The Commission voted later to extend this work from Saguinta to the easterly boundary, a dis- tance of 4.34 miles." D-108. "Heavier rock excavation was en- countered on this section than had been con- templated from preliminary examination of the route, which greatly increased the cost of the work. A concrete culvert was built at China Gulch." D 129. "The engineer's preliminary esti- mate was for timber bridges. Plans were later 174 changed to make bridge floors of concrete. Also one-halt' mile of grading was done under this project." D-ll. "The original estimate was for oiling the pavement only on these two sections. Ad- ditional work done, not included in the original estimate, consisted in oiling the shoulder. The shoulders were regraded and the weeds cut. On steep grades in cuts the shoulders were exca- vated to a depth of t inches, beach gravel and a binder of loam applied and rolled. On this the regular shoulder was built. Due to storm damage and failure of the water supply it was necessary to establish a new oil pit at Ocean- side, the cost of same being charged to this project. "In addition to the above oiling work, the bridge over Loma Alta Creek was backfilled ; at two right angle turns near Carl the concrete base was widened, and concrete walls at both abutments of the San Louis Key bridge were built." D-80. "The engineer's preliminary estimate was for placing about .05 mile of concrete base in exceptions. In addition, a payment of $;">, 7G6.91 was made to the A. T. & S. F. R. R. as the State's share of the cost of an overhead crossing. Also a cattle pass was constructed, but the cost of same was not included in the preliminary estimate." D-13. "The engineer's preliminary estimate was for oiling the concrete base only. In ad- dition to oiling the concrete base, the shoulders were graded and oiled. Portions of the earth shoulders were replaced with gravel. Storm damage increased the cost of the shoulder work. Defective concrete was replaced before oiling, but the cost of same was not included in the preliminary estimate." D-120. "The engineer's preliminary estimate was for 1.42 miles of grading only. The work was extended to cover 3.18 miles and to include The construction of necessary concrete culverts, placing of corrugated metal pipe and drainage ditches." APPENDIX C The following is the scale of salaries paid by the California Highway Commission: Per Annum Commissioners $3,600. Highway Engineer 10,000. Assistant Highway Engineers •• 3,600. -4,800. Division Engineers 4,800. Assistant Division Engineers 2,700. -3,600. Resident Engineers 2,100. -2,700. Office Engineers 2,400. -3,000. Chief Draftsmen 2,362.50-2,700. Draftsmen 1,687.50-3,037.50 Per Month and Board Chiefs of Party $140. 190. Instrumentmen 125. Chainman and Rodmen 25. 100. Timekeeper 100. 130. Per Week Superintendents of Road Construc- tion $40. 70. STAFF PAYROLL— 1912-1920. - ►< S -*-> 7/f T \ V I // II /] \ 1 L// J / / / \ \ Vui / / \ -f-j '^1 a l\t]\ / Of to r t» /// i Is// / >} l> > i//< s // \ih < j ul z / ! Ja4 ■^-ii — 1 — 1 / / y^-j / /^-~v 1 » y^"^ / v y v / \ / * si : o Id f ID 1 ° 1 < 1 - m / ? o / i o ' ■* 1 1 ' o is ld\ 55 I -1 : ^ V \ z It sT L' s fc N \ ■* 1 x \ . ? fe > O N 1 \ \ ; l x ' K w s^ 1 ^\ \ j \ \ \ \\\S— » """N. >\ \ \ \\ s> « • \ \ i 1 1 1 1 AXL-z 1 U \ u "T- i A\ 1 o \ o \ W 1 ° \c £ l \ \ 1 < \s -i 1 u 1 i_V 1*1 N <" (A la* u £ \ \ \ I <\ < "■ 3 \ \ \ o o u \ b\ I o o 3 9 \ \ I 1 si lL-4- >\ ui \ '1 J / ' • ( M 1 -j I -/ / -h fV4* o \, — 187 PLATE LXXI. 188 PLATE LXXII. 189 PLATE LXXIII. zor - ccf- 1 "■ iz — 1 \k Jlf\ k \ & E I p > Q is < f#- / 1 1 H / M 1 A*7 j i Urn IX ! 1 * is« xl CJ l IT •< v w-l O u. liJ T \ z t (A \ < i= m |4 U T 7 CO N £ -1 <• * >c 5; < 00 7 x z lu. < s v < y i- fn,-i in , in j_ * :^» r\ ' ' T^ >■■ , • <* \ <>■ \ .< ■< . ° \ \ H ° \ A IP! 2 \<\ l< ij 'V/k >r s / x 1-5 "- / '/> 1° K / \ a Iz IP \ 5y> / < Z / \ > -J g 1 o V § s < < t - \\j 190 PLATE LXXIV. 191 PLATE LXXV. 192 PLATE LXXVI. '///' ? 1 ° / / J / io 1 '// / /( / / 1 $ H '/ \ / V / -. / ^ ' ■> s V 1 \ \ V s V v ■ ' i < 3 V s -r- i is 1. 1 ■ * / _J / ° / *: / o 1 V 11 AJ 5 - <*> i*/M X?/° / / 5C / / x .of 1 / /X /< L n Is Ny-^ 1 ^ \ w \ ' / / /Vh- // /rfT I \ s \ V s J 1 { /,N j A SEC.I 3.75 f^ir / z CD 3 ) S S / 0) E s * o <-> / CD S£ s 5\ 2" /Z^\\ > , o _i < /< ti 1 \ Ky / L * OJ Ji W / A s \ $ > 5 />* 1* 1*4/ ** s ii \ -3- / -£ t W f s u. W u \ -> i An fin h. ' 1 ' 1 I > i/ y V, < 1 ,/ < _i A -> o u. \ / w b. \ / ^3 1- V >- -J vn \ X CD \ 5-J \ >; £ £ t£. eC «C H o V, y V ^^^ CI o d i X Z \z\z z ^tt , W \«C cC J LVm ,\tn , en \\ A m*\ o \ N / ^ CJ n^ fe 7>= T^" 1 a cc a. / et eC « -« /H / -J _l _l » u /o / (J O O ' ' 1 ' 1 ' i i • Q Q Q Q Q : z / z/ z Z Z * «/ «/ s I <£ I <£. < ^ I / s J < 1 ■ 1 4 1W s'se ^ 1 \_i \-J -J -i — 1/ 1 \o \o O o ol \ 2 a q 1 / Q or \g\f\* z Z V>\m a) u> . V\ / ) >■>. \'W l >z ' / 5 5 W - 5 / < £ / / / / / / X p / / / / / f 3 \- / / / / / 1 / < a. ui if / \ 1 1 / / / 1- 1 / ( l ! ^ 3 = 1 1 / / ui 1 1 1 1 c 3 UJ 5 I* / 1 / / UJ 1 1 / / / : / 1? j / / _l f- / / / / UJ V- z is: o ' / / 1 I ul / 1 / ' / ?P / / / / 3 / / / / o / * / / / c c <• * > ! > ; / / / / S*o / 1 / / / / L II i 1° / / / / a t— / / / / c Ll < id :s : i / 1 / / / 1 n? 1 / [ / I irPz° ^Z3 > > X. b z UJ > u. o P < P < m cz2o i-- I < 5 UJ UJ i i±j o a: a z I > UJ X LESS TH MATIC Tl THAN 34 PIP 3T0 5TC MATICS; WITH SI P(0 D UJ AUt MOBILES U-l 1 o UJ >- soo ) N £ E,5.«W _J 1 CKS ROUTE N0S.6 XII. g z s < O -t -5 12. M1LE5 «o 5 o IS00 ROUT PLACERVILL E NO. 11 E LATERAL 1000 < A UJ > 500 \ \ \ \ A ^ \\ - — © TOTAL VEHICLES _J 1 , f— ' _g NORTH DBILES AMD EAST ~^ SOUTH AND WEST o I KUv.l\o 1 IU S •4 a o z 2 o «o _J e 4 MILES O PLACERVILLE 206 PLATE LXXXVI. TOTAL VEHICLE5 a> ALBANY oi o o 5« o o o N O O & o o 0> 01 o o o o o — o- c H P> Z > r- a> > z ■< > 30 - H- z n N CROCKETT 1- s* ^s^ MARTIN EI° &ENICIA 6 acr vg~- o o CORDELIA FAIRFIELD N ^ >>p 73 O CORDELIA o /C -^ ** &_ a P > CP O VACAVILLE 4» T i 1 i/ f 1 ! ^^ -< m Z P -4 NAPA 5 !,o ^ i" to O OAVIft 6ODLAN0 ffi 1 H n zz. > 3 30 r* / / / *l 2 i'i /«• If A // c z o z O O m DUNHI«AM° WILLIAMS 5 -1 \o. 3 0» "z WILLIA.MS o c S C MP o O 30 f s o on o WILLOWS {3 > CO LIU A g> pi N0.I5| ATERAL 1 IS > z 0> i o CORNINGjJ 1 » hi pi Ked bluff j IT > to \ 207 »LATE LXXXVII. 1500 SA ROUTE 1 FERNANDO-: NO. 9 SAN BERNARD! to i\ 1000 \\ ROUT 300O L N0.I9 L VEHICLES o o ^ S> TOTAL VEHICLES /> Automobiles south And west 2500 o H V '% NORTH J -o TRUCKS WD EAST < 2000 \ Y AL VEHICLES 2 Ml < < uj O o 4 .E.5 Oo z 5 z uJ UJ -J o £ ISOO \ \ \\ \ \ \ \ iO uJ z 3 CO z < t 1 IOOO -AUTOMOBII > -ES 500 N N0 •SOUTH AND > RTH AND EAJ WEST lT R( )UTE N OS. 9 A NDI9 O > TRUCKS o- Pot O 2 10NA RIVE O .RSIDE 20S PLATE LXXXVIII. ROUTE NOS. 12 AND 26 1500 u-l I ROUTE NO. \Z SAN DIEGO EL CENTRO RQUTE NO. 26 SAN BERNARDINO TO EL CENTRO 500 TOTAL VEHICLE5 AUTOMOBILES NORTH AND EAST SOUTH AND WEST TRUCKS SAN BERNARDINO EL CENTRO 209 PLATE LXXXIX. ROUTE NOS. 23 AND 31 ROUTE NO.Z3 looo MINT CANYON ROAD TOTAk^W^ UJ _ I o uJ ■> _J o 6 SOUTH MID WIST J Trucks => o -1 2 Ml o LES o ROUTE N0.3I SAN BERNARDINO TO BARSTOW 500 P- 0=.-—^=^— cc •4 2 -CC. uJ <0 < «0 total vehicles automobiles North and east -south and west TRUCKS MILLS 60 60 o -cc- «0 CD X I— I p w Oh Ph o > w CD N w P. H O P a O tf S* PQ o 10 to o to to o o UI 03 O 00 I r o {2 z UI z: Ui :> z o o CO to to Ui a. o ui z o o CO DC UI CO s: o o 212 PLATE XC. Hi Wes t City Limi ts SAUSAL.nO I Marin County Sonoma Line Sonoma Co. Line. w o 2 o > o o f ^ Corfe Madera N orth siy ^-o* 9 San Rafael o an > r* *n o 73 > X x c O -< tSJ-5-. 213 PLATE XCI. bo City Limits- Healdsburg bo 1 City Limits - Loletta m z o o a o n o •o ° CD o *— - £ m —i -< Santa Rosa Ukiah 3C ZZ c -o S ♦—* CO o § o o Pi to Breatrice mm s; i > o 33 2 > on > < < 214 PLATE XCII. San Francisc o Cou nty 5an Mateo ^0 Sa n Mat eo Co Santa Clara Co SI -\ > n n o "Z. -o gro •tar E > r; o cr> a: > c 215 PLATE XCIII. * 3 o e San Mateo Co. 1 Santa Clara A Co. t.^ I C3 - + O o n 1 i -M May field : i 1 1 1 c\™ o . k s ITa> 1 1 . ^ ! 1 \> $ i * <6 i J w tT \ ■ Qj N *+l en o s o 5 & 3"° i | rv Mi -^ -n Mi 4 i; o ■ , ! iLw o i s ■n 5 V 5> 1 i 1 It - ^ o > 1 I 1 1 i -— -i r" 1 1 1 L— »\ -T| II , o 1 1 »J|<0 l« 33 I 1 1 it) 5 O) -> 2 > 1 l ■OB :■: 1 -1 35 Pi i 1 I '* , to > ' -< GO i 'o CP i -. C a < 1 •]' ! | 1 > \ t 1 N A ° g 71 •. ! i 1 1 ■ 1 1 ' rw ! V I | § ( ■■"■" l ,'■ j i 1 LT> 1 **N i . 1 a 1 > i l> '»• z i i° t -> 1 ; > 1 1 : i 1 i 1 ■ r • i > I Cj ' D <* ' ' > 1 L , I *> -5* > i ! 1 Morgan Hill ! vl/ -X_ „ Jk L * f ,~m . .. *» 216 PLATE XCIV. < .' FT H 1 ~*P " 1 s > tS : • ■- S 30 ° J r | ■ Q I! L \ 0) . ': 20/- 201 It, 28 > o 33 Z > X i > -< c 1 '1 ! -s H C o < _ w SantaClara Co. 1 ' San Benito Co. i jargen t 217 PLATE XCV. Santa Clara Co. o x > -< CO H C o Monterey Co. 218 1 PLATE XCVI. . ' ... . "2 3D * < -o -Ml? 0"» ■anm^ 0* t ' — i t < F J 00 0i X • f S\. .2 1. f J r^. .>-■ - -* o ^ 1 1 1 j 1 pi ^•1 -* ■ 1* -• i o o i - ** CM > -«i o > re CO C o < 1 1 i ; > i r j 2 1 > ! U) i I cz - • „ in OB i ?,V f A ~" | j i On at - w Hi ' b J n 1 1 n 1' 219 PLATE XCVI'. Pi i: - L±d/ tr» h SanArdo Bridge 3 30 o o 5 <= -< ■ o > o Z > I H C o -< 220 PLATE XCVIII. Monterey >r County O CD fi * o -n o aj x > o a: CO H C o San Louis Obispo Line 221 PLATE XCIX. pi bo Ov |-sAtascadero 1 i- J -;.'■£ .SAnta Margarita atm > 25 r> 01 D. ,01 '3 r a* o O KP r- m $0 :$- > O c m O ■© to "0 O o o > o SO 2 •? o x CO H c o -< rft 5 Templeton 222 PLATE C. *5 o > 7 •jo o i— c u» rn O •z. a) ■ -o w r\> -o o o o ' noPsvm S J __San Luis Obispo Co . Santa Barbara Co > *«• O a z x Hi* C o -< I Mof Par«d P~^ 223 PLATE CI. si <=F1 San Luis Obispo Santa I z 5~ o OS + Los Alamos 224 PLATE CM. 225 PLATE Clll. § 0. 3 0} in -t- "f L S anta B a rbar a Ventura > DO 3> 33 CD > }> O o m •o ro iSummerland ON l<\ L- 1 ! Carpentaria 1 1 CO. Line > r; ■n o 33 > X x H c D -< 226 PLATE CIV. O r~r Sant a Barbara Co. Ventura Co. S pi "5 20 » 2° >i *"~ 8RID6E _J '" "T ft > I 1?^ gsSS' •o r\> > o > > -< CO H c o •< EZ S>t& I ! 5 f\> 1 i ra 1 227 PLATE CV. o pi 5 -4 n o n > r > v O c_ rn o H z o Ventura Count y f \ Los Angeles County i t S zo n ■z. H CD c —* 33 m > (~ ) :z Q •o ro »«) ». o 3> o > X H c o -< 228. (A r\ so m 1 0) H "23 3n N r* O I z p 0> Hi 1 T ^ NorMi City Limihs f c=> o 3» en n r~ n en o H O -n Soufh City Limits f C3 ON 7% CD -*■ CD ft CD —I n • o r-o i m c~> O c B H z p N OS i, 5- i t 1 -"1,. .1 .„ » f ( -n Q i ■ 1 i 1 s I i i *$ J» 1 ; ■ J 1 i . * ■ i PLATE CVI i — ZX3 cr z -H en n p* zz m • o ►• en r\> JO 3* o J o > -n o — > X ac > •< (/> H C a 229 PLATE CVII. 3 r- r* p o 1 1 > Los Angeles g o z 1 o South Cjfy Limits A o > -1 3) J P Z H j 1 o > o 1 1 5; en r\> Z 1 1 i 1 1 1 v 3^ -N ? g * 1 > i 1 i z i I -*■ > i i f2 s 1 m l 1' S 3- $ , 1 _cn : ; -K-©i Co ; ^ Si n» ? : > -00 ~\ o ' • IV ^ & ^ 3J Q. ; ;~» — a) Z & > ; ? 5 x ■ < r 1 1 1 ^ ~5 I > -< en H C > z > ' 2 1 w 3* ~f\» -< > 1 1 1 ; 1 i 1 \ t . ,, to Los Angeles County i J j Orange | T"° Line 5 -s > i j Co ? ° , .- i ■ 3 Hi ^ ■; 8 o & ta r> s.'.-M H> ~, p : ; O en i I *•! Gj I .* t* 13= ~06 j \-m -5*41 * in 1 E- i r\ *•* 230 ! 1 Ed J=j "tIj H R. ! J i J?*]- 1; H -! M ; trr ORAt j .,. , - 5 County San Die.60 Line: en en 5 2 z3 ffi S J z ID 0> 1,1 3D 33 PLATE CVIII o 23 ,u o > c: .£ o m -i rn o Z o • o ro pi Salivan o > r; •n o 3) Z > < H C o -< 231 PLATE CIX. (J) n t3CJ Encinitis CD Orange County San Diego 1 Line * > Z o O o 3D o cr m ■o •#! Las S-w Aores [• > f* -n o 33 z > ? 2 H C O if 232 PLATE CX. (I Co o li > 2 CI ° — i o ^ o North City Lim it SACRAMENTO Sheridan C/1 30 ■X) c > •HI K r» -7 zz H • o o Ca> <-> o c as H < =5 - o Hi p 1i & 3 "N ' ' 5T --. t <*> && 5 s < Sac > o ■z > ? X > •< or> -t c o •< Sacramento Co I Placer Co. 233 PLATE CXI. • -p 33 ■ * 1 _-| n 5 n Zj Sheridan j ; 3 rn pi W O -o tfc pr™ , .. ' .■:■ m. * to ■ South Boundary Marysville ... 1 -< r^ ~*-J i 5> 50 1 -*$ *r -< a < 5 Place -R Co.f 1 t~ _w/>^^ . COUNTY ^^^g^^^^S^^^^^^^^S^^^ - LINE."" ^^^==a=- « | C CO > J *** „„ m a Yuba Co. ' \ Wheatland"]"; CD 00 i< 1 r—> North Boundary Yuba City I > ^ a c^ ^ "til c: H > r; ■n 1 'M^ i 3 m c~> 325 -o ZZ LL- . r.-.r-- ..... • OJ t _£■ > k Good X 1 c ■+• O r X V) r 5 - 5ec. 4- Poor Macad 44 1 CO -1 c a -< Qo „ -t > Ss» ■ <5oo<7 0> to 2 I r> ^ 1 U tsj -j- 1 01 "ft -mi ^ 00 *• N •to Bad, 5UTTERY i § -s •"■ML:;: , ■ 4 Good p Co i -n,„ South Boundaru Marusv'ille Butte Line 234 PLATE CXI!. bo Sutter Couty Butte: Lihae. i i tn i I O I gjgj r — t 3 i. ■'■;■ 3 \L>, -■''. . Durham Camino to 8 | *-R. R. Cross in a P I IIIII I I I III III HII IM "" pi — I • o o c •< > O 2 X > < -t c o -< :::Rout2I 7b Richmond- ^•5ta 0*0 235 PLATE CXIII. 0-v 1 'Proberh Routt N° 7 ^Ste. ZO+60 BDIDSt •0 + 8! _ s> 5~ *•* 5- BRI06E. P^ Under Construction R.R.Brid'ae II HHIHI H HMII South Lim.ts R ed BlUFF^ Co $0 h c: r« — I Ca> Butte Tehama Co. > o > x en I > c/> H c o -< S > o o 236 PLATE CXIV. Sacrm r 2 Oj n a. Qj 3 5? ENTO Co. Poor ^' City Limifs SanJoaquinCo'T o r- > > > 2 Fair > o £^ o > o o />/•- t_ _ > r; -n o n > -< LP c o -< 237 PLATE CXV. O 2 > > > 2 $ o ^ I DAN JOAQUIN Ripon . County Stanislaus Co. en to Q ex- it) in BRIDGE* C/1 -1 > ^0 Z cr — I 1ft m r - — ® 1 > r2T in J> O o Co pi to J - ^ 3 ^ 0) n Ol a cu 3 > n > D > I O 2 > n > a > 2 Fair Good -I o r» 3; $ o k- — 1 n 1 to <-> o <= CO CD + CD > -n o > > ■< en H c: o -< 3 238 PLATE CXVI. Li vingston Atwater -€>* bo ^fsjrs en 33 1 — I > c <— > o 4^ ^ > t*#.; HBfai »is > -n o 33 z 5? ac, en x > on o , S TANISLAU S Co. b Merced Co. 239 PLATE CXVII. \ CO o Co 2 > > 2 s.« Merced Co. 1 Madera Co. Chowchilla pi o 3 c: n — f • o ^ I > o > > H c o > o rn > O o • o 240 PLATE CXVIII. ft to Malaga I \ Fowler o> 3 ai Ki ngsburg 1- I t-E F resho Go. Tulare Co. Madera Co. Fresno Co. fr a ^ 5. G O o cr n —I 33 m o ^ —i 33 CD 'vJ-N 2 1 -z O O o > j— o Z > en -i c o 1 -1 , 30 1 PI 1 (/> | 2 i j it 1 :c * v 1 \ (n «6 C.£ s CD 241 PLATE CXIX. o> CX) Fresno Co TuIlare Co > o > rc en •< en -< ^Junction Route 10 /4-t = O+O VlSALIA PLATE CXX. mammmmmmm wwMMMM'MM WsmmmKBm Kern Co. In M^Farland o a Tipto n CZ Pixi ey JO Hi Earlimart 8-S a -a o s» r»l O 33 2F en > 0> _j c o -< Tulare Co. 243 PLATE CXXI. 244 ft) n Go "tj m m > m ^ »5 z p PLATE CXXII :x r^3» rn CD 30 f™~ ,2 •H <—> m o c z •o ■< -£ C"> > o z > o X -( c a -< / Kerk Go. o> 245 PLATE CXXIII. Williteorv Concrete l§ SAU6US ^ 9 v s Ci n Q\ 9- 3 id I 3 Casta ic z

o o 30 CD cr > r; -*! O 33 > X cr> I > -< H C -< 240 PLATE CXXIV. T Good Ca r Poor -t I Stockton 5. City Limits V 4- Fair Good 4- o F > 5 2 SanJoaquin Co. <=> Alameda Co. o > 2 3> =Z U1 m o > CT) O AlfamONT '\\ not constructed F? not- constructed > o 30 X -< c o -< 247 PLATE CXXV. 248 PLATE CXXVI. CD O Z > > -< cn H C O -< San Jose 249 PLATE CXXVII. S anta Clara, Santa Cruz County Line: North City Limits Si en c— ^ 1= ft. <6 •O -n o n i> b FO tn c_ Z O oo §= * "» cz N. C ity Lim its O -< o -n CO 3> c_ CD n I iS.CifyLimib r=l CD Lets U &AT0S _j Fii.- > o 33 . en 2 S o o £ s o c I 1 > Si > o Cn a- o5 i ■ l X > o pa z X x > -< CA H C o 250 PLATE CXXVIII. Son oma C o. Napa Co. CD to to to Napa Co iSolanoCo 30 o c: to Pi to n > oo o o = o O cz r~> o n -o en en > r -n o JO Z > -< CO H C O < June, ftoutc 1 near Core/ e 1/3 251 PLATE CXXIX. T North C ity Kacaville imits-BENlClA 50 I Cordelia BaFavla Jo fb > r; •n o > Si en H c o -< Fairfield T PLATE CXXX. WoODLAftD -r r TJ o O 1 <- _ rn p q •d -i 5 Z m O w • f D m D rn > r > a 5 3latks I In J -< rz I- , o ~-J c~> o Hers h etj CD Co I ° o 2 — I o r*i O ZZL Solano Co, ; * n — i ..^ai\ M. _j-„ Yo lo Co . Yolo Co. Solano Co. Woodland Jet. Yol o Co. Colusa Co. SO Wood land O > r" -n. O 7$ zz - 33 O .Q Z CO -J > o X o _ c 2 I -K £ > -< cn H C D -< 253 PLATE CXXXI. ft CO J ColusaJunc. ft o ,Yolo County Colusa Hershely ft Berlin Colu sa Co. Glenn Line: a ■ i 1 ° o c: cr C/i — I > rn ~-4 +■ CD 1 ft n ~cr< be ' i. "" *** > -n O 3) X > -< H c o ■< 254 PLATE CXXXII. if Colusa Go. Glenn Line! CD 0) Glenn Co. Tehama Line &o cr» r- m Z o o 30 O c: — » n •o C - ) > r; ■n O 3D a > zc -< en H C o •< 111 2KK PLATE CXXXIII. GLenh County Teh a ma Line 3 I -+- PI G> 2 H ■< -* > r -n o 3) > I > c o -< - SRioae End of Route N9 7 25G PLATE CXXXIV. 0) T3 ■I £ 9 a?" CD > 0) C 1 *fr i 5= J e: 1 3=» 1 en r> O Cu I CityUmih San Fernando No Paving No Paving 2 > > > 5 CD No Paving June, of HorneiYood Ave. City Limi.ts 1' f— <-> ^D to o > —l n rn ^ r* •o n to u> o o o o 3 3> O 33 > H a a < La Canada & Pasadena 257' 0> Citrus Aye Co on v Los Claremont" Angeles Co. 5an I Bernardino & & F Qj City of San Bernardino End of fioute H°9 & % PLATE CXXXV r~ 3 o > O C= -i J. m (0 r • o n CO o o > o 2 > > ■< co H C o -< CX) 258 PLATE CXXXVI. City Limits ™ ll I, 3D pi s: z , o O c z -I -< "City of SACRAMENTO V \l o with Route No. 4 259 PLATE CXXXVII. u, O a> "™* <>i <^ s Cj QJ Co c^ hi 0. 01 3 o o n T ft -r rt Placerville 7 5" Si to CO zu > o I " z ° o o > O O to Sacramento Co. £l Dorado Co. r - O " o 33 > . ■~ff> O p ; o ■ C - ) *.!,-..; o R7 'I'-'lts o 3 > o z > X > -< CO -H < 200 PLATE CXXXVIII. ?r> % 5> U ^ ^ o, =fc» p> ss End of Route 2. - San Diego Co. W.end Mi'ersCr. Br. CD V to : ^ E I •I 3 r— > m o o r\J n bo CD c-> o i 9 > 3 z p tn I + c/i ;*3 o > CD ■z C= o^ si \> O™ o !_.:= en > -n o 2 > X 5» 5 H C 3 261 PLATE CXXXIX. So Dixieland-Grr/zo Ave. ~n Ok d 3 m > o o o cr r%> | Bridge 1 > o > E'- en CO H c o ElCentro 262 PLATE CXL. Alame da Co . 1 K25R O n g j- > <=> r + - - CD ft Qj ? o ^Richmond ZD "O 5 o > m en — o 32: .o O o Salida Pinole 9» b l2 9 -° /to State Paring W&;'\ Co ft) bo Eckley Riverbank -LOak DALE Martinez o cr (/> r~ > c: O o m • o o3 en > o 70 <7> X > < en H c o -< 263 PLATE CXLI. Roseville ■ Loom is n u u Pen run " ^ 6APof 26 m r > <-> m 3) O o c x H •< =0 o m -4 o Auburn jGrass Valley pi .0 < > o o <=> Nevada City CD Williams ! I /~Ji/nchon o. ^ ______ I /-Junction of ROUTE 7 CD Colusa c-> 3D C *— : rn o 2 o -o e 5 en > a ■x z > X > -< k c o •< 264 PLATE CXLII. Rive rside City Limits Riverside Co 33 ZX3 < ° O CO m O o ■ ft- San Bernardino : 1^ County > r- -n o 73 ± X > -< C/> H C o Co &0 I On fa no 1"* j| San B ern ardino Co. City Limits 1" C ity lim its City Limits 3^ 2 o c/>T | S Lo: r - she T LosAngeles Co. 265 PLATE CXLIII. Beaumont-City Line _ — to Banning St-a 04-0 is in Indi'o Ci'fy Limifs >1 3D < tn o n o o 33 o c: —i rn • o ro June Route IT? CD ISanJuan Bauh'staj CO ZX3 > <=> m Z Z — .o o 0) n a. m HOILISTER > r; ■*i o 3 > re. cr> x > -< -4 c a -< 266 PLATE CXLIV. °— g-* Saugus rfil s.Boundar y of 1 Lancaster Under Construction fo /S'^ \ f 0) r- Z33 1° > — < 2 n n -o fn ro o o > o zz. > ■x X > ■< Co c o -< 267 PLATE CXLV. San Bernardino Highland and G sfs. to C3Q 3 01 n in f •o o ZL. t= TO —J m pi 3J 3 ZZ •o > 33 Oo O o o 0> 2 > > > £ q ^ en o 3) :z > DC CT> X c/> -1 C '■ o < APPENDIX K ONE-DAY TRAFFIC RECORD ON CALIFORNIA STATE HIGHWAYS 270 OS CO H ■H ► « g a «S rt S3 fc -*s r>5 •*CC '— 1-1 _ PS hH u o © H & a .COD w -» CO PS w © £ H 5-8 tH ■«( tH £ =■ - H °D *. 5J < « IPS H fc ^53 © BS 1* © 6 .8 Ph ^ i— i h! 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