STATE OF MICHIGAN REPORT STATE HIGHWAY COMMITTEE ESTABLISHED BY THE LEGISLATURE OF 1901 AND APPOINTED BY HIS EXCELLENCY, AARON T. BLISS, GOVERNOR LANSING, MICH. ROBERT SMITH PRINTING CO., STATE PRINTERS AND BINDERS COMMITTEE. HORATIO S. EARLE Chairman. State Senator 3d District. WILLIAM MCKAY Vice-Chairman. State Representative Tuscola County. AMBROSE E. PALMER Secretary. State Senator 27th District. CAPT. EDWARD P. ALLEN Treasurer. Member State Board of Agriculture. CHARLES J. MONROE Member State Board of Agriculture. LESTER A. GOODRICH .- State Representative Hillsdale County. CHARLES B. FRENCH State Representative Monroe County. EXPERT STAFF. FRANK F. ROGERS Port Huron, Mich. Consulting Engineer and Expert Road" Builder. JAMES M. STARKWEATHER ; Port Huron, Mich Superintendent Earle's Good Roads Train. GEORGE S. SMITH Port Huron, Mich. Mechanical Engineer. 327912 LETTEE OF TEANSMITTAL. STATE OF MICHIGAN, OFFICE OF CHAIRMAN HIGHWAY COMMITTEE. To His Excellency, AARON T. BLISS and the Honorable Senate and House of Representatives of the State of Michigan: Sirs We have the honor and pleasure to present herewith a report in accordance with the instructions given us when appointed, and deal- ing with the question of the improvement of public highways. We have endeavored in our investigation to find out what was desired by the people of the State, and to recommend such legislation as we believe will largely contribute to the improvement of the roads and be equitable for the contributors. We believe that the general welfare of the State will be enhanced by a complete system of inter-town highways, and that the benefit de- rived by the wealthier townships, villages and cities upon whom a portion of the expense to build them through poorer townships must fall, will amply recompense them for this outlay. We have investigated the ways and means employed by other States that are improving their roads with the object of permanent inter-town highways in view, and have based our recommendations largely upon what has been proven successful in such States, and made such changes as conditions in our State made necessary. We have been conservative in our recommendations, and they are no untried schemes. We have recommended a commission of three, instead of a commis- sioner, on account of the size of our State, and its peculiar shape, and believe it is for the public weal that this plan be adopted. We have incorporated into this report many suggestions on how to build and improve roads, so as to make the report valuable and sought after by all supervisors, highway commissioners, overseers of highways and many other citizens interested in this matter of paramount importance. 6 LETTER OF TRANSM1TTAL. The members of the committee hold themselves in readiness to appear before your Honorable Body or any committee thereof at any time, and explain any portion of this report, or answer any questions that you may wish explained or answered, to the best of our ability. We humbly pray that your Honorable Body will pass a resolution, at once, to have this report printed, and in a sufficient quantity to satisfy the demands therefor. Most respectfully submitted, HORATIO S. EARLE, Chairman, WILLIAM McKAY, AMBROSE E. PALMER, EDWARD P. ALLEN, CHAS. J. MONROE, LESTER A. GOODRICH, CHARLES B. FRENCH, Members of the Michigan Highway Committee. PKEFACE. This volume deals with the subject of improvement in the public highways from an economical standpoint wholly, while it may be true that sentiment has some claims upon the taxpayer, yet all of the investigations of the committee have been along the line of, will it be profitable to the taxpayers to invest their money in improved highways. We have worked diligently to find out what the desires of the people were upon the subject and what they wished us to report as their desire and what they wished us to recommend, and this report gives what is almost a unanimous request of the thousands of taxpayers with whom we have talked in the last two years. In fact it lacks only three of being unanimous among all the thousands that we have come in con- tact with. The first dissenter was a man that was down on any more boards of any kind or description whether needed or not, for he was afraid of paternal government evils; the second was a publisher who ought to let his subscribers publish one issue of his paper that he might read and learn how far in advance his readers were of the paper, and the third was an ex-farmer who had moved to the city because the roads were so bad in the neighborhood where his farm was located that his children could not get to school, and he did not wish to be taxed to build roads for other people's children to go to school when to them was open the same chance which was to him, move off tta farm in order to educate their children. The committee are indebted to a great many, but especially to the fol- lowing, for assistance in gathering information and also in the building of the sample roads which brought out the people and made it possible for us to meet them and find out what they did want and to whom we desire in this public way to express our sincerest gratitude. Hon. Martin Dodge, Director of Public Road Inquiries and his corps of assistants at Washington, D. C. The American Road Makers, the League of American Wheelmen, The Municipal Journal and Engineer, The Good Roads Magazine, The New York Tri-Weekly Tribune and the Michigan papers that have taken an 8 PREFACE. interest in this great economical subject and who have so kindly opened their columns to articles of instruction and news regarding it. To the consulting engineer, Mr. Frank F. Rogers, who has given so much of his time to this work since it started for almost nothing. The Port Huron Engine & Thresher Co., who have furnished the most of the machinery for Earle's Good Roads Train free of charge. The Wallace Stone & Lime Co., The Acme Road Machinery Co., The Kelly Road Roller Co. and the Austin & Western Co. The Pere Marquette Railroad Company who so magnanimously offered to haul Earle's Good Roads Train anywhere in Michigan where sample roads were to be built, for said they, "We are as much interested in good roads as anybody can be," and it is true, that if the roads are good all of the time, there is some freight being offered to the railroads all of the time, instead of all of the freight when the roads are good and no freight when the roads are bad. The Michigan Passenger Association who gave the limit of low fare to the Michigan Good Roads Exposition at Greenville, held July 29th to 31st, where all former records of attendance at good roads conven- tions were broken, it being estimated that twenty-five thousand people visited the exposition in the three days. To Dr. A. W. Nichols, of Greenville, for his untiring efforts for the exposition and to whom the success was largely due. The following states: New York, Maryland, Massachusetts, Con- necticut, Vermont, New Jersey and Ontario, Can., for their reports and many suggestions by their commissioners and good roads advocates, and to many others not too numerous for the good of the cause, but too numerous to mention here. One member of the committee has been referred to by one of the pub- lications in Michigan, as a "shining light among good roads fanatics." We earnestly urge careful perusal of this report and the recommenda- tions of the committee for any signs of fanaticism that are dangerous to the welfare of the commonwealth. As the committee has served without fee, but not without reward, for to feel that we have done the best we could under the circumstances is a reward that is more satisfying than dollars ever were or ever can be, unjust criticism has appeared to us as out of place but it has been so much in the minority compared with the letters and words of approval that we have no fault to find. ORGANIZATION AND ACCOUNT OF THE WORK DONE BY THE MICHIGAN HIGHWAY COMMITTEE BY HOEATIO S. EAKLE, ORGANIZATION AND ACCOUNT OF THE WORK DONE BY THE MICHIGAN HIGHWAY COMMITTEE. BY HORATIO S. EARLE, CHAIRMAN. No subject needs greater and more careful attention by the people of Michigan to-day, than that of how to get better highways. Not neces- sarily good roads everywhere, for no one connected with any good roads' organizations that I know of, is fanatical enough to advocate any such thing, but it is among the possibilities to have better roads everywhere, where better roads are wanted and needed. There has been a hundred million dollars expended on the roads of Michigan, over which is transported millions of tons of the products of the field and factory each year, costing much in excess of what it would cost if the roads were better. Upon these roads there are hundreds of thousands of dollars expended each year. Is it not our bounden duty to inquire of ourselves whether we are draining the pockets of the taxpayers, and if the latter, if there is not some way to educate the builders and menders of the roads, so that a large portion of the money expended may be invested in perma- nent roads instead of wasting it. It was with this object in view, that a concurrent resolution was intro- duced in the last legislature for the appointment of a committee on high- ways, and authorizing that committee to investigate the matter, and make a report thereon to your honorable sirs, with any recommendations by them deemed wise to put into execution to bring about a better appli- cation of the labor and money spent upon the roads. The resolution which follows was introduced in the Senate, May 15, 1901, and passed by that body that same day; passed by the House, May 16th, and immediately approved and signed by the Governor. It is as follows: A CONCURRENT RESOLUTION. For the appointment of a committee on highways to investigate and report a plan of improvement, and means therefor, to the next Legis- lature. Resolved by the Senate (the House concurring) that a joint committee of seven, composed of two senators, three representatives, and two mem- bers of the State Board of Agriculture, be appointed by the Governor, to investigate the subject of highway improvement in the State of Michi- gan, and to recommend to the next Legislature such plan as they may deem advisable, if any, for a general system of highway improvement, and providing means therefor. Said committee shall serve without pay or expense to the State. 12 STATE OF MICHIGAN ORGANIZED INVESTIGATION. Governor A. T. Bliss immediately appointed the following men to serve on the committee : Senators Horatio S. Earle and Ambrose E. Palmer. Representatives William McKay, Lester A. Goodrich and Charles B. French. Members of the State Board of Agriculture Capt. Edward P. Allen and Charles J. Monroe. Who, on the 21st day of May, 1901, met in the Senate chamber and organized and elected officers and committees, as follows : Chairman, Horatio S. Earle; Vice-Chairman, William McKay; Sec- retary, Ambrose E. Palmer ; Treasurer, Capt. Edward P. Allen. Committee of One, Farmers' Institutes Ambrose E. Palmer. Granges, William McKay. Agricultural Fairs, Chas. J. Monroe. Republican Con- ventions, Capt Edward P. Allen; Democratic Conventions, Charles B. French. Cities and Villages, Lester A. Goodrich. And for Press and Labor, Horatio S. Earle. FIRST STEP. The first step taken was to secure the services of Frank F. Rogers, of Port Huron, for consulting engineer. He having investigated personally the eastern roads had the very best of experience along this line, as he was employed to assist the late Gen. E. G. Harrison, the veteran road builder and expert, who was connected with the office of Public Road Inquiries, at Washington, in building sample roads. He helped the gen- eral to build the first government sample built in Michigan, the same being the one mile built at Port Huron in connection with the First In- ternational Good Roads Congress promoted by Mr. H. S. Earle in July of 1900. Mr. Rogers having had the necessary experience it was very important for the success of the committee that his services be secured, but as the committee was established to do all its work without pay or expense to the State, it became obligatory for the committee to either secure dona- tions of money or donations of service. When this matter was brought before Mr. Rogers, he volunteered to do his part of the work free gratis, but before the committee were ready to go into the field to work, tie had been engaged by the Port Huron Engine & Thresher Company, but they also continued the offer of his services as consulting engineer and more, to furnish all the machinery necessary to build sample roads of any kind of material. So, through the magnanimity of the good people of Michigan the com- mittee have been able to accomplish a great deal, but not all they would have been able to, had the State paid the legitimate expenses of the work. The work done has been modeled after the plan of work so successfully, carried on by the director of Public Road Inquires, the Hon. Martin Dodge, in whose employ Mr. Earle was, as a special agent, when elected State Senator. The chairman has been to Massachusetts, Connecticut, Vermont, New York, New Jersey, Maryland, Ohio, Illinois and Wisconsin seeking for information upon the subject and inspecting the roads and method of HIGHWAY COMMITTEE, 1901-1W2. 13 building and paying for them, and is of the opinion that we can by taking the best in all their plans and putting some new features in, have a better plan than any of them have at the present time. A synopsis of the principal things that have been done will follow, with an approximate account of what the expense would have been had there been no donations, and what it actually cost the chairman over and above all donations. REPORT. I have invited our consulting engineer, Mr. Frank F. Rogers, to make a detailed report of the road work done at three places where we have built or assisted in building sample roads, and his report will be found elsewhere in this volume. The actual expense on account of donations is impossible to give exactly, but I will estimate it, and conservatively. Nearly or quite 40,000 pieces of mail matter in the two years I have either sent out or caused to be sent out, to citizens of Michigan, relating to good roads. Had it not been for the grand assistance given me by the office of Pub- lic Road Inquiries at Washington, under the guidance of Hon. Martin Dodge, Director, and Maurice O. Eldridge, Assistant Director, the New York Tri-Weekly Tribune, the Municipal Journal and Engineer of New York, and the Good Roads Magazine of New York, this printing, direct- ing and postage alone would have cost me $1,200. I have traveled in the two years getting or giving information on the subject of good roads, 10,000 miles, which with hotel and other necessary traveling expenses, providing that no donations of transportation, meals or lodging had been given, would have cost me $500 more. I have addressed in the different audiences, in the two years, at many places in Michigan, at least 100,000 people, and have not charged in any case a single cent for doing so. I had my good roads train in the field in 1901, four weeks; in 1902, nineteen weeks, which had I not had donations of transportation, by rail- road companies and engineering, use of machinery and labor by the Port Huron Engine & Thresher Co., and the Acme Road Machinery Co., and many a meal and many a lodging by good roads enthusiasts, it would have cost me all of $3,000 more. Have paid out for stenographer, printing, postage, telephoning, tele- graphing, express, freight and other expenses not mentioned in the fore- going, about $400. I have given one-half or more of my time for the two years. The expenses of the other members of the committee amount to about $200. The printing of this report I have guaranteed the payment of and if the State does not see fit to pay it, I shall have to pay several hundred dollars more, and all for the privilege and honor of serving as chairman of the first sample road-building and instruction-giving Michigan High- way Committee. HORATIO S. EARLE, Chairman. EOADISMS BY EOADISTS. We have stolen some Yet have no apology to make, But invite others to as freely take, For the good of the cause. HIGHWAY COMMITTEE, 19C1-S90::. 19 EQUITY IX STATE AID. There is just as much equity iu State aid for highways as there is for State aid for education, or for health, or for care as in asylums, or for punishment as in prisons. It is a very small percentage of taxpayers that ever attend college, yet there is not a taxpayer in the State, but what is benefited by the college, and more than his education taxes amount to many times. An incident proved this to me. I had taken passage on a Michigan Central train from Chicago to Detroit. A gentleman in the seat in front of me spoke of the fine gravel roads as we came through Indiana, and what a change when we came to the Michigan State line, in the roads, and he said, ''Michigan ought to have roads equal to her educational institutions.'' Then he told me that he resided in Missouri, but was an alumnus of the Michigan University, and he said, "Everything in Mich- igan, or that comes from Michigan is more appreciated by me than a similar article from any other State," and he said, "I buy everything I can from Michigan, for it reminds me of my Alma Mater." So you see that the Michigan University benefits the owner of the furniture factory in Grand Rapids, and the mechanic that makes the furniture and the farmer that owns the sheep that furnish the wool to clothe both, and who also sells both the farm produce to keep both alive. This University advertises Michigan, it makes Michigan respected and appreciated and benefits in a thousand ways, that we know not of. Could the city of Ann Arbor alone build and run that institution? No! And this is one of the cases where home rule has to expand for the benefit of higher education, taking in the whole State, taxing all to educate a few. that all may be benefitted. Taxpayers are paying" taxes to educate largely, non-taxpayers, but would you sell the University of Michigan to some other state if it could be transported? No! It would not be a good business transaction to do so. We do not all expect to go to asylums, but these institutions are run entirely by State aid, so that if occasion requires we will receive a direct benefit Very few expect to be caught and sent to prison, but these institu- tions are partly supported by State aid, and partly by the small earnings of the men whdse labor is sold to contractors to manufacture merchant- able goods, which are sold in competition with those made by honest men who need to get wages that will support families and educate them. Yet we need prisons, and it is better to pay taxes to support them, than to have crime go unpunished, and so increase to our damage. Good roads differ from an institution of learning in that everybody uses them directly, some more and some less, but no one who is in health but what uses them. Good roads save money to those who have a product of field or factory to transport over them, and furnish enjoyment to city people by privi- leging them to enjoy nature and the rural citizens of the city. 20 STATE OF MICHIGAN GooJ roads are like an institution of learning in that all departments must be good in order to do good. An institution that was good in mathematics and poor in languages, good in astronomy, but poor in philosophy, would not be called good, and would be bad. And a road from Detroit to Chicago that is good in Detroit and poor in Ypsilanti, and good in Ann Arbor and poor in Jackson, etc, etc., is poor, for like a chain which is no stronger than its weakest link, the road is no better than its poorest place. Now a great institution of learning cannot be built and run by a small locality, neither could one township offer to pay the expenses of one department in a great university. And if a department was depend- ent upon some poor township to support it that department would be poor, and not only would it suffer but the whole institution would also suffer. Likewise a through road, which has five million dollars worth of prop- erty in one town to assess, to build and keep it in repair, and only two hundred thousand in another, must necessarily be good in the first town and bad in the last, so on the whole bad. But if State aid for permanent roads prevailed, and was distributed according to the number of miles of road in each township, and this State aid was only given to towns which gave as much, and it had to be used on through roads, and in making the poorest places the best road, in a few years, the citizens of Michigan could ride over the State line without being ashamed of their roads, and their roads would advertise the State, as well as save money for the taxpayers to pay their taxes with, and some left to lay up for a rainy day, figuratively speaking, but literally speaking, rainy days would not be the terror they are now, for they would not hurt the permanent roads, and rainy days could be utilized by marketing on them as they do in the old countries where the roads are good. What do the aiders get in return for the aid? In the first place, where did the aiders get the property which is taxed in the rich towns? Detroit is the metropolis of Michigan, and Detroit is in Michigan in- stead of Michigan in Detroit. Michigan has not grown on Detroit, but Detroit has on Michigan, and as Detroit is the metropolis of Michigan, so is Port Huron the metropolis of St. Glair county, Saginaw of Saginaw county, Grand Rapids of Kent county, and so on. It is said by some that these great centers of wealth build and repair their streets, and that the townships, rich or poor, should do likewise. Where did this great accumulation of wealth come from? Did it not come from all over the State? from the profits of the pine timbers, the hardwood, the mines, the coal deposits, the marl deposits, and the profits from off the products of the field and factory, and the caloused hands from all? Isn't this a government "of all, by all and for all"? And if so, isn't it equitable to make it a government of all places, by all places and for all places. And is it unjust to ask those who have been made rich off the rural districts to pay something toward the primary school fund, which helps to give a common school education to all; and isn't it just as equitable to pay something to the State Aid Road Fund, that shall HIGHWAY COMMITTEE, 1901-1902. 21 make ii possible for the child in ihe rural district to get to the school whore an education is TO be had without having to wallow in mud, or walk in snowwater ankle deep, as I have seen them in the spring of the year? The aiders will net a chance to do their duty and pay something to make the State richer, which has made them rich. SELECTED RESOLUTIONS. From many resolutions received, these two are selected as fairly repre- senting the spirit of all : devolved. That it is the consensus of opinion of the Union Grangers and Teachers' Association of Oceana and Newaygo counties, now in session at Hesperia, Michigan, that our State road laws are defective and should be so amended as to include for taxation, for building and repairing* our highways, our cities and the corporations of the State in other words. State aid for road building should be secured. Dated. Ilesperia, Mich.. Feb. 8. 1902. We hereby certify that the above resolution was adopted at the annual February meeting of the above named association held at Hesperia, Mich- igan in 1902. J. B. McCALLUM, President U. G. T. A. Attest : TSABELLE M. BECKER, Secretary U. G. T. A. Resolutions adopted by the Michigan State Horticultural Society, at its midsummer meeting, held in the city of Pontiac, June 4 and 5, 1902. Having listened, with much interest and profit, to the address of the Hon. II. S. Earle. of Detroit, on the subject of 'Good Roads/ and, realiz- ing the financial importance of th s improvement to all classes of our citizens, "Be it resolved, That the Michigan State Horticultural Society heivby extends a vote of thanks to Mr. Earle for his valuable essay and also places itself on record as endorsing every legitimate effort tending to- wards an improvement in the manner of construction and repair of our public highways. We believe that our read builders must be experts and that an organized and systematic plan of permanent improvement should be adopted, rather than the present unsatisfactory lack of method, shown in our frequent and temporary -patching up' processes." VERMONT PLAN. The Vermont plan of dividing the permanent road fund similar to the way that the primary school fund is divided, only instead of basing it on population, it is based on the mileage of roads or streets in town, village or city, is in my estimation the most equitable plan that can be conceived of. 22 STATE OF MICHIGAN This State apportionment is given to any town, village or city when they have actually built according to the standard demanded by the State commissioner, a permanent piece of road or street costing as much as the State aid allotment amounts to. The mileage in villages and cities, of course, is less compared to the assessed valuation in them, than is the mileage of roads to the assessed valuation in towns. I submit herewith a table showing the money tax paid by each town, village or city in Chittenden county, Vermont, and the amount allotted to each, and the amount of permanent work done, and the amount act- ually received. A close perusal of this table is instructive and shows better than words can explain, the equity of State aid for permanent inter-town highways. For instance, Burlington is the metropolis of this section of the State, and pays a road fund tax of f6,611.08, and as the State apportionment is $6.07 per mile, and the city has fifty-five miles of streets and roads, it gets an allotment of $333.85 for its own permanent work, and con- tributes $6,277.23 to the State aid fund. But Burlington is what the surrounding territory has made it, and can well afford to make a contri- bution to build roads into Burlington. This plan also resolves itself into a permanent school of instruction. The commissioner demanding a certain high standard of road building, makes it obligatory upon the part of every town to inquire what that standard is, and how to build so as to make sure that the roads built will be accepted as up to that standard, that they may be sure to receive the State aid allotted to them. A five per cent tax in Vermont is the same as a one per cent in Michi- gan, and if we should tax one per cent for good roads, there would be an allotment of $12 per mile, which would amount to about $800 per town- ship. But no township would be obliged to build $1,600 worth of perma- they would draw from the State aid fund, provided, the Vermont plan with the amendment that I advocate is adopted. STATE OF VERMONT. To the Road Commissioners in the Several Towns in the State: Pursuant to Article 2 of an act approved Dec. 1, 1898, entitled "An act to improve the public roads and establish the Vermont Highway Commission," this circular letter is issued : AN ACT TO IMPROVE THE PUBLIC ROADS AND ESTABLISH THE VERMONT HIGH- WAY COMMISSION. It is hereby enacted by the General Assembly of the State of Vermont: SECTION 1. On and after Dec. 1, 1898, there shall be a State Highway Commissioner with the powers and duties hereinafter described. Said commissioner shall be appointed by the Governor with the advice and consent of the Senate and shall hold office two years from and after his appointment. A vacancy occurring while the General Assembly is not in HIGHWAY COMMITTEE, 1901-1902. 23 session shall be filled by appointment, by the Governor, until the next sitting of the General Assembly. SEC. 2. Said commissioner shall l^ave supervision, through the town commissioners, of the expenditure of all moneys appropriated by the State for permanent highway improvement, and shall at the earliest pos- sible date in each year ascertain and report to each town the amount of money that it will be entitled to under the apportionment for that year. He shall also issue a circular letter to the road commissioners of each town in the State, stating what kind of work will be considered perma- nent work under this act, and shall give such advice as to the most ad- visable materials to be used, the proper methods of drainage, the proper construction of culverts, etc., and shall make such other suggestions as will tend to aid the town commissioners in properly expending the money in permanent road work. SEC. 3. The State tax for the benefit of highways shall hereafter be used to permanently rebuild or repair portions of the main thoroughfares in each town, and in no case shall a town be entitled to its share of the State tax raised for highway improvement until it has complied with the provisions of this act. Such tax shall be expended by the road com- missioner in each town annually, with the approval of the selectmen, and he shall annually, upon blanks to be furnished by the State com- missioner, make to him a detailed report subscribed and sworn to before a notary or a justice of the peace, showing the number of roads so built or repaired by the State commissioner, and the same shall be approved by the selectmen. On receipt of said report the State Commissioner shall examine the same, and in all cases where he is satisfied that the town has properly expended under the provisions of this act, a sum of money equal at least to its apportionment of the State Highway Tax as provided for in Sec- tion 3438 of the Vermont Statutes, he shall issue his certificate to the State treasurer for the full amount of said town's apportionment; but in case it shall appear to the State commissioner that any town has not expended, under the provisions of this act, a sum of money equal to its apportionment of the State Highway Tax, he shall issue his certificate to the State treasurer in favor of said town for only such portion as he is satisfied has been truly and faithfully expended in permanent work as provided for by this act. SEC. 4. The State treasurer is hereby directed to pay each town the amount of money called for by the certificates of the State Highway Commissioner. SEC. 5. Any unexpended moneys of the State highway tax that remain in the treasury at the end of the year, shall be carried over and added to the moneys raised and apportioned the following year. SEC. 6. The road commissioners of the several towns in the different counties are hereby constituted county boards of road commissioners, and each board shall annually hold at least one meeting at such time and place as the State commissioner may direct, to consider such matters as he may present to their attention, and to discuss such matters of road improvement as may be of special interest to such board. SEC. 7. It shall be the duty of the State commissioner to meet the county board as provided for in section six of this act and in his dis- cretion to provide experts for instruction in road maintenance and in 24 STATE OF MICHIGAN road building, and he may personally direct in the execution of work of the town commissioners. SEC. 8. The commissioner shall report to the General Assembly at its next biennial session the condition of the highways in the State, the progress being made in permanent repairs, together with any recom- mendations calculated to secure better roads and inculcate improved economical practices among the road commissioners, the expense of which report, together with the expense of blanks, stationary, postage and other necessary expenses shall be paid by the State. SEC. 9. The State commissioner shall receive in full compensation for his services four dollars per day and traveling expenses while actually engaged in the duties pertaining to this office, and the State auditor is hereby directed to draw his order on the treasury for said amount to- gether with other necessary expenses incurred and provided for under this act, when they shall have been provided by the Governor. SEC. 10. All acts and parts of acts inconsistent with this act are hereby repealed. SEC. 11. This act shall take effect from its passage. Approved December 1, 1898. P. S. In Legislature of 1902, they have passed a local option license law with a proviso that three-fourths of the income shall be paid into the State Aid Koad Fund. In defining what will be considered as State road work entitling towns to a claim for State aid under the law, the scope of work will be con- fined to road building. Expense incurred for ordinary repairs or maintenance cannot be allowed. Claims for State aid may be made for kinds of work as follows : PAVEMENTS IN CITIES AND VILLAGES. All pavements made of asphalt, vitrified brick, granite block, macadam, gravel, or other good road material laid on Telford or other good founda- tion and built under the direction of a civil engineer or road expert. COUNTRY ROADS. The lack of modern road building machinery in the rural towns is considered, and claims may be substantiated for building roads of stones and gravel under the following directions : LOCATION. The work to be laid out on such section of a public thoroughfare in town as the selectmen and road commissioner have approved, and the se- lection of location should be by fair judgment rather than by personal or partisan motives. It is better that the work be done on one continuous section rather than to be divided and distributed over different parts of the town, as has sometimes been done to gratify personal interest. HIGHWAY COMMITTEE. 1901-1902. 25 GRADES. Our roads were laid out when heavy grades were not objectionable and people seemed to think it a privilege to go over a hill rather than to go round it. Generally the roads in Vermont begin in remote sections and follow down the valleys joining other roads in their course and forming the main roads or thoroughfares that lead from village to village, term- inating at the cities or business centers. Hills were not avoided. Where roads could have been built on an easy five per cent grade, we now have the steep troublesome hills, hard to travel and difficult to maintain. Many of the country roads should be re-located and built on an easy grade where the layout of farms and community interest can conform to such a change, but as discontinuing and establishing new roads is a town matter, the proposition in this connection is suggestive only. However, under our plan of permanently building sections of road, much can be done to reduce heavy grades by cutting down the road at the apex of the hills and using the material for road construction, and I ask the town commissioners to consider this in their operations of road building. In such cases the expense of reducing grades should be considered as Inci- dental and not charged as State work. DRAINAGE. Water is the most destructive agent to roads, and many bad roads can be changed to good ones by drainage alone. Drainage is the first and most important step in road building, and no State money will be expended upon any section of road until that section has been well drained. Legitimate work done under this head will be, conveying or taking away the surface water by open gutters or ditches, well made not less than one foot wide at bottom, of even grade, giving a true flow line, with no pockets for standing water or loose material ; covered ditches made of tile or stone, or fills to prevent standing water adjacent to or standing upon the highway, and also subdrainage by underdrains where needed. FOUNDATION. All roads must have permanent foundation. If material conditions do not afford it then an artificial foundation must be laid. The material to be stone, always placed by hand, with the broadest side or edge down, points projecting up, the top course broken and all sharp points broken down to an easy surface, the interstices well chinked in and the whole well rammed down, the stone work not less than eight inches in thickness. SURFACING. Broken stone or gravel of good quality should be used. If in any towns broken stone or good gravel is not available then the next best road material that can be had may be used. But we insist upon good material. Towns upon the line of a railroad ran usually arrange with 4 26 STATE OF MICHIGAN the company to deliver good road building material on platform cars cheaper than it can be hauled by teams a few miles. The railroad com- panies are interested in the improvement of highways and will give con- cessionary rates. This shall be placed upon foundation prepared as before described, or where natural conditions make good and sufficient foundation, and to be not less than six inches thick after it is compacted and finished, well crowned, with sufficient slope from center to sides to freely carry off all water. It shall be of sufficient width to accommodate the travel. On ordinary country roads a well built track twelve feet wide, with good shoulders, should be ample. To secure a well built track twelve feet wide the material should not be spread wider than six feet, for in the ordinary process of compacting it will naturally spread to the desired width before it becomes hard and firm. COMPACTING AND FINISHING. We shall insist upon roads being finished by being well compacted and of good, even form. This in the past has been neglected. It may be done by a roller of not less than four tons weight when the material is wet, or by other means as efficient. Where no road roller is available the work may be done with a road machine and one pair of horses, with the blade of the machine set so as to fill ruts and all depres- sions, making a smooth and even surface, going over and back, thus dress- ing both sides of the road. This should always be done when the material is wet; after a good soaking rain is the proper time, and this should be repeated as often as necessary to secure a good shapely road with hard, smooth and solid surface. All loose stones should be removed as often as they appear. If the process of finishing is neglected we shall discount the claim, deducting a sum to cover the loss or depreciation to the road in con- sequence of this neglect. SHOULDERS. In constructing country roads,that part between the traveled track and the side ditches, and known as the shoulders, should be maintained. The width of the shoulder will depend upon location of road and amount of travel. An eighteen foot road should have a well built track of twelve feet, with three foot shoulders. This part of the road may be good earth or loam that will be hard and firm to support passing teams, with suffi- cient slope towards the gutters to carry off all waters from the traveled track. An evil has grown out of the misuse of the road machine in destroying the road shoulders, thereby narrowing up the road, and making an abomination. In all new road work ample shoulders must be maintained, conforming to suggestions here given. WIDTH OF ROAD. No prescribed limit can be given for all roads. Width will depend upon local conditions of traffic or travel. HIGHWAY COMMITTEE, 1901-1902. 21 \ good standard for country roads is eighteen feet, with well built track of twelve feet and three foot shoulders. Hut near villages with frequent passing of teams a wider road is necessary, with corresponding width of track and shoulders. On the other hand, when population is sparse, a track of ten or even nine feet, with shoulders proportioned, would be sufficient. CULVERTS. To be built of stone, the abutment walls thoroughly built on founda- tions well prepared, the covering stones well chinked, giving good even bearing upon the walls, cracks between covering stones covered with flat stones, and. where it is practicable, cover the whole with small stones well pounded down with stone hammer, and cover with gravel. Culverts may be made of iron pipe or vitrified tile where stones are not obtainable, but should be so laid as to avoid being destroyed by the action of frost, either by bursting or displacement. Tile or pipe should be protected on top, guarding against breakage from heavily loaded teams. Culverts may be built on any of the roads in town where old ones of wood need rebuilding. NO OTHER WORK. Xo other class or kind of work will be accepted, except in special cases that have been referred to and approved by the State highway commis- sioner, before work has begun. TIME LIMIT. All State road work must be completed and claim for the same made to this office on or before the first day of September next. Towns not complying with this rule will not receive their apportionment of State money. COMMISSIONERS SIIorLD KEEP ACCOUNTS. Road commissioners should understand that they are 'buihlinfj as well as maintaining roads. The apportionment of State aid, together with such portion of the town road fund as is not required for the care and maintenance of the roads, should be used for building permanent work, and a detailed ac- count kept and returned to this olhVe. whirh will constitute a claim for State aid. It may be thought the claim blanks are too complicated or exacting and I beg to remind the commissioners that Section 3 of Xo. 65 of the laws of 1SDS requires that the State commissioner shall be "satisfied" l>efore certifying the payment to any town, and as there is no provision for a general inspection of the work, it becomes necessary that the ac- counts be so kept that the work can be comprehended and understood. 26 STATE OF MICHIGAN Some towns came short of receiving their full apportionment the past year by reason of this neglect. Our plan of granting State aid was new and imperfect. Beneficial changes have been made and to perfect a good working system other changes are necessary, and I ask the co-operation and help of the town commissioners. The State commissioner will be found ready to render what assistance he may that towns receive their apportionment of State aid. But it. must be through well built roads and by the regulations prescribed. SUGGESTIONS. CLASSIFICATION. For purposes of State road work, the public highways should be con- sidered in two classes. First, city and village streets; second, country roads. Regarding the first class we have but little concern, cities and larger villages having the necessary machinery for modern road building. Under the direction of skilled experts, the good work of building sci- entifically constructed pavements is fast progressing. It is the second class, country roads, that calls for greater attention. For the improve- ment of these roads the movement for State aid for public roads was inaugurated not to assist towns in caring for maintaining or repairing their roads, but, after towns have made their usual appropriations and expenditures for roads, then to go farther and do more by building each year a portion of road in a substantial and permanent manner. ROAD BUILDING. In road building there are several steps or processes to be considered* We shall speak of them as drainage, foundation, material, applying the material, or compacting and finishing. In prescribing general rules, we meet the difficulty of the unequal conditions in the various sections of the State. In some localities clay abounds, making deep mud in wet seasons. In other places sand roads are an abomination in dry weather, while in other parts of the State the natural condition of the soil makes it a good road material, and roads may be maintained at a comparatively small cost. But in all localities and in every town, there are sections of road that may be permanently improved as contemplated by State leg- islation. The selectmen, together with the road commissioner, having deter- mined upon the section of highway to be improved it should be carefully examined to learn the cause of its badness. Probably it is a chronic case of bad road, and the difficulty most likely will be found in defective foundation. No road can stand the climatic changes of our latitude without a good foundation and this implies HIGHWAY COMMITTEE, 1901-1902. 29 DRAINAGE. Water is the great destroyer of country roads. It not only washes away the surface material, but it destroys the foundation, and makes all the mud. It may come from springs, and in such cases ditches should be provided, and where necessary, underdrains, either of stone or tile, to convey the water where it will do no harm to the road. But often the trouble is caused by water standing in pools by the road side. Deep side ditches, having no outlet, and holding water, should be provided with an outlet, or filled with earth to exclude the water. Depressions or holes, as often made by the road machine, or shallow places from any cause, where water may stand, whether upon or beside the road, should be filled. Where water stands in pools by the roadside, especially during the fall months, the whole structure of the road is thoroughly filled with water by capillary attraction, as it fills a sponge, making deep mud in fall, and the thawing process in the spring destroys the road. So we cannot have good roads of whatever material made, or however well built, unless sufficient drainage be provided. Often drainage and foundation can both be secured by raising the road-bed above the conditions that have operated to keep it back. FOUNDATION. Stone is the best material for foundation, and can generally be had from old field walls, and often by the roadside. They should never be dumped and left loose upon the roadbed, but always packed by hand, by a man who has skill and knack for that kind of work. The large stones should be placed in the middle of the roadbed with the larger ends down, the flat shaped ones on a border in a straight line. Ten feet in width is sufficient on the common thoroughfares, and of less width where there is less travel. The stone should be placed to make a shapely form of road, well crowned, so that when covered it will shed water. The small stones should be placed on top, and stone hammers of about six pounds might be freely used, breaking off the projecting points and crushing the smaller stones, the fragments filling the interstices. When this part of the work is well done we have a good road foundation. Another section of road may be shapely and in good condition during the summer season, but in the late fall and spring seasons deep mud makes it almost impassible. There is no surface water to indicate the cause of trouble, and evidently it comes from underground or sub-soil conditions. In such cases we have found a cure by putting in stone foun- dations as follows : Go at it while the mud is deepest and excavate, shoveling out a space of about seven feet wide in a straight line in the middle of the road, to a depth indicated by good judgment when upon the spot, and put in a stone foundation as in the other case, being care- ful in the packing, and freely using the stone hammer. Two or three men with a team can do this work to advantage. After the work is begun one or two men should work forward, shoveling the mud back upon the stone work finished while the team is after more stone, and so the work progresses. 30 STATE OF MICHIGAN ROAD MATERIAL. Water washed gravel, such as may be found along the borders of our creeks and rivers, stands first. It is my judgment that a well built gravel road is preferable to a macadam road for country towns. I am aware that many advocate the superiority of macadam roads, and people seem to hold back and wait for their coming. The macadam system has its place with the other kinds of permanent pavements for city and village streets, and where there are public interest and facilities for their care and preservation. The first cost of such roads is against their becoming general in rural sections. Also the cost of repairs, which is said to be sixty dollars per mile after the first year's use, does not commend them to Vermont, where the expense for road maintenance in 1896 was thirty- three dollars per mile (average), and it was claimed that under that treatment the roads were improving. Good gravel roads have been built in Vermont for |200 per mile for the surfacing, when the length of haul averaged one-half mile, using six hundred loads per mile. Where water-washed gravel cannot be obtained, we must resort to banks or pits, and here we should discriminate, for in these glacial de- posits is found road material of wide range in quality. Eoad commis- sioners should search for the best road material available. It has oc- curred that a town has used for years a good quality of gravel, but by research it has found another bank or pit of superior quality that could be placed upon the road as cheaply as the other. It would bring profit to many towns if the proper authorities would carefully explore the roadsides and adjacent lands to discover road ma- terial of good quality. The importance of this is appreciated when we consider that the cost of material in road building is probably not five per cent of the total sum. The ninety-five per cent for labor should be intelligently directed upon suitable material. SURFACING. In surfacing a road, the work should be well organized. The number of shovelers should be proportioned to the number of teams engaged, and the number of teams regulated by the distance of the haul, so that there may be little or no delay to teams or men by waiting. Beginning the work at the end of the section of road to be surfaced,, nearest to the source of the gravel, in this way each loaded team passes over the gravel already applied, and returning empty, does the same. This helps to build the road, especially if there is no road roller for this purpose. A man of skill should have charge of spreading the material, and the loads should be spread as they are dumped. In this way the material is evenly distributed. Other means are sometimes employed for spreading the gravel by the use of a harrow or road machine, after the material is all applied, but no amount of harrowing the surface with any tool will secure as good re- sults as hand spreading as each load is dumped. This gives not only even thickness but an even compactness that cannot be secured by dump- ing loads one after another and simply leveling the surface. We should know that we are building an artificial floor, which, when finished, should have an even surface, hard and smooth, without depres- HIGHWAY COMMITTEE, 1901-1902. 31 sions where water may stand and materially damage the road. The material should not bespread over too great surface, and should be well rounded up in the middle. Presuming that there is no road roller for immediately building the road and that we must depend upon the ordinary travel upon the road to do the finishing, better results will be obtained if the gravel be spread not much wider than the wheel track. This will be inconvenient and somewhat discomforting to the traveler, but in the end we shall have a better road than by covering a greater surface. This applies to common roads. Upon village streets, and where there is a great amount of travel, more surfacing material will be required, fitting the road to accommodate the amount. The rural lowns not having machinery for road building will find advantage in doing this work as early in the spring season as possible, when the frequent rains and all natural conditions are most favorable for settling and making firm the earth and the roads. Tlic ffmitt'xt y means of the travel upon it. This often occasions trouble, as incon- siderate persons are inclined to shun the unfinished roadbed and drive upon the borders where the traveling is easier. Sometimes it becomes necessary t< plan- obstructions upon the border to keep the travel where it belongs to do the necessary work. If the work of surfacing is carried 32 STATE OF MICHIGAN on as suggested, the loaded teams passing over the material already spread and returning empty, a good beginning has been made and a good example set for others. Road commissioners should not violate the law by using or employing narrow tired carts or wagons upon the roads, thereby damaging the road they are trying to build. If towns owned two carts for road work, with four-inch tires, and the forward axle eight inches the shorter, so that the wheels would cover eight inches width of surface, it would greatly aid in road building, they being a partial substitute for a road roller. When the new road becomes rutted, as it surely will, it should be gone over with the road machine set light just to fill the ruts and to keep the road well rounded up in good form. This should be done immediately after a rain and the operation should be repeated as often as necessary until the road is thoroughly compacted, the surface forming a hard, smooth floor that will shed water. When a section of road is built it should be cared for. Since 1893 Vermont has been engaged in permanent road building in a small way. At least a pretense of building in every town a section of permanent road each year has been made. It is probable that in many, if not most, of the rural towns, it would take very close inspection to find those sec- tions called permanent roads, as distinguishable from the common high- ways, and they are generally in poor condition. It is extravagant and useless to build good roads unless they be protected and well taken care of. This brings us to consider ROAD MAINTENANCE. Roads being subject to continual use and also to the destroying effects of the elements and the changing conditions of our climate, should have constant care. Ordinarily the country roads do not wear out, but by neglect they go to waste, run down and become bad. In that condition they are attacked usually about once a year by a gang of men with a road machine, operated by a great team force. The}' proceed to break up the hard settled ground and scrape up on the surface of the road sods and other rubbish utterly unfit for road material, and call it road repair- ing. Roads should not be out of repair, they get in that condition only by neglect. A road poor in character should be kept so it will get no worse, and by constant attention and small expense it should slowly grow better. A good road should be kept always good. All slight defects should be discovered and remedied at once. In this way the much praised macadam roads in France and other countries are kept and maintained at normal expense and are always in good condition. The railroad corporations would become bankrupt should they practice the methods ordinarily used on our highways. All business corporations and success- ful farmers understand the necessity of watchful care that their plant, be it factory or farm, is continually at its best and never out of repair. Improved methods for road maintenance have been adopted by many of the road commissioners, and their success is stimulating others to follow their example. The plan most -likely to become general is for the town road commissioner to delegate the care of the roads to section men, in different parts of the town, each to have charge of a definite section conveniently near his residence, over which he should pass as often as 93 25 "S y o ll i fi ll a? a !! ^ g 0) a HIGHWAY COMMITTEE, 1901-1902. 33 necessary to protect from damage by running water from the melting snow or rains, and see that the side ditches are kept open, the culverts clear, slight new defects remedied. In this way the roads are kept at the lowest possible expense. Experience shows that under this management of constant care they gradually improve. By substituting this practice for the old and extravagant method of yearly gang work for maintaining roads, a great saving may be made of the town's money that could be used in road building. Another advantage of this plan is that the road is kept clear of loose stones, which are a common nuisance. Loose stones upon the road sur- face should be removed, not monthly as the law requires, but weekly, or as often as they come to the surface. The discomfort they cause to the traveler is great, but the injury they do to the road is of more ac- count. And they should not be tolerated for a day. The best time for shaping up earth roads is in the spring, when the ground is plastic and easily worked. As a rule when the earth becomes settled hard and firm it should be left alone for that season. It will require great force to break it up in mid-summer, and when broken it is not likely to be as well set and firm again for that year. The broken surface becomes either dust or mud, according to the weather. In a general way the use of the road machine is too much depended upon for keeping the roads. Where roads are kept by section men they do not need to be broken up yearly by the machine. Every town should own at least one good road machine for moving earth and shaping roads, and the well built roads should be gone over in the late fall before the ground freezes, again in the early spring, and occasionally through sum- mer to keep the loose material in place. This should be done when the surface of the road is wet, to insure compacting. As a road builder, the machine is a failure unless it be operated on good road material. Road officials should not necessarily mar or deface the natural attrac- tions of the roadsides; but rather, they should do their work in a way that will encourage a general regard for roadside beauty, for in this there is value. The movement towards the use of wide-tired carts and wagons should be fostered. A wagon with wide-rimmed wheels is a road builder, while the narrow tire is a road destroyer. Vermont is making progress in road improvement on the plan laid out of thoroughly building each year in every town, a section of road in a substantial and permanent manner securing good drainage, laying foundation where necessary, surfacing with suitable material, finishing well the surface, under a system of maintenance that protects and keeps the roads at their best and in all times. In this we are helped by bearing in mind what a road is. No better definition can be given than one by John L. Macadam, who was the originator of that method of scientifically constructed stone roads that bear his name, and which is so popular in many countries. He said: "A good road is an artificial floor, forming a strong, smooth, solid surface, capable of carrying great weight, and over which carriages may pass without impediment." Let such a road be our model. J. O. SANFORD, State Highway Commissioner. Stamford, Vt., March 4, 1902. 5 34 STATE OF MICHIGAN Ctnttenden Number. Town. Commissioners. No. of years' service. Miles of road. Five per cent tax paid. "2 '3 A a J | ' o o> W Drainage. o5 1 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 Bolton M. J. Regan 14 4 3 3 8 3 1 1 1 1 2 2 9 3 3 1 2 28 55 76 9 64 13 59 63 45 64 91 59 6 40 30 68 59 56 $89 00 6,611 08 457 84 $166 81 32768 452 79 53 62 381 29 77 45 Burlington. H arold S te vens Charlotte W. C. Scott Winooski Village William Devino Colchester Frank Blakeley 739 55 Essex Junction S. D Teachout Essex . . L. J. Bixby 495 87 381 10 155 12 321 08 401 30 334 76 29 47 534 52 254 41 25049 216 05 40227 351 51 375 33 268 10 381 29 542 16 351 51 35 75 238 31 178 73 405 12 351 51 333 64 Hinesburg J. M. Cassidy Huntington . . A. B. Small Jericho M B Small 70 $12 00 Milton N. E. Pheips . Richmond W. L White 4 17 00 St. George Ira Chase Shelburne W. J. Sheridan "26" 269 00 118 16 South Burlington R. R. Richardson Underbill J P Flynn Westford Fred Or ton Williston Daniel McMahon r Petals 885 $11,773 91 $5,272 00 100 $416 16 A 5% tax in Vermont, based on her grand list is no greater tax than \% would be on Michigan's assessed valuation. HIGHWAY COMMITTEE, 1901-1902. 35 County. Foundation. Surfacing. Compacting and finish- ing. Culverts. Expended in excess of apportionment. Unexpended balance of apportionment. 1 | fc 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 -" I j 0) Si - a ^ "1 1 ca O e*> 3 J 3 i 5 O 3 I o CJ H , 1 en i 1 ,J tn O 105 30H .145 5 64 12 205 421 200 70 117 325 15 14 26 13 12 11 18 14 8 15 12 12 8 15 8 10 12 5 15 12 7 8 12 6 12 5 $17060 868 40 225 00 71 15 153 85 226 65 51850 375 00 234 35 143 20 332 25 151 50 16 00 $3 19 54032 82 21 17 53 1050 357 85 376 99 Per 125 man 16 ent 18 $41000 62 12 70 50 10 70 56 25 13 40 10 35 48 112 10 18 13 10 12 13 12 12 10 10 12 11 10 10 9 10 15 8 24 18 10 22 8 12 8 12 12 8 208 57 126 65 21000 150 00 3375 223 30 24480 200 95 30 00 269 00 5004 87 49 23540 206 95 .2 $10 50 - 1 $18 87 $15 00 164 67 3 11 1 4 24 25 76 00 6 75 12 00 21 46 66 89 89 69 2225 30 69 56 52 3 56 13 50 5 16 00 10 103 68 112 12 14 15 12 8 14 8 8 67 45 289 63 136 40 186 95 1 14 50 2 28 00 20 29 84 26 1 24 00 738 - .... 12,687 80 2,007}/ s $4,16628 $31 50 24 $181 50 7 $49 37 $1,945 31 36 STATE OF MICHIGAN CONNECTICUT PLAN. I beg to call your attention, first, to the fact that this law was enacted by a unanimous vote. This was a remarkable proceeding, but it simply shows what the pre- vailing sentiment is in regard to permanent inter-town roads in that eastern portion of our country. Most remarkable on account of the fact that while the State pays either two-thirds or three-fourths of the expense of building these State roads, that the senators and representatives from the cities and villages should unanimously vote to tax their districts to build inter-town roads. The Connecticut plan is like the Vermont, only more so, that of the rich towns, cities and corporations aiding the poorer towns, and because they believe that the benefits of inter-town roads are commensurate with the expense of securing them. It is certain that if the farms of New England can stand the necessary tax to build permanent roads with the assistance of that which comes from the cities, villages and corporations, Michigan farms can. We have no more miles of road in a town on the average than they, yet we have many times more of acres of productive land and also much more productive, which makes more to transport, and more need of good roads and more saved by having them. CONNECTICUT ROAD LAW. CHAPTER CLXXV AN ACT TO PROVIDE FOR THE IMPROVEMENT OF PUBLIC ROADS. General Assembly, January Session, A. D. 1899. Be it enacted ~by the Senate and House of Representatives in General Assembly convened: SECTION 1. There shall be appointed by the Governor, with the advice and consent of the Senate, before the rising of this General Assembly, and every four years thereafter, on or before May first, a highway com- missioner, who shall hold office for four years from the first day of July next succeeding his appointment and until his successor is chosen and qualified. If any vacancy occur the Governor shall appoint a highway commissioner to fill such vacancy until the rising of the next succeeding General Assembly. SEC. 2. The commissioner shall be a capable and experienced road- builder, and shall receive an annual salary of three thousand dollars, and shall be allowed his actual traveling expenses while officially employed, not to exceed seven hundred and fifty dollars in any one year, and shall HIGHWAY COMMITTEE, 1901-1902. 37 be allowed his office expenses, not to exceed three thousand dollars in any one year. SEC. 3. The comptroller shall furnish the commissioner with a suit- able office at the capitol, with the necessary furniture and stationery for the same, where his records shall be preserved and which office shall be kept open at such times as the business of the commissioner shall require. SEC 4. The commissioner shall keep a record of all proceedings and orders pertaining to the matters under his direction, and copies of all plans, specifications and estimates submitted to him. The commissioner shall prepare and submit to the General Assembly an annual report of his doings. SEC. 5. Whenever any town shall have declared its intention to build a public road or section thereof, within such town, or to improve the same, under the provisions of this act, the selectmen of such town, with the approval of the highway commissioner, shall select a highway or por- tion thereof to be so built or improved and shall cause all necessary sur- veys to be made and submit the same to the highway commissioner for ap- proval. Specifications shall be prepared by the highway commissioner, and shall require the construction of a macadamized, or Telford or other stone road, or other road satisfactory to the highway commissioner and the selectmen of the town in which the. road is to be constructed, and shall be so prepared that an approximate estimate of the cost of the pro- posed improvement can be ascertained. For improvements to cost five hundred dollars or less it shall be discretionary with the commissioner to allow the town to do the work without competition; but where the cost of the improvement is to be over five hundred dollars, it shall be the duty of the board of selectmen, after the approval of the plans by the commissioner, to advertise in two daily newspapers having a circulation in the county in which such town is located, for a period of one week for bids to do the work, according to the plans and specifications prepared. Such advertisements shall state the place where the bidder can see the plans and specifications, and the amount of a bond which must accom- pany a bid, and shall name the place where the selectmen will meet to receive bids and the time for opening the same. Every such bid shall be accompanied with a bond signed by the bidder and one or more sureties satisfactory to the selectmen, in such sum, not less than one-third of the cost of the construction of the work, as the selectmen shall determine, conditioned that, if the contract shall be awarded to the bidder, he will, when required by the selectmen, execute an agreement in writing to per- form the work according to said plans and specifications. All bids so submitted shall be immediately and publicly read at the time for open- ing the same, as stated in said advertisements, and referred to the high- way commissioner for his approval. The selectmen and the commissioner shall have the right to reject any or all bids, if, in their opinion, good cause exists therefor, but otherwise they shall award the contract to the lowest bidder. The successful bidder shall give satisfactory evidence of his ability to perform the contract and shall also furnish a bond for one- third of the amount of the cost of construction of the work, conditioned that the work shall be performed in accordance with the plans and speci- fications and terms of the contract, and no member of the firm bidding on the work shall be accepted as a bondsman. When the contract is executed by the selectmen, the highway commissioner, and the successful bidder 38 STATE OF MICHIGAN a copy of the contract, with an estimated cost of the work, shall be forth- with filed with the highway commissioner. Whenever the selectmen of any town shall desire in behalf of such town to do the work of improving a public road under the provisions of this act they shall submit their bids to the highway commissioner at least one day prior to the day speci- fied for the opening of the other bids, as stated in the advertisement for bids; and all bids submitted in behalf of towns shall be subject to the requirements made and provided for in this act. No bids in behalf of towns shall be opened by the highway commissioner until after the other bids for the same work shall have been publicly opened and read by the selectmen, as required by this act, and forwarded to said commissioner. If the highway commissioner shall find, from the bids so submitted, that the bid in behalf of the town is the lowest, the commissioner shall there- upon award the contract to such town, whereupon the selectmen shall forthwith file with the highway commissioner a statement setting forth the work to be done and the estimated cost of the same, and they shall fulfill all the requirements and terms of the specifications, according to the plans for said work under which their bid was submitted. SEC. 6. Whenever any road shall be constructed in any town having a grand list of over one million dollars, two-thirds of the cost of such con- struction shall be paid for out of the state treasury to such town, and whenever any road shall be constructed under this act in any town having a grand list of one million dollars or less, three-fourths of the cost of such construction shall be paid as aforesaid out of the state treasury, and the basis of award shall be the grand list last made and completed as revised by the Board of Equalization; but the whole amount so paid by the state shall not, in any one year, exceed the sum of one hundred and seventy-five thousand dollars. SEC. 7. Any town with the consent of the highway commissioner may use the full amount of the appropriation of such town for the cur- rent and next ensuing year, whenever such town shall advance to the contractor the money required for the payment of that portion of the ap- propriation which otherwise would have been made in the second year. In such a case the state appropriation shall be divided and paid by the state, as though said work had been done in the two years under separate appropriations. SEC. 8. When a road has been constructed in any town under this act such town shall thereafter keep such road in proper repair, to the ac- ceptance of the highway commissioner, and in case of neglect to make such repairs, after one month's notice by the highway commissioner, that such road is in need of repairs, the commissioner is authorized to make such repairs as may be required, and such town shall pay the cost of the same. SEC. 9. The highway commissioner may appoint inspectors, if he deem it necessary, to supervise the construction of all roads built under this act, and shall prescribe the salaries which such inspectors shall receive; but the salaries and expenses -of said inspectors shall not exceed six thousand dollars in any one year and shall be paid by the state from the annual appropriation provided for in section six of this act. The in- spectors shall require all provisions of the contracts and specifications to be strictly adhered to by the contractors, and, immediately after the completion of each contract, and before the state appropriation is paid, HIGHWAY COMMITTEE, 1901-1902. 39 the inspectors shall make oath that all plans have been completed ac- cording to contract. SEC. 10. A certificate of the cost of every road constructed under this act shall be filed with the highway commissioner by the selectmen or by the authorized authority over the work of the town in which such road shall have been constructed, and the highway commissioner shall, between December fifteenth and thirty-first in each year, certify to the comptroller the amounts to be paid to each town for such year, and the comptroller shall thereupon draw his orders on the treasurer in favor of the respective towns, for the sum certified as aforesaid, and the treas- urer shall pay the same out of any money in the treasury not other- wise appropriated; but no order shall be drawn by the comptroller ex- cept upon a certificate of the highway commissioner that the highway for which the payment is called for has been duly inspected and completed according to contract. SEC. 11. If the improvements upon any highway shall not be com- pleted before the close of the season in which they are commenced the highway commissioner may order the same to be completed at the begin- ning of the following season, under the same provisions and conditions, as were existing at the close of the preceding season; and on certificate of the inspector and selectmen, approved by the commissioner, the comp- troller shall draw his order in favor of such town for one-half of the amount that has been paid or is due from such town to the contractor at the time of the closing up of the work, and when said improvements are completed as ordered, said highway commissioner may make such cer- tificates thereto as are required by the act in other cases, and the cost of making said improvements shall be charged, reckoned, and paid for as though they were completed in the year in which they were commenced. SEC. 12. Xo sum exceeding in the aggregate forty-five hundred dollars shall be expended in any one tow T n in any one year under the provisions of this act. SEC. 13. The term "public roads" as used in this act shall be con- strued to mean and include only the main highways leading from one town to another. SEC. 15. This act shall take effect from its passage. This bill unanimously passed the House and the Senate. Owing to the many calls for state money the committee on appropriations felt compelled to reduce the appropriation recommended by the committee on roads, bridges and rivers. Immediately after the bill had received the signature of the Governor it was printed and sent to every town in the state. Accompanying the bill was the following circular letter: "Hartford, June 16th, 1899. "Board of Selectmen, Town of "Gentlemen : "I enclose you with this communication the new law, en- titled 'An Act to Provide for the Improvement of Public Roads.' "In very many respects it is superior to other laws under which the improvement of roads have been made. I would respectfully ask you to note all its provisions, as they differ very materially from the other laws. 40 , STATE OF MICHIGAN It will be necessary for your town if it desires to participate in state aid to comply with all its provisions. "It is my purpose, so far as possible, to attend town meetings when requested to do so, and explain the new law and the attitude of the state in reference to towns desiring assistance to improve their roads. "The first step for the towns to take is to call a town meeting and make an appropriation sufficient to cover not only the amount to be spent on the part of the town, but also the amount that the state will allot ; for the simple reason that the state will not reimburse the towns until Decem- ber, and the contractor will have to be paid when the contract is finished. In other words, if your grand list is over Dne million dollars and your town -desires to expend $1,500, the state will contribute $3,000; it will be necessary for your vote, however, to be $4,500, as the state contributes to all towns having a grand list of over one million dollars, two-thirds. But if on the other hand your grand list be one million dollars and under the state will contribute three-quarters; in other words, if your town wishes to appropriate from the town treasury $1,000 the state will con- tribute $3,000, but your vote would have to read $4,000. These are only examples, however, and it is a difficult matter to say if the maximum amount of $4,500 under this law will be available. This can only be de- termined after the number of towns applying for state aid has been dis- closed on the final day on which all applications have to be filed, and so that all towns may have ample opportunity to apply. I will appoint the first day of August, 1899, as the final day on which the towns may apply. This will give ample time for the towns to take advantage of the new law, if they so desire. "I would respectfully call the attention of towns who have not as yet taken advantage of state aid that this law has been drawn to especially overcome some of the objections or hindrances that were found to exist in the old laws. In the first place, increased liberal allowance to towns that are not financially strong. I do not believe that there is a good roads law in force in any state that is more fair in its treatment of the poorer towns than this law. No matter how poor the town may be financially this law is drawn to meet its condition. The attitude of the state will be to encourage, by as wide a latitude as possible, the parti- cipation of any town that desires to take advantage of state assistance. "The message of the Governor very plainly called the attention of the Legislature to a broad and liberal treatment of the poor towns of the state. The committee on good roads, after two years' investigation, in their report recommended to the Legislature a policy to pursue ; and the committee on roads, bridges and rivers of the present Legislature re- ported the present bill and the House and Senate unanimously passed it, and it is the intention of the commissioner in carrying out the letter of the law to broadly interpret its spirit in the interest of the towns that may desire to work under its provision. "A wise provision is embodied in this law, namely, all towns who only desire a small appropriation, not exceeding $500, to make some improvement on their roads, the commissioner has discretionary power to let the contract direct to the towns without competition from out- side parties. "This feature of the bill should be very popular and taken advantage of by many towns. Oftentimes a great deal of good can be done, as has BOARD OF SUPERVISORS ON TOUR OF INSPECTION, MENOMINEE COUNTY. SECTION OF FINISHED STONE ROAD, MENOMINEE COUNTY SYSTEM. HIGHWAY COMMITTEE, 1901-l!u 41 been demonstrated in the past, by the intelligent use of a few hundred dollars. "The season for road building is well advanced, and some of the towns in the state may feel that it is too late to take advantage of the appro- priation this year, as the work cannot be finished before the season closes. I do not think it would be wise on this account for any town to neglect to take advantage of the law upon this ground, first, because of the fact there is a loss of the appropriation, and second, the law provides that 'if the improvements upon any highway shall be completed before the close of the season in which they are commenced the highway com- missioner may order the same to be completed at the beginning of the following season,' and also provides for the payment of the money allot- ted, as though they were completed in the year in which they were com- menced. While the law limits towns to the maximum amount of $4,500, the law does not limit any town in the state in making any appropriation below this amount, whether it be one dollar or one thousand dollars. "The reason for placing the maximum amount at f 4,500 was that the financially strong towns could not exhaust the appropriation to the detriment of the towns not financially strong. "I append a list of all towns in the state with an apportionment made in accordance with the report of the board of equalization. This report is the last one made by the board, and will be the basis of ap- portionment by the state. "You will notice this law encourages towns to continue the policy of the state begun two years ago, to reduce the grades found on many of our roads. A special effort being made in this direction in 1897, in which twenty-three towns accepted a small appropriation to reduce the grades existing on their roads. "The result accomplished in this branch of the work was found to be very satisfactory, and it is the purpose of the commissioner to call special attention to this important and very necessary branch of road im- provement. Very many of our towns cannot afford to put in an expensive system of road improvement, while on the other hand there is no good reason why any town, no matter. how low the funds of the town may be, but what can take advantage of the present law to reclaim springy pieces of roads, clean out boulders in the traveled part of the road, and also out of the margins and widen out the road, thus allowing for proper drainage and convenience and comfort in traveling, also remove one of the greatest evils found in the state, unnecessary hill climbing. "In nearly every town in the state the main roads leading from one town to another have a great many unnecessary lifts in the road that can be removed with very little expense. This important part of the work has been sadly neglected and no perfect system of roads can ever be accomplished until our roads have been graded properly and these mole hills subdued so as to provide proper drainage and easement to travel. "No branch of road construction is so important as this one and no part of the work so little thought about or so much neglected. We liavo become so accustomed to the up and down hill course of the average road that we have learned to tolerate this condition of affairs as a necessary evil. "The new law was designed to open the door to future road improve- ment to all towns who desire to use state money as wide as possible, so 6 42 STATE OF MICHIGAN that towns may have the privilege of using state money in grading the roads of the state properly. "You will notice that Sec. 5 from line nine to line fourteen, reads as follows: 'Specifications shall be prepared by the highway commis- sioner and shall require the construction of a macadamized, or Telford, or other stone road, or other road satisfactory to the highway commis- sioner.' "The attitude of the state in interpreting this clause in the law will be to allow the widest range possible in road improvement, consistent with good, substantial, economical road improvement, leading up to the ultimate perfection of a first-class road system in the state of Con- necticut. "The specifications will be so drawn that the simplest form of intel- ligent road treatment may be had, so as to continue on the policy so well begun during the last three years of making good roads without bank- rupting either the state or the town. "Before taking a vote in your town perhaps it would be well to call your attention to one very important clause in the bill, for it may have some bearing upon the appropriations some of the towns may make. "You will notice in Section 7, that any town may use the appropri- ation for the current and also for the next ensuing year. This is a new feature and will be very helpful not only in its tendency to reduce the contract price for the work but also giving the traveling public and the people of the towns an earlier use of the road than under the old law. It will also remove, in a very marked degree, an evil that has existed of dividing an already too small appropriation in the interest of 'keep- ing peace in the family/ as is often done by the towns. "I presume that in the interest of harmony, that notwithstanding the fact of an increased appropriation, that the appropriation may still be divided, one half going to one part of the town and the other half to be used in some other place. This cannot very well be stopped, but will readily adjust itself as we make progress in road improvement through- out the state. "This circular is only intended to furnish information relative to what is necessary to be done by the towns of the State to participate in the allotment of the money appropriated by the State. "This circular letter will be followed by others at the proper time. I also enclose a form of application which you will kindly fill out and return to my office, together with the vote of the town. "When the application is received, it will be placed on file, and when the allotment is made, your town will receive due notice of the amount appropriated by the State, and full particulars how to proceed further. "If this communication is not clear, I shall be very much pleased to have you write me and I will try and furnish further information when desired. "Very respectfully yours, "JAMES H. MAcDONALD, "Highway Commissioner" HIGHWAY COMMITTEE, 1901-1902. 43 CONNECTICUT SPECIFICATIONS FOR THE IMPROVEMENT OF PUBLIC ROADS. The following forms of specifications for macadam, gravel, and grading construction, are those in most general use by the State, in the conduct of its work for the improvement of public roads : MACADAM SPECIFICATION. SPECIFICATION for the Construction of a Macadam Road in the Town of in County. DESCRIPTION. This specification embraces the Improvements contemplated on the road in the Town of from to a distance of about Lineal feet, or so much thereof as the sum of Dollars will pay for, or the Selectmen and Highway Commissioner may order to be done on said road (the Selectmen and Highway Commissioner reserving the right to in- crease or diminish the amount of work to be done). LABOR, MATERIAL, ETC. The Contractor is to furnish all labor and materials, together with all tools and implements necessary to carry out the provisions of these speci- fications and in accordance with the plans for the above described road, all work to be done to the satisfaction of the Connecticut Highway Com- missioner. ENGINEER'S WORK. The Engineer furnished by the town shall establish lines and grades, at convenient points along said road, before the Contractor commences work, for the guidance of the Contractor. The Engineer shall verify the grades from time to time as may be necessary, and also replace what- ever stakes may be destroyed by the Contractor while in prosecution of the work. The Contractor, however, shall take all possible care to pre- serve the stakes set by the Engineer. GRADING. The Contractor will do all grading that may be necessary, either by cutting or filling as the case may be. If there is a surplus of material it shall be placed in the embankments, or on the sides of the road, or at such places as the Selectmen may designate. If there is not material enough to do the grading required to bring the sub-grade to the height required, the Contractor shall furnish sufficient to do what is necessary to conform 44 STATE OF MICHIGAN to the established grade for the road and embankments, etc. The Con- tractor shall remove all loam, roots and vegetable matter from the pro- posed traveled part of the road, and also everything of a spongy nature, or anything found in excavating for said roadway that will be liable to heave, or settle, and fill in all such places with clean sand or gravel, free from loam. In all cases where the earth fill exceeds one foot in depth, the filling shall be deposited in courses not to exceed twelve inches loose measure- ment. And each course shall be carried across the entire fill and com- pleted before commencing another, and this method shall be followed with each succeeding course until the established grade is reached. If rock is found in any part of the cut it can be placed in the fill, pro- viding it does not come within one foot of the top of the finished road; also if rock is used for filling, no large stones will be allowed in nests, but must be distributed over the area so as to avoid pockets for the top course to sift through. In all rock cuts the rock shall be removed at least one foot below the finished grade of the road. The Contractor will not be allowed to dump rock overboard indiscrimi- nately. All rock shall be placed in the fill so far as the fill will allow. Where there is a surplus of rock it shall be put on the outside of the embankments with neatness, so as to leave the fill with a view to future improvements of the road. No unsightly nests of large stone will be al- lowed on margins in the fills. The Contractor shall excavate for all ditches, and properly shape all slopes to conform to the plans made for the proposed work, and remove all stumps. He shall make all shoulders and shall form all slopes. All surplus material shall be carted off before commencing to put in the stone for the road. ROAD-BED. Great care must be taken to follow closely the above described treat- ment in the grading for the earth road-bed. After all cutting or filling has been done to bring the road-bed to the established sub-grade, the sur- face must be firmly and evenly rolled' so that it will sustain the weight of stone to be placed on it without settling. All places that may shrink while in the process of rolling, must be filled and rolled again, until the whole sub-foundation is brought up to, and even with all established lines for sub-grade. The sub-grade must be identical in form with, and have the same crown as the finished grade of road. The edges of road shall be cut true to the line established by the Engineer. COURSES OP STONE. There shall be two courses of broken stones, under finishing course; first course to be four inches, and second course to be two inches over all when rolled, no allowance to be made for settling. COURSES,, HOW APPLIED. The stone shall be dumped on the side of the road where it is possible, if not, they can be dumped on the side of the road-bed and scattered with HIGHWAY COMMITTEE, 1901-1902. 45 shovels. The reason for this is that the stone will have a uniform pres- sure in rolling. If a patent spreading wagon is used by the Contractor, it will not be necessary to dump the stone, but they can be spread by the wagon. After stone has been spread for the first course, sufficient to roll down to four inches, a roller shall be run over the stones, a sufficient number of times to make this course solid and firm, after which the sec- ond course of two inches will be applied in the same manner as specified for the first course, and also receive the same roller treatment as the first course. If in the putting on of either course any settling is found, all such places must be brought up to grade level before any other course is commenced. In the rolling of these courses the roller work must be continued until the broken stone settles down into a firm and solid com- pact condition. FINISHING COURSE. This course shall be one-inch thick when finished. Trap rock screen- ings including dust (no screenings larger than one-half inch stone will be allowed) will be used as a finishing course. The screenings (after the rolling has been done on the last course of broken stone), shall be carted on the sides of the road proper and dumped, at suitable intervals, after which all wheel and foot marks of horses shall be carefully filled and then rolled down firmly. Then the screenings shall be scattered dry over the surface so as to fill all interstices, then the roller shall be run over the surface to shake in the dust. Immediately after, a sprinkling cart shall be used and the screenings washed in, after which more screen- ings must be added and sprinkled and rolled again, and the screenings, sprinkling and rolling must be continued until all the coarse stones have been covered, and interstices completely filled and the road is firm and smooth and will shed water, and measure up one-inch of screenings for wearing surface. The Contractor will not be allowed to put on the screenings all at one time, but must put them on as described above and will not be allowed to deviate from the above treatment in any way. The Contractor must not wet the screenings before they have been scattered on the broken stone. The screenings must be perfectly dry before they are put on the road. DIMENSIONS OF BROKEN STONE. The stone for the first course for the road shall be from three-fourths of an inch to two inches, mixed in the screens (not in the bins), the smaller sizes to predominate. The stone for the second course shall be from one-inch to one and one-half inches longest diameter (in either courses no tailings shall be used) . In the second course no stone smaller than one-inch nor larger than one and one-half inches will be allowed. KIND OF STONE. Unless otherwise specified, Trap Rock will be required. 46 STATE OP MICHIGAN SHOULDERS. Shoulders must be feet wide on each side of the road, except in the fills of three feet and over where the shoulders shall be one foot wider. If the shouldrs are made by filling, the material must be first class and thoroughly rammed and rolled so as to prevent washing or breaking down. No roots, stumps, or other material not suitable to make a firm and durable shoulder, will be accepted. In no case must shoulders be higher than the edge of the finished road. GUTTERS. Cobble gutters shall be laid from Station Number, to Station Number . The cobbles to be used must be good, hard, sound stone (no rotten stone allowed). Medium sized stone not over five-inch face on its longest di- ameter, except for centers or sides where eight-inch cobbles may be used. All cobbles shall be laid with their longest diameter in the direction of the flow of water. The cobbles must be bedded in not less than six inches of good, sharp sand or gravel, and thoroughly rammed into shape and place. Sand must be swept off before ramming. All stone broken in ramming must be removed and replaced with perfect stone. All earth gutters shall be carefully made not less than one foot wide at the bottom and be true to grade, and have a true flow line made and carefully pared so as to leave no pockets or loose earth on the bottom. If the natural gutter is low it shall be brought up to grade with good, clean gravel. SLOPES. The grade of slopes in the cut or fill shall be one and one-half hori- zontal to one foot vertical, except in fills of three feet or over where the slope shall be two to one, and where rock is found in the cut the slope shall be one to six. ROLLER TO BE USED. A steam roller, weighing not less than ten tons, must be used on all work or such other roller as may be approved by the Connecticut High- way Commissioner. CULVERTS. DRAINAGE. HIGHWAY COMMITTEE, 1901-1902. 47 GRADES. Cross slope grades shall be five-eighths of one inch to one foot on light grades and on quick descents three-quarter of one inch to one foot. The grade of shoulders will conform to whatever grade is specified for the cross slope grade. SURPLUS MATERIAL. The Contractor shall remove all surplus material, stumps, roots and stones from the side of the road and leave the road in a neat condition. OBLIGATION OF THE CONTRACTOR. The Contractor will be responsible to the Selectmen of the Town of or the Inspector for the faithful performance of all the provisions of these specifications, and to a strict conformity with the Plans made and submitted for the work, also to the Connecticut Highway Commissioner. CROSS SECTION. The Contractor will find a correct drawing of a Cross Section of the proposed road in this specification, and the measurement and details of this drawing must be strictly followed to the letter. DISPUTES. In case of any dispute arising as to the meaning or intention of the Specifications or Plans, the decision of the Connecticut Highway Com- missioner shall be final. WORK DELAYED. In case the work is unnecessarily delayed, and in the opinion of the Selectmen it will not be finished in the prescribed time, the Selectmen are, with the approval of the Highway Commissioner, hereby given the right to stop the work and put other men on the work, and pay for the same out of any money that may be in their hands. FENCES AND SAFEGUARDS. If the Contractor has the right given him to close the road, he shall erect fences at either or both ends of the road, and placard the same, warning all people of the work that is being done. He shall take such other means as are necessary to protect the traveling public from all danger to themselves or their property. 48 STATE OF MICHIGAN DISORDERLY PERSONS. If the Selectmen find any of the men employed on the work unruly or disorderly the Contractor shall discharge them immediately on notifica- tion by the Selectmen. DAMAGE TO PROPERTY. The Contractor shall not break through or go upon any property, either his men or his teams without the consent of the owners, and any damage he may do he shall be held responsible for. DIAGRAM OF CROSS SECTION. LIGHTING WORK. The Contractor shall furnish a sufficient number of red lanterns, which are to be set up along the road at suitable intervals so as to warn the public against all danger. These lanterns shall be kept lighted all night and a man placed in charge of them. LIABILITY OP CONTRACTOR. The Contractor shall assume and be responsible for all accidents that may occur, also be liable for all damage to life or property by reason of carelessness, incompetent help or neglect in the prosecution of this work from the commencement of the contract until its final completion and acceptance by the Connecticut Highway Commissioner. If the work is placed in charge of an Inspector by the Highway Com- missioner, the Inspector will be obeyed by the Contractor without ques- tion or delay, and his orders shall be followed out as given so long as they are in accord with the plans and specifications. EXTRA SCREENINGS. In addition to the material required in other parts of this specifica- tion, the Contractor shall furnish and deliver in the Town of at the place designated by the Selectmen, carloads of screenings, weighing not less than twenty net tons each. These screenings are to be delivered to the town before the final payment is made without any expense to the town. EARLE S GOOD ROADS TRAIN, LOADING IN STREET AT GREENVILLE. GOOD ROADS TRAIN. TRANSPORTING l.0<>0 I'Kol'LK TO SAMPLE ROAD ATrGREENVILLE. HIGHWAY COMMITTEE, 1901-1902. 49 GRAVEL SPECIFICATIONS. SPECIFICATIONS for the Construction of a Gravel Road in the Town of in County. DESCRIPTION. This Specification embraces the Improvements contemplated on the road in the Town of from to a distance of about Lineal feet, or so much thereof as the sum of Dollars will pay for, or the Selectmen and Highway Commissioners may order to be done on said road (the Select- men and Highway Commissioner reserving the right to increase or diminish the amount of work to be done). LABOR, MATERIAL,, ETC. The Contractor is to furnish all labor and materials, together with all tools and implements necessary to carry out the provisions of these specifi- cations and in accordrnce with the plans for the above described road, all work to be done to the satisfaction of the Connecticut Highway Commis- sioner. ENGINEER^ WORK. The Engineer furnished by the town shall establish lines and grades, at convenient points along said road, before the Contractor commences work, for the guidance of the Contractor. The Engineer shall verify the grades from time to time as may be necessary, and also replace whatever stakes may be destroyed by the Contractor while in prosecu- tion of the work. The Contractor, however, shall take all possible care to preserve the stakes set by the Engineer. GRADING. The Contractor will do all grading that may be necessary, either by cutting or filling as the case may be. If there is a surplus of material it shall be placed in the embankments, or on the sides of the road, or at such places as the Selectmen may designate. If there is not material enough to do the grading required to bring the sub-grade to the height required, the Contractor shall furnish sufficient to do what is necessary to conform to the established grade for the road and embankments, etc. The Contractor will removo all loam, roots and vegetable matter from the proposed traveled part of the road, and also everything of a spongy nature, or anything found in excavating for said roadway that will In- liable to heave, or settle, and fill in all such places with clean sand or gravel, free from loam. In all cases where the earth fill exceeds one foot in depth, the filling shall be deposited in courses not to oxceed twolve inches loose measnro- 7 50 STATE OF MICHIGAN ment. Each course shall be carried across the entire fill and completed before commencing another, and this method shall be followed with each succeeding course until the established grade is reached. If rock is found in any part of the cut it can be placed in the fill, pro viding it does not come within one foot of the top of the finished road; also if rock is used for filling, no large stones will be allowed in nests, but must be distributed over the area so as to avoid pockets for the top course to sift through. In all rock cuts the rock shall be removed at lease one foot below the finished grade of the road. The Contractor will not be allowed to dump rock overboard indis- criminately. All rock shall be placed in the fill so far as the fill will allow. Where there is a surplus of rock it shall be put on the outside of the embankments with neatness, so as to leave the fill with a view to future improvements of the road. No unsightly nests of large stone will be allowed on margins in the fills. The Contractor shall excavate for all ditches, and properly shape all slopes to conform to the plans made for the proposed work, and remove all stumps. He shall make all shoulders and shall form all slopes. All surplus material shall be carted off before commencing to put in the gravel for the road. ROAD-BED. Great care must be taken to follow closely the above described treat- ment in the grading for the earth road-bed. After all cutting or filling has been done to bring the road-bed to the established sub-grade, the surface must be firmly and evenly rolled so that it will sustain the weight of gravel to be placed on it without settling. All places that may shrink while in the process of rolling, must be filled and rolled again, until the whole sub-foundation is brought up to, and even with all established lines for sub-grade. The sub-grade must be identical in form with, and have the same crown as the finished grade of road. The edges of road shall be cut true to the line established by the Engineer. COURSES. There shall be three courses, consisting of two courses of three inches and one of two inches after rolling. FIRST AND SECOND COURSES. The first course shall consist of good, clean gravel, not less than eighty per cent, of gravel, the balance, material that will bind, no loam will be allowed. The gravel shall range from pea stone to three inches at its longest diameter. Care must be taken to have the gravel as near uniform in quality as possible, avoiding sand, the small sizes to predominate. The gravel shall be spread on uniformly and rolled down after which a sprinkler shall be used and this course wet down and then rolled again and continue rolling until it is firm and thoroughly compacted. This course shall be three inches when complete after rolling, after which the second course shall be put on and the same method shall be pursued HIGHWAY COMMITTEE, 1901-1902. 51 in its treatment as described for the first course in every particular, ex- cept the size of the gravel shall not be larger than will go through a two- inch screen, and shall receive exactly the same treatment as described for the first course, this course shall be three inches in depth when rolled. FINISHING COURSE. After the Contractor has taken out all foot and wheel marks on the second course and has finished rolling, he shall then put on the last or finishing course which shall consist of sixty per cent, of stone and forty per cent, of binding material. No stone shall exceed one inch largest diameter. This course must be either spread from the wagon with shovels or dumped on the shoulders and spread with shovels. The Con- tractor must not dump the loads of gravel on the road proper. This course after spreading uniformly, shall be wet down and rolled, and the wetting and rolling shall be continued until the road is solid and firm and will not show the mark of hoof or wheel while driving over it. SLOPES. The grade of slopes in the cut or fill shall be one and one-half horizon- tal to one foot vertical, except in fills of % three feet or over where the slope shall be two to one, and where rock is found in the cut the slope shall be one to six. ROLLER TO BE USED. A steam roller, weighing not less than ten tons must be used on all work or such other roller as may be approved by the Connecticut High- way Commissioner. CULVERTS. DRAINAGE GRADES. Cross slope grades shall be three-quarters of one inch to one foot on light grades and on quick descents one inch to one foot. The grade of shoulders shall conform to whatever grade is specified for the cross slope grade. SURPLUS MATERIAL. The Contractor shall remove all surplus material, stumps, roots and stones from the side of the road and leave the road in a neat condition. 52 STATE OF MICHIGAN OBLIGATION OP THE CONTRACTOR. The Contractor will be responsible to the Selectmen of the Town of or the Inspector for the faithful performance of all the provisions of these specifications and to a strict conformity with the plans made and approved for the work, also to the Connecticut Highway Commissioner. CROSS SECTION. The Contractor will find a correct drawing of a Cross Section of the proposed road in this specification, and the measurements and details of this drawing must be strictly followed to the letter. GUTTERS. Cobble gutters shall be laid from Station Number, to Station Number The cobbles to be used must be good, hard sound stone (no rotten stone allowed). Medium sized stone not over five-inch face on its longest diameter must be used except for centers or sides where eight-inch cobbles may be allowed. All cobbles shall be laid with their longest diameter in the direction of the flow of water. The cobbles must be bedded in not less than six inches of good, sharp sand or gravel, and thoroughly rammed into shape and place. Sand must be swept off before ramming. All stone broken in ramming must be removed and replaced with perfect stone. All earth gutters shall be carefully made not less than one foot wide at the bottom, and be true to grade, and have a true flow line made and carefully pared so as to leave no pockets or loose earth on the bottom. If the natural gutter is low it shall be brought up to grade with good, clean gravel. SHOULDERS. Shoulders must be feet wide on each side of the road, except in fills of three feet and over where the shoulders shall be one foot wider. If the shoulders are made by filling, the material must be first- class and thoroughly rammed and rolled so as to prevent washing or breaking down. No roots, stumps, or other material not suitable to make a firm and durable shoulder will be accepted. In no case must shoulders be higher than the edge of the finished road. LIGHTING WORK. The Contractor shall furnish a sufficient number of red lanterns, which are to be set up along the road at suitable intervals so as to warn the public against all danger. These lanterns shall be kept lighted all night, and a man placed in charge of them. HIGHWAY COMMITTEE, 1901-1902. 53 DISPUTES. In case of any dispute arising as to the meaning or intention of the Specifications or Plans, the decision of the Connecticut Highway Com- missioner shall be final. WORK DELAYED. In case the work is unnecessarily delayed, and in the opinion of the Selectmen it will not be finished in the prescribed time, the Selectmen are, with approval of the Highway Commissioner, hereby given the right to stop the work and put other men on the work, and pay for the same out of any money that may be in their hands. FENCES AND SAFEGUARDS. If the Contractor has the right given him to close the road, he shall erect fences at either or both ends of the road, and placard the same, warning all people of the work that is being done. He shall take such other means as are necessary to protect the traveling public from all danger to themselves or their property. DISORDERLY PERSONS. If the Selectmen find any of the men employed on the work unruly or disorderly the Contractor shall discharge them immediately on notifica- tion by the Selectmen. DAMAGE TO PROPERTY. The Contractor shall not break through or go upon any property, either his men or his teams without the consent of the owners, and any damage he may do he shall be held responsible for. LIABILITY OF CONTRACTORS. The Contractor shall assume and be responsible for all accidents that may occur, also be liable for all damage to life or property by reason of carelessness, incompetent help or neglect in the prosecution of this work from the commencement of the contract until its final completion and acceptance by the Connecticut Highway Commissioner. If the work is placed in charge of an Inspector by the Highway Commis- sioner, the Inspector will be obeyed by the Contractor without question or delay, and his orders shall be followed out as given so long as they are in accord with the plans and specifications. 54 STATE OF MICHIGAN GRADING SPECIFICATION. SPECIFICATION for the Grading and Construction of a Road in the Town of in County. DESCRIPTION. This Specification embraces the Improvement contemplated on the road in the Town of from to a distance of about Lineal feet, or so much thereof as the sum of Dollars will pay for, or .the Selectmen and Highway Commissioner may order to be done on said road (the Select- men and Highway Commissioner reserving the right to increase or diminish the amount of work to be done). LABOR, MATERIAL, ETC. The Contractor is to furnish all labor and materials, together with all tools and implements necessary to carry out the provisions of these specifications and in accordance with the plans for the above described road, all work to be done to the satisfaction of the Connecticut High- way Commissioner. ENGINEER'S WORK. The Engineer furnished by the town shall establish lines and grades, at convenient points along said road, before the Contractor commences work, for the guidance of the Contractor. The Engineer shall verify the grades from time to time as may be necessary, and also replace whatever stakes may be destroyed by the Contractor while in prosecution of the work. The Contractor, however, shall take all possible care to preserve the stakes set by the Engineer. GRADING. The Contractor will do all grading that may be necessary, either by cutting or filling as the case may be, to bring the road to conform to the plans and in accordance with these specifications. If in excavating, any material suitable for making top dressing is found, it shall be put one side and used for surface hardening by the Contractor, to a depth of six inches. In all cases where the earth fill exceeds one foot in depth, the filling shall be deposited in courses not to exceed twelve inches loose measure- ment. And each course shall be carried across the entire fill and com- pleted before commencing another, and this method shall be followed with each succeeding course until the established grade is reached. If rock is found in any part of the cut it can be placed in the fill, providing it does not come within one foot of the top of the finished road; also if rock is used for filling, no large stones will be allowed in nests, but must HIGHWAY COMMITTEE, 1901-1902. 55 be distributed over the area so as to avoid pockets for the top course to sift through. The Contractor will not be allowed to dump rock over board indis- criminately. All rock shall be placed in the fill so far as the fill will allow. Where there is a surplus of rock it shall be put on the outside of the embankments with neatness, so as to leave the fill with a view to future improvements of road. No unsightly nests of large stone will be allowed on margins in the fills. SLOPES. The grade of slopes in the cut or fill shall be one and one-half horizontal to one foot vertical, except in fills of three feet or over where the slope shall be two to one and where rock is found in the cut the slope shall be one to six. ROLLER TO BE USED. A steam roller, weighing not less than ten tons must be used on all work or such other as may be approved by the Connecticut Highway Commissioner. CULVERTS. DRAINAGE. GRADES. Cross slope grades shall be three-quarters of one inch to one foot on light grades, and on quick descents one inch to one foot. The grade of shoulders will conform to whatever grade is specified for the cross slope grade. SURPLUS MATERIAL. The Contractor shall remove all surplus material, stumps, roots and stones from the side of the road and leave the road in a neat condition. OBLIGATION OF THE CONTRACTOR. The Contractor will be responsible to the Selectmen of the Town of and the Connecticut Highway Commissioner for the faithful performance of all the provisions of these specifications and to a strict conformity with the plans made and approved for the work. 56 STATE OF MICHIGAN CROSS SECTION. The Contractor will find a correct drawing of a Cross Section of the pro- posed road in this specification, and the measurements and details of this drawing must be strictly followed to the letter. GUTTERS. All earth gutters shall be carefully made not less than one foot wide at the bottom, and be. true to grade, and have a true flow line made and carefully pared so as to leave no pockets or loose earth on the bottom. If the natural gutter is low it shall be brought up to grade with good, clean gravel. SHOULDERS. Shoulders must be feet wide on each side of the road, except in fills of three feet and over where the shoulders shall be one foot wide. If the shoulders are made by filling, the material must be first- class and thoroughly rammed and rolled so as to prevent washing or breaking down. No roots, stumps, or other material not suitable to make a firm and durable shoulder will be accepted. In no case must shoulders be higher than the edge of the finished road. LIGHTING WORK. The Contractor shall furnish a sufficient number of red lanterns, which are to be set up along the road at suitable intervals so as to warn the public against all danger. These lanterns shall be kept lighted all night, and a man placed in charge of them. DISPUTES. In case of any dispute arising as to the meaning or intention of the Specifications or Plans, the decision of the Connecticut Highway Com- missioner shall be final. WORK DELAYED. In case the work is unnecessarily delayed, and in the opinion of the Selectmen it will not be finished in the prescribed time, the Selectmen are, with approval of the Highway Commissioner, hereby given the right to stop the work and put other men on the work, and pay for the same out of any money that may be in their hands. FENCES AND SAFEGUARDS. If the Contractor has the right given him to close the road, he shall erect fences at either or both ends of the road, and placard the same, warning all people of the work that is being done. He shall take such other means as are necessary to protect the traveling public from all danger to themselves or their property. LOADING SPREADING WAGONS, AT GREENVILLE EXPOSITION. THE ECONOMY ROAD MACHINERY PLANT, USED BY STATE HIGHWAY COMMISSION. HIGHWAY COMMITTEE, 1901-1902. 57 DISORDERLY PERSONS. If the Selectmen find any of the men employed on the work unruly or disorderly the Contractor shall discharge them immediately on notifica- tion by the Selectmen. DAMAGE TO PROPERTY. The Contractor shall not break through or go upon any property, either his men or his teams without the consent of the owners, and any damage he may do he shall be held responsible for. LIABILITY OF CONTRACTORS. The Contractor shall assume and be responsible for all accidents that may occur, also be liable for all damage to life or property by reason of carelessness, incompetent help or neglect in the prosecution of this work from the commencement of the contract until its final completion and acceptance by the Connecticut Highway Commissioner. If the work is placed in charge of an Inspector by the Highway Commis- sioner, the Inspector will be obeyed by the Contractor without question or delay, and his orders shall be followed out as given so long as they are in accord with the plans and specifications. SUMMARY OF WHAT SOME STATES HAVE DONE THIS YEAR FOR PERMANENT GRAVEL AND STONE ROADS. State. 1902. County or Town. Vermont Connecticut New Jersey Massachusetts New York California 1,967,426 8 Total. 189,000 $89,000 175,000 175,000 250,000 200,000 400,000 600,000 500,000 500,000 800,000 800,000 1,600,000 ,967,426 1,967,426 RECOMMENDATIONS OF MICHIGAN HIGHWAY COMMITTEE HIGHWAY COMMITTEE, 1901-1902 61 RECOMMENDATIONS. WHEREAS, We are, after due investigation, convinced that a large part of the tax both of labor and money, for building and mending highways is misspent, not wilfully, but on account of the fact that highway com- missioners and overseers lack information, regarding modern scientific methods of building and improving highways, and WHEREAS, We have found that there is a great desire on the part of these officials to obtain the necessary information, that they may be- come efficient in methods of highway improvement, all talk to the contrary notwithstanding, therefore, Resolved, That the Legislature of 1903 should establish a highway commission to be composed of three men, all practical road builders, one to be appointed from the Upper Peninsula, and two from the Lower Peninsula. They to receive $5.00 per day and expenses while actually engaged in the work of the commission. They to employ a secretary. not of their number and who shall not be a member of the board, also a civil engineer and such other help as may be necessary to carry on the work of the commission. The civil engineer to be subject to the call of any locality to give ex- pert advice where $500 or more is to be expended in permanent improve- ment of the public highways or bridges. The secretary to attend to all correspondence as directed by the board and to keep a history of all proceedings, collect all information possible about road building material, where located, the quality, cost of rail- road or other transportation of this material to other parts of the State. Collect names of civil engineers and expert road builders to the end, that localities needing such services, may be informed, in fact, practi- cally running a good roads information bureau, for the benefit of the whole State. The commissioners should be compelled by law to hold at least one public meeting in each county of the State each year, at Which meeting, roads and how to build and mend them should be the only subject. Road builders and menders institutes they should be, in name and in fact. WHEREAS, All of the eastern states have passed state aid laws, no two states alike, yet all are working admirably, and all classes of tax payers are outspoken in praise of the plan, and WHEREAS, All citizens have an equal right to use the highways of the State, and inter-town, or commonly called, through roads are used largely by a journeying or by sojourning people, and WHEREAS. This committee finds that there is a large sentiment for State aid, whether in majority or not the committee is unable to decide, and WHEREAS, No State aid can be granted for the improvement of high- ways in Michigan, until Section 9 of Chapter 14 of the Constitution is changed, and 62 STATE OF MICHIGAN WHEREAS,, Societies, farm clubs, business men's acsociations, boards of supervisors, township boards, and thousands of individuals have asked for a privilege to vote on this question, therefore, Resolved, That it is the duty of the Legislature to pass the necessary concurrent resolution that will permit the electors at their next regular election to vote whether they wish to change the Constitution so that all shall share in building permanent through roads, or whether they wish it to remain as it now is, so that only 5-13 of the assessed valua- tion, namely, the farm property, only of the State pays any tax for road building or mending, while owners of all property are benefitted by the using. Resolved, That if at the spring election the people do vote to change the Constitution, that the Legislature should investigate the State Aid laws of New Jersey, New York, Connecticut, Maine and Vermont, particularly the latter, and if deemed wise pass the necessary laws to enable Michigan to take a stand among other up-to-date states on this question, so that within a few years it shall not be true if said, "can tell by the bad roads when we get to Michigan." WHEREAS, At the present time any township that desires to build per- manent highways and to raise money by bonding the township, must ask the legislature for the privilege, which is against home rule, so much called for, and WHEREAS, The township must first vote to ask the Legislature which shows the will of the electors of such township, and such requests are always granted by the legislature; then the township is subjected to the trouble and expense of taking another vote of the electors whether they will bond or not, which is useless, for the first vote indicates the prevailing will of the electors. This not only subjects the township to twice or three times as much expense as is necessary, but it subjects the whole State to expense, for this local matter must occupy the time of all the legislators, the bill be printed at the expense of the State and then engrossed at the expense of the State, and then printed a third time in the local acts, at the expense of the State, and probably a lobby to the legislature, to make sure of its passage, at the expense of the town- ship, therefore Resolved. That it is the duty of the legislature to pass an act giving to any township in the State, the right to bond for the purpose of build- ing permanent Jiighways to any amount not to exceed three per cent of its valuation, according to the last equalization of the supervisors. Home rule to townships with a reasonable limit, yet this committee or any member thereof, is not advocating bonds, all reports to the con- trary notwithstanding. NEEDS AND RECOMMENDATIONS CONDENSED. The Michigan Highway Committee at their last meeting, held at Lan- sing, December 9, 1902, adopted resolutions, unanimously favoring the following : Education on how to build and maintain roads is needed. That this can be best done by a State Highway Commission. Then one ought to be created and supported by the state. That the next Legislature should establish it. HIGHWAY COMMITTEE, 1901-1902. 63 That this commission should be compelled by law to hold one Road Builder's and Mender's Institute in each county every year, to teach road commissioners and overseers how to build and repair. That they should be subject to call from any township in the State, to give expert advice on how to build roads and bridges, and without charge. That they should run, practically, a good roads information bureau, furnishing information about material, transportation, and everything necessary for townships to know, and free. That townships have as good a claim to home rule as cities. Then townships should have a right to build good roads and raise money to pay for them, when their electors vote to do so, up to a reason- able limit, without having to ask the legislature for the privilege, how- ever, this committee are not advocating bonds. That as all have a right to and do use the public highways, all prop- erty should pay something toward the building and repairing inter-town permanent roads. That the rich town or city has got to help the poor town on inter-town roads or there never will be any. In Michigan at the present time, 5-13 only of the property pays any tax to build or repair the highways, namely farm property. That it is as equitable for the village, city or corporation property to pay toward the roads that all use, as it is for the farm property to pay toward the colleges, the asylums and the reformatories that only a few use and the farmer the least of all. But, nothing can be done toward State aid until the constitution is changed. It ought to be changed, and at once. The Legislature should submit the changing of it to the electors at their next opportunity. The section that forbids any State aid for highways is given below in small type, and the words that ought to be inserted are given between the brackets in capitals. Sec. 9 of Art 14 ; "The State shall not be a party to or interested in any work or internal improvement, nor engaged in carrying on any such work, except [IN THE IMPROVEMENT OF PUBLIC HIGHWAYS AND], in the expenditure of grants to the State, of land or other prop- erty. Provided, however, that the legislature of the State, by appro- priate legislation may authorize the city of Grand Rapids to issue bonds for the improvement of the navigation of Grand River." Then an appropriation could be made and should be made on the Vermont plan. The Vermont plan is to divide the appropriation by the number of miles of road and streets in the State and that gives the allotment per mile. In Michigan the allotment should be given to any township which raises a like sum or more and builds a piece of permanent road according to the required standard of the State commissioner. This will insure, that a piece of first-class road or street will be built in every township, village and city every year. This is the best plan in existence and has been tried and proven so and we advocate it. 64 STATE OF MICHIGAN HIGHWAY COMMISSIONER'S REPORT. Every year every highway commissioner in Michigan should be obliged to make a report to the State Highway Commission, Also every superintendent of streets under whatever name he may be called, in every city and incorporated village in Michigan. HOW MANY MILES OF ROAD IN YOUR TOWNSHIP? How many miles of dirt road? How many miles of gravel road? How many miles of stone road? How many miles repaired of dirt road ? . . How many miles repaired of gravel road? How many miles repaired of stone road ? . . , Ho\v many miles built of dirt road? , How many miles built of gravel road?.... How many miles built of stone road? How manv road Districts? , Give names and addresses of overseers: Have you gravel in your township? Have you stone what kind? What does gravel cost per cubic yard? What does stone cost per cubic yard? How many days of statute labor was assessed? How many more should have been assessed?. . How much money was raised for roads ? How much does gravel road cost per mile?. . . . How much does stone road cost per mile? , How much gravel do you use per mile? HIGHWAY COMMITTEE, 1901-1902. 65 How much stone do YOU use per mile? Are vour roads improving, if so, why? What road machinery have YOU ? What was the cost of each machine ? Does this machinery give satisfaction ? What have you discovered this year that ought to be communicated to everv other road builder or mender in the State?. . SUPERINTENDENT'S OF STREETS. How many miles of streets in your city or village? How many miles of dirt street? How many miles of gravel street? How many miles of macadam street? How many miles of wood block street? How many miles of brick paved street? How many miles of stone paved street ? How many miles of asphalt block paved street? How many miles of asphalt sheet paved street? How many miles of bituminous macadam paved street ? How many miles of other paved streets ? How many miles repaired and of what With what? How many miles built and of what? What does each cost you per square yard macadam ? Wood block on sand? Wood block on concrete? Brick on concrete? Asphalt block on concrete? Asphalt sheet on concrete? Bituminous macadam? What improvement have you made or discovered that would benefit other cities if known by them? These reports should be sent to the State Highway Commission before the first day of December, each year, that the facts and figures contained therein might be had on file where any citizen in the State could get at them, and the most important ones to be incorporated into the yearly re- port. One thousand five hundred and sixty-four reports should be received at the headquarters department of public highways. 83 county reports, 78 city reports, 211 village reports, and 1192 town- ship reports. 9 66 STATE OF MICHIGAN MEMORIALIZE CONGRESS. The legislature of Michigan should pass a resolution memorializing Congress to appropriate as much money for highways as they do for waterways, and no less for waterways than they now do. The national government should be a partner in the inter-town and in- ter-state roads. For every dollar that the town or county will appropriate for these roads, the State should appropriate another, and the national government still another. Then the large accumulation of wealth in New York, Boston, Philadel- phia, Baltimore, and other large cities will have a chance to contribute to the commerce arteries of their country which has made them what they are. COUNTY ROAD SYSTEM. Twelve or more counties have adopted the County Road System and more undoubtedly would if it was better understood. But to refuse to adopt is a blessing second only in size and worth to the adoption, for in either the refusing to submit the question to the people by the board of supervisors, or the actually voting the proposition down by the people, when it is submitted gives to every township in the county the right to adopt the plan as a township system. Then the township board can lay out such roads as they think best as township roads and levy a tax not to exceed % of one per cent on the assessed valuation of the township for the necessary funds to build them. If State aid prevailed, as it does in some states, this fund together with the State aid would give a handsome sum every year to invest in perma- nent gravel or stone roads. After the county has refused, either by their board of supervisors or by vote of the people to adopt the county system, the township* that has adopted it as a township system cannot be forced into the county system by the other towns in the county or in any other way until her own electors by a two-thirds majority, vote to go in. So that any township that does adopt the plan is guarded against the possibility of after having built their own roads of being forced to help to build roads for other parts of the county. I have the pleasure to attach hereto the first report ever given in Michi- gan by a county to a State highway commission, and such a report as ought to be on file from every county which has adopted the system every year. Here is a great object lesson r this county has about one hundred and twenty-five miles of county good road, and has only an assessed valuation of about |10,000,000, while Wayne county has an assessed valuation of thirty times this amount and surrounds Detroit the metropolis of Michi- gan a system of township mud roads very near as impassable as is the wall around China, yet we hear a great deal about their uncivilized condition and about Beautiful Detroit. I also attach a letter received by me from the Bay City Tribune, in answer to one, in which I asked them if they would or could afford to HIGHWAY COMMITTEE, WOl-lWi 67 sell the good roads of Bay county for what they cost if it was possible to, their answer explains itself. TO MICHIGAN HIGHWAY COMMISSION. 705 Fourth Ave.. Detroit, Mich. Gentlemen : I beg to submit the following report : The Menominee County Road System was organized under the Law of 1893. A Resolution of the County Board, passed October 11, 1893 sub- mitted the question to a vote of the people at a Special Election called for that purpose on Nov. 27, 1893. April, 1894, the first Commissioners were elected; being A. C. Stephen- son, Menominee, Mich., A. F. McGillis, Menominee, Mich., and Ira Carley, Ingalls, Mich. On April 28, 18 ( J4. tin* County Board submitted the question of bonding the County for $25,000.00 for a fund for building County Roads, which was carried at a special election, held the 2nd Monday in June. This amount was expended during the summer and a road was laid out and adopted from Menominee to Powers, a distance of 42 miles ; but the funds were not sufficient to complete it and on Oct. 11, 1894 the County sub- mitted a proposition to raise a further fund of $25,000.00 by a bond issue which was carried at a special election in Dec. 1894, and in addition a tax was levied for 1894, $9.822.74; for 1895, $10,023.20; for 1896, $7,500.00; for 1897. s!i.!ii>r,.:;s; lor 1898, $9.428.25; for 1899, $8,949.59; for 1900", 18,874.65: for 1901, $15.877.93. Total tax levy, ssn.401.74. By bonds, $50.000.00. Total appropriation, $130,401.74 to date, for which the County has built 102 miles of road; being a 24 ft. turnpike with ditches in all swamp lands and includes about eight and one-half miles of crushed stone and several miles of fine gravel road. We have this year built about two and one-quarter (2 1 /i) miles crushed stone road, and about 5 miles of new gravel road, that was adopted last year. We have also adopted about 15 miles of new r road this year upon which nothing has been done, but expect to do considerable work on these roads next year, as our Board of Supervisors have appropriated nearly thirteen thousand $13,000.00) dollars for next year's work, which natur- ally makes us feel very generous toward the Board, and we shall make a "Teat effort to give our people value received for their money. We also have iwo or three* steel bridges to build along our main road to take the place of wooden ones, that have seen their best days. We think we have the best outfit for building roads of any county in the State, consisting of Crusher. Gasoline Engine to run same. Keller Steam Road Roller. Street Sprinkler Wagons, Wheel Scrapers, etc.. including two complete outfits of tents, cook, sleeping, and also stable tents that hold six teams or twelve horses, boarding with our men right in the work. This year we started our two crews out the last of April and they have been con- stantly at work, and if the weather will permit we expect to keep them at work until Nov. 15. We find this method of working men much better than putting on more crews, and rushing the work through in two or three months as it insures us steady and practical road makers. FRANK L. DUNNING, County Road Commissioner. 68 STATE OF MICHIGAN Hon. Horatio S. Earle, Detroit, Mich. Dear Senator: Your postal of the 21st inst, at hand and noted. Our County Road Commissioners of which we have three (3) elected for 6 years, one every two years, are paid three ($3.00) dollars per day and expenses for actual service. They make their personal bills to Meno- minee County, and they are paid by the Board of Supervisors out of the Contingent Fund of the county, as our county road law does not permit the Road Commissioners to audit and pay their own bills out of the Coun- ty Road Fund. Very truly yours, FRANK L. DUNNING, County Road Commissioner. From the peri of Dr. A. W. Nichols, Greenville, Mich. COUNTY ROAD SYSTEM. Some reasons why it should be adopted in this county. The Board of Supervisors at the last session voted to publish a synopsis of the County Good Roads law, which may be recapitulated as follows : First: That it requires a two- thirds (2-3) vote of the members of the Board of Supervisors to submit the question to the voters of the county. Second : That the election mav be held at any general or special elec- tion. Third: The number of commissioners is not to exceed five (5) nor less than two (2), and said commissioners shall be chosen by the people. Fourth : The compensation of the commissioners is fixed by the Board of Supervisors. Fifth : The tax for the construction of roads under the county system as defined by the law shall not exceed a two (2) mill tax nor be less than a one (1) mill tax annually. Sixth : The law is very clear that no commissioner or Board of Super- visors shall expend one dollar more than provided in the law, and that in no case shall they issue bonds without a majority vote of the voters of the county, so there. is no danger of its being any more of a tax in the future than at present, or after adoption of the County Road System. Some States have permitted the issuing of bonds, but our Michigan leg- islature was very wise in providing that they could not be issued without a majority vote of the people of the county. Seventh : Another important feature of" the law is that after the adop- tion of this system of road building by the county, a majority of the people conclude that it is unwise, or they desire to rescind the same, they can do so at any general or special election. So by coming under the Good Roads law there is no danger of the people being bound to something they don't like unless the majority of the people say go. And the majority of the people do not usually vote for something they do not like, and are always willing to rescind any law that is obnoxious. At the present time all the labor and expense that is placed upon the highways of the county is paid by the farmers exclusively, but under the HIGHWAY COMMITTEE, 1901-1902. 69 new system all the taxpayers must contribute their just proportion. It is estimated that 40 per cent of the county tax comes from the farmers and 60 per cent from other property and other sources, hence should the elec- tors of this county see fit to come under the County System of Road Build- ing the farmers would be relieved of at least 60 per cent of the expenditure for the building of roads. Under the present system very many townships, as well as individuals, go to considerable expense in the building of roads. Some farmers in this county pay out a great many dollars every year for the improvement of roads in their vicinity, but road building, like everything else, requires a certain knowledge of the methods of proper construction of roads, and a great proporton of the money that is now expended and the labor that is performed is simply a waste of time and money. Roads in the county that have been in existence for 40 or 50 years can often be found in a worse condition than they were 20 or 30 years ago, excepting possibly the removal of stumps, etc. The expense for the construction of roads is mere nominal as compared with the benefit to be derived. The average farmer of this county, and I might say the average taxpayer of the county, would not be obliged under this law to pay more than one or two dollars a year, and hundreds of householders 20 to 40 cents a year, to meet the tax for the construction of good roads. Many farmers are paying hundreds of dollars in various por- tions of the State, and occasionally in this county, in one year for drain- age over their land. For instance, in one of our townships a widowed lady is obliged to pay this year a drainage tax which is greater than what she would be obliged to pay, if we were under the County Road System, for 43 years for road tax, and before the 43 years had expired the high- ways of this county would be real boulevards equal to the German roads where shade trees, fountains and milestones border the macadam highway. Again, the money that is raised for the construction of roads is not to be sent out of the county. It is to be put on to the roads and those who may possibly feel the tax can turn around and come under the employ of the commissioners and in that way work out their tax. The question of the construction of good roads is uppermost in the minds of a large class of people throughout the country. It is something that is coming and something that will soon be upon us, and it would be well for the people of Montcalm county to give it immediate considera- tion. We have one of the finest and most prosperous counties in the State, and all we lack is good roads. While other counties that are under the County System of building roads are to much expense on account of lack of material, Montcalm county is relieved from all that extra expense, for probably no county in the State is so abundantly supplied with ma- terial for good road building, in the form of gravel and stone, as is to be found in this county. In fact, on account of the convenience of material, the naturally level surface of the land, by appropriating a one or two mill tax for five or six years, should result in making good leading highways all over the county, and in ten years should make us excellent roads in front of nearly every farm. Perhaps the following will illustrate the economy incident to ood roads. It saves wagons and buggies, the harness and horses, and. above all. will be a great saving in time. A irentlenian said the other day. that he had a farm assessed at 800 and that he raised this year 1,100 bushels of potatoes: that it would require 22 days to draw those potatoes to mar- 70 STATE OF MICHIGAN ket over the road now existing between his place and the market, but if the road was as good as the new road recently built north of Greenville he said that he could draw those potatoes to market in five days and a half. Supposing that his team, wagon and himself were worth |2 a day, 22 days would amount to f 44. The tax of $1.60 a year, his road tax in ten years would amount to $16. The expense of hauling his potatoes to market over good roads would be $11 plus the $16, the tax for the construction of roads, would equal $27. Thus by coming under the County Koad System would save this farmer in the course of ten years, aside from paying his tax, $314, and at the expiration of ten years there is no doubt but that we would have excellent roads all over the county, and a large proportion of them macadamized. It is probable that on the average 12 or 15 prisoners are held in the county jail and house of correction at Detroit who could be employed at even less expense on roads ; but this cannot be done without the adoption of the County System of road building. See Sec. 1-4262, page 1353, Vol. 2, Compiled Laws of Michigan, 1897. A. W. NICHOLS. October 3, 1902. Mr. Horatio S. Earle, Detroit, Mich. Dear Sir: I am in receipt of yours of the 7th from Gaylord and note what you say. This information relative to stone roads, etc., I tried very hard to get in all the details to have same put upon our maps of Bay County which we recently issued, but I was unable to obtain same with- out going to a great deal of trouble and some little expense, and gave it up. Therefore, I can only answer your letter in a general way. I will say that we have just about one hundred miles of stone road in Bay County, and so far as I know or can learn, it is extremely well thought of by all of our citizens, both in the city and country. We consider that it has been a great help to Bay City as well as to the farmers, and have no idea that we would care to be without our stone roads at anything like what they cost. I wish I was able to give you further information on the subject, but am unable to do so. With kindest regards and regretting my inability to give you the com- plete data, I remain, Yours" very truly, J. W. SNYDER, Of The Bav Citv Tribune. MICHIGAN'S GOOD ROADS EXPOSITION. Tho Michigan Good Roads Exposition held at Greenville, July 29, 30, and .''1st was 1he greater in numbers (25,000 estimated attendance) and greater enthusiasm than any good roads convention that it was ever my privilege to attend. During the convention the sample road was inspected which is reported by Mr. Frank F. Rogers, Consulting Engineer, elsewhere in this volume, and spoor-lies wore made by W. A. Cook, Frankfort, N. Y. ; Dr. E. B. Smith, Detroit, Midi.; Mr. E. L. Powers, of the Good Roads Magazine, New HIGHWAY COMMITTEE, 1901-1902. 71 York; Mr. L. C. Boardnian, of the New York Tri- Weekly Tribune. New York; Hon. Martin Dodge, Director of Public Road Inquiries, Washing- ton, D. C.; Hon. W. L. Dickinson, Springfield, Mass., President of the Connecticut Valley Highway Association; Capt. Edward P. Allen, Ypsi- lanti, Mich. ; Dr. A. W. Nichols, Greenville, Mich. ; Gov. A. T. Bliss, Hon. Charles J. Monroe, South Haven, Mich. ; Hon. A. B. Darragh, Representa- tive in Congress; Mr. Frank F. Rogers, Consulting Engineer, Port Hu- ron, Mich. ; Hon. E. B. Lapham, Belding, Mich. ; and Horatio S. Earle, Detroit, Mich., President of the American Road Makers, and of the Michi- gan Highway Commission, under whose auspices this great convention was held, assisted by the office of Public Road Inquiries, Washington, D. C. A few of the many good speeches are attached, and the only reason that all are not is the lack of the manuscripts. The first is an extract of Governor A. T. Bliss's remarks as taken by the special correspondent, and as it appeared in the Municipal Journal and Engineer of New York City. Gov. Bliss during his talk referred to the fact that he had been criti- cised for making some appointments, but that he felt sure that no one would have cause to complain of the appointment of Senator H. S. Earle as the chairman of the Committee to investigate and report upon the conditions of and how to improve the Michigan Highways." "As a result of that appointment we have to-day one of the most pro- gressive movements for better highways to be found in the United States and a commission that is thoroughly alive to the situation. I may say in advance of receiving the report that I am conversant with the fact that certain recommendations will be made which cannot fail to meet general approval, one of them is the creation of a department of highways. This I believe to be in the right direction, and that much good will come there- from." LETTER OF INVITATION. UXITED STATES DEPARTMENT OF AGRICULTURE. Office of Public Road Inqui; Washington, D. C., July 10, 1902. Dear Sir: The Michigan Good Roads Exposition will be held at Green- ville, Midi., Tuesday, Wednesday, and Thursday, July 29, 30, and 31, 1902, under the auspices of the American Road Makers, the Michigan Highway Commission, the Montcalm County Road Makers, and the U. S. Office of Public Road Inquiries. The invitation is issued by State Senator Horatio S. Earle. who is President of the American Road Makers and Chairman of the Michigan Highway Commission. Senator Earle asks me to respectfully and urgently request you to attend this exposition, and I take pleasure in quoting from his letter as follows : Earlo's Pore Marquette Railway Good Roads train, with its road experts and engines; iher with the most m-xlem madiinery for building and repairing roads dieaply, will arrive at Greenville prior to July 29 for the purpose of having in different stages of completion a stone road, a gravel road, and a common dirt road, thus presenting, when the 72 STATE OF MICHIGAN exposition begins, object lessons of the best methods of constructing and repairing such roads. Special invitations have been extended to the United States Senators and Representatives from Michigan, to Governor A. T. Bliss, and all State officials, to the members of the last Legislature, and all known probable members of the next, and to the officials of the leading good roads associations in the United States. A sufficient number of these invitations have already been accepted to warrant the belief that this meeting will exceed in numbers and excel in importance any meeting ever held in the State of Michigan for the consideration of a National economical subject. All road-machinery manufacturers in the United^ States have been invited to make exhibitions of their machinery, and 'no charge will be made for the privilege of exhibiting or for admittance to the exhibition. Good Roads Machinery Day will be held on Tuesday, July 29, when Earle's overland good roads train and all other portable machinery will parade through the streets of Greenville and will carry all visitors to the road exhibits. U. S. Government Day will be held on Wednesday, July 30, when Hon. Martin Dodge, Director of the Office of Public Road Inquiries; Frank F. Rogers, consulting engineer for the Michigan Highway Commission, and others will address the assembly at the road exhibits. On the even- ing of this day, State Senator H. S. Earle and W. L. Dickinson, President of the Connecticut Valley Highway Association, of Springfield, Mass., and other prominent speakers will, weather permitting, make addresses in the open air. Michigan Day will be held on Thursday, July 31, when the last trip of the Good Roads train to the sample road will be made, on which occasion Governor Bliss and other State officials will make addresses on various phases of the road subject. The sample road that is to be built at Greenville will be located in the center of the greatest potato region in the world, where good roads will admit of big loads, thus saving thousands of dollars in transportation. Persons desiring to attend this exposition may obtain half-fare rates on all the railroads in the Lower Peninsula of Michigan by asking for tickets to the Good Roads Exposition at Greenville. I therefore trust that you will be able to attend and participate in this exposition, and that the purposes of the same may be fully attained. Very respectfully, MARTIN DODGE, Director. SPEECH OF HON. MARTIN DODGE AT MICHIGAN GOOD ROADS EXPOSITION. HELD AT GREENVILLE, MICHIGAN, JULY 29-30 and 31, 1902. In his address on the subject of government co-operation in object les- son road work, the Hon. Martin Dodge, of Washington, spoke as follows: "In a government having a composite nature like that of the United States, it is always easy to determine just what share the general govern- ment 5 the State government and the local government should respectively HIGHWAY COMMITTEE, 1901-1902. 73 take in carrying out highway work, though it is generally admitted that there should be co-operation among them all. "In the early history of the republic, the National government itself laid out and partially completed a great national system of highways connecting the East with the West, and the capital of the nation with its then most distant possessions. Fourteen million dollars in all was appropriated by acts of Congress to be devoted to this purpose, an amount almost equal to that paid for the Louisiana Purchase. In other words, it cost the government substantially as much to make that territory acces- sible as to purchase it; and what is true of that territory in its largest sense is also true in a small way of nearly every tract of land that is opened up and used for the purposes of civilization; that is to say: It will cost as much to build up, improve and maintain the roads of any given section of the country as the land in its primitive condition is worth, and the same rule w r ill apply in most cases after the land value has advanced considerably beyond that of its primitive condition. It is a general rule that the suitable improvement of a highway within reasona- ble limitations will double the value of the land adjacent to it. Seven millions of dollars, half of the total sum appropriated by acts of Congress for the National road system, was devoted to building the Cumberland road, from Cumberland, Md., to St. Louis, Mo., the most central point in the great Louisiana Purchase, and TOO mile west of Cumberland. The total cost of this great road was wholly paid out of the United States treasury, and though never fully completed on the western end, it is the longest straight road ever built by any government. The cost per mile was, approximately, $10,000. It furnishes the only important instance the country has ever had of the general government providing a highway at its own expense. The plan, however, w r as never carried to completion, and since its abandonment, two generations ago, the people of the different states have provided their own highways. DIFFERENT EPOCHS CONTRASTED. "The skill of the local supervisor was sufficient in primitive times, so long as his principal duties consisted in clearing the way of trees, logs, stumps and other obstructions, and shaping the earth of which the roadbed was composed into a little better form than nature had left it; and the resources at his command were sufficient so long as he was author- ized to call on every able-bodied male citizen between 21 and 45 years of age to do ten days' labor annually on the road, especially when the only labor expected was that of dealing w r ith the material found on the spot. The local road officer now not only finds himself deficient in skill and the proper kind of resources, but he discovers in many cases that the number of persons subject to his call for road work has greatly diminished. The great. cities to the north have absorbed half of the population in all the states north of the Ohio and east of the Mississippi, and* those living in these great cities are not subject to the former duties of working the roads, nor do they pay any compensation in money in lieu thereof. So the statute labor has not only become unsuitable for the service to be per- formed, but it is. as stated, greatly diminished. In the former genera- tions substantially all the people contributed to the construction of the highways under the statute labor system, but at the present time not 10 74 STATE OF MICHIGAN more than half the population is subject to this service, and this, too, at a time when the need for highway improvement is greatest. "Former inhabitants of the abandoned farms or the deserted villages cannot be followed to the great cities, and the road tax which they form- erly paid be collected from them again to improve the country roads ; but it can be provided that all the property owners in every city, as well as in every county, shall pay a money tax into a general fund, which shall be devoted exclusively to the improvement of highways in the rural dis- tricts. The State itself can maintain a general fund out of which a portion of the cost of every principal highw r ay in the State shall be paid, and by so doing all the people of the State will contribute to improving highways, as they once did in the early history of the nation, when sub- stantially all the wealth and population was distributed almost equally throughout the settled portions of the country. "Having a general fund of money instead of statute labor, it would be possible to introduce more scientific and more economical methods of construction with co-operation. This co-operation, formerly applied with good results to the primitive conditions, but which has been partially lost by the diminution in the number and skill of the co-workers, would be restored again in a great measure by drawing the money with which to improve the roads out of a general fund to which all had contributed. RECOMMENDS CONVICT LABOR. "In many countries the army has been used to advantage in time of peace in building up and maintaining the highways. There is no army in this country for such a purpose, but there is an army of prisoners in every State, whose labor is so directed and has been so directed for genera- tions past, that it adds little or nothing to the commonwealth. The labor of these prisoners, properly applied and directed, would be of great benefit and improvement to the highways, and would add greatly to the national wealth; while at the same time it would lighten the pressure of competi- tion w r ith free labor by withdrawing the prison labor from the manufac- ture of commercial articles and applying it to work not now performed; that is, the building of highways or preparing material to te used therefor. "The general government, having withdrawn from the field of road con- struction in 1832, has since done little in that line until very recently. Eight years ago Congress appropriated a small sum of money for the purpose of instituting a sort of inquiry into the prevailing condition of things pertaining to road matters. This appropration has been con- tinued from year to year and increased during the last two years with a view of co-operating to a limited extent with other efforts in road con- struction. With a view to securing scientific facts in reference to the value of road-building materials, the Secretary of Agriculture has estab- lished at Washington, D. C., a mechanical and chemical laboratory for testing such material from all parts of the country. Prof. L. W. Page, late of Harvard university, is in charge of this laboratory, and has tested many samples of rock without charge to those having the test made. There is, however, no test equal to the actual application of the material to the road itself. "With a view to making more extensive tests than could be done by laboratorv work alone, the director of the Office of Public Road Inquiries HIGHWAY COMMITTEE, 1901-1902. 75 has. during the past two years, co-operated with the local authorities in many different States in building short sections of object-lesson roads. In this work it is intended not only to contribute something by way of co-operation on the part of as many different interests connected with the road question as possible. The local community having the road built is most largely interested, and is expected to furnish the common labor and domestic material. The railroad companies generally co-operate because they are interested in having better roads to and from their railroad stations. They, therefore, contribute by transporting free or at very low rates, iho machinery and such for- eign material as is needed in the construction of the road. The manufac- turers of earth-handling and road-building machinery co-operate by fur- nishing all needed machinery for the most economical construction of the road, and in many cases prison labor is used in preparing material which finally goes into the completed roadbed. The contribution which the general government makes in this scheme of co-operation is both actually and relatively small, but it is by no means of this limited co-operation that it has been possible to produce a large number of object-lesson roads in different states. These have proved very beneficial, not only in show- ing the scientific side of the question, but the economical side as well. "In the year 1900, object-lesson roads were built under the direction of the office of public road inquiries near Port Huron, Saginaw and Traverse City. Mich. : Springfield. 111., and Topeka, Kan. Since that time the object- lexvnn roads so built have been extended and duplicated by the local authorities without further aid from the government. The people are so well pleased with the results of these experiments that they are making preparation for additional extensions aggregating many miles. During the year 1001. sample object-lesson roads were built on a larger scale in co-operation with the Illinois Central, Lake Shore and Southern Railroad Companies, and the National Association for Good Roads in the States of Louisiana. Mississippi, Tennessee. Kentucky, Illinois. New York, North Carolina, South Carolina, Alabama and Georgia. In all of these cases the co-operation has been very hearty on the part of the state, the county and the municipality in which the work has been done, and the results have been verv satisfactory and beneficial." At Good Roads Exposition. Greenville. Speech of Hon. W. L. Dickinson, President of Connecticut Valley Highway Association, Springfield, Massachusetts. MASSACH TSKTTS TO MICHIGAN ON A THROUGH ROAD. We very much desire to come to Michigan on a through road, and to us ir seems an easy mailer to build such a road, as we have a first-class road in Massachusetts nearly completed across the state from Boston to our western boundary. The State of New York has met us there and oust met ed a lonj: section of road, which undoubtedly will be con- tinued across the State. The Massachusetts road has boon built partly aid and partly ly th<' cities and towns. We can start from Boston over improved city pavements and soon come to the broad boulevards built of crushed stone extending through 76 STATE OF MICHIGAN Brookline and the Newtons. These boulevards show road construction and maintenance in its highest form. They are perfectly built roads, and by a perfect system of maintenance are kept always in the very best possible condition. These boulevards are wide and in many sections have a parkway in the center and a driveway on each side. Through these cities you will not only find the main arteries of travel in first- class condition but also the lateral roads leading to them in fine order. The citizens of these places appreciate the value of good roads, and the benefits derived therefrom far exceed the cost. We then pass on through the cities and towns west of Newton over sections of macadam roads built by State aid betwween cities and towns. This State road leads west through the famous Berkshires, over the rough mountainous sections of our State, where the rocks were blasted to make room for the road, and retaining walls built. Extra provision was made for surface water, as during the heavy storms large streams of water flow down these steep mountain sides. In many sections it was neces- sary to put in an expensive system of underdrains, as without perfect drainage the very best built road would soon go to pieces. It has cost a large sum of money to build these roads; ledges of rock had to be blasted, hills cut down and heavy fills made. However, it is a fact that this large expenditure of money is not to be compared with the great benefits received. It would not cost as much to build such roads in Michigan, as you have less rough and rugged land to deal with than we have in Massa- chusetts. All you have to do with your soil is to tickle it with a hoe and make it laugh with a harvest, and the saving made in transporting that harvest over a stone road would soon build one. Your farms would increase in value, you would not require as much motive power as at present to haul your products to market, and you could take advantage of the markets at all times, and smile at King Mud. You would have a better acquaintance with your friends at a distance, as with a good stone road you could drive over it in all seasons. Good roads make life in rural communities livable. They will help make us good citizens if we will let them. When you are wearily plodding through the mud some blustering March day you can know that over in some Eastern State your friends are jogging along on a hard smooth road, and I hope you know that in due time that hard smooth road will reach your part of the country. You have another "Good Roads" power in your State which we in the East are very glad to borrow as often as you will loan him to us, Senator H. S. Earle, President of the Americn Road Makers. This association has for its object the promotion of the general better- ment of highways throughout the United States and the special con- struction of inter-capital connecting highways converging at the Na- tional Capital. From the Massachusetts boundary a continuous road could be built to Michigan as there is plenty of road material available, which if not directly on the line of the proposed road could be cheaply transported by rail. It would be best to use crushed stone in the construction be- tween cities. The cities and larger towns require something more dur- able than ordinary macadam and better suited to heavier traffic. Such a road could be built by using Warren's bituminous macadam water- HIGHWAY COMMITTEE, 1901-1902. 77 proof pavement which is being generally adopted in up-to-date cities and towns. When we take into consideration the large sums of money that have been expended on the roads of Europe and the immense value of these excellent roads to the countries that have them it would seem as if this progressive country ought to profit by their experience and improve on their system as we excel in every other thing. The building of a through road from Massachusetts to Michigan is simply a business proposition. What return are we to get for the money invested? This could be discussed on facts which are on hand in re- lation to the benefits derived from the improved roads of Europe. It is much better, however, to give the experience of a State in our own country. The State of New Jersey, the first State in the Union to give State aid, has been building roads since 1891. That State has secured the best results of any State giving State aid, because they went at this work in a businesslike way and have a plain practical system. There were 549 miles of State road built prior to January 1, 1902, at a total cost of 12,650,000. Of this amount the State paid $866,000,the counties paying the remainder. The increase of |27,000,000 in the value of tax- able property in New Jersey is attributed in a large measure to the excellent roads. The cost of these roads has not been a burden. The benefits derived are found in the greatly increased valuation of prop- erty, a large increase in population of a desirable class and in all lines of trade. The farmers find a great advantage in the easier passage of their products to market and a large saving in the wear and tear of their horses and vehicles. Over a continuous good road heavy loads are hauled with a less number of horses than were formerly required for a small load on a poor road. The attendance of the schools and churches noticeably enlarged and free rural postal delivery made possible re- sult from having good roads. In 1893 the Massachusetts Legislature passed an act to provide for an appointment of a highway commission to improve the public roads. The first appropriation for State aid was made in 1894, and some over $4,000,000 has been expended to improve the roads of this State. The cost of the roads is divided as follows: The State pays % and the county 14. The cost of these roads has varied from $2,500 to $15,000 per mile, according to the conditions which were met. The standard width of broken stone roadway as built by the Massa- chusetts Commission is 15 feet and each side of this a width of 3 feet is shaped to the same cross-section as the broken stone. These side strips or shoulders are covered with gravel on much traveled highways only, on all others the natural soil is used. The rock used for the stone roads has come from quarries, banks, fields and river beds. There is great variation in the quality of rock used. In the selection of road-building rock, traffic and cost are care- fully studied, and the cost of maintenance, as well as construction, is taken into account. Trap rock is unquestionably the most economical material for the surface of roads of heavy traffic. All Massachusetts State roads are compacted by the use of steam rollers, both during construction and permanent repairs. All broken stone used is separated into three sizes by passing it through a screen with meshes 1^, inch, li/, inches and 2To inches in di- 78 STATE OF MICHIGAN ameter. The thickness of stone on these roads varies from 4 inches to 16 inches the four-inch covering being placed over good gravel or sand, the greater amount over heavy clay and varying thicknesses on other soils. Where the travel is light, gravel roads have been constructed and good results have been obtained. On the sandy shores of Cap Cod, where it would have been very expensive to haul broken stone, a good road was built with sand, clay and some broken stone mixed, which under the conditions, very light traffic and perfect drainage, have proved very satisfactory. Large sums of money have been expended where necessary for underdrains. As a result of these good roads built by the State, the cities and towns have generally taken up this question of better roads and have made a great improvement in their systems, as they were quick to re- alize the value of good roads. Although the Massachusetts system is complicated and expensive the good roads have proved of great value to the people. In Massachusetts the Commission endeavors to improve the main arteries of travel between the important centers of trade. The original State aid act was amended by the Legislature in 1900, which passed the "Small Tow T n" act authorizing the Commission to ex- pend 5 per cent of the annual appropriation for constructing and re- pairing highways in towns in which no State highway has been built. This was a move in the right direction and has proved to be very popular. In all States that have given State aid for roads the farmers at first opposed it, but at the present time they are loudest in their demands for improvement of the roads, as they appreciate that they are really benefitted the most because they are continually using the roads in hauling their products to market, which they can do at all seasons of ,the year over a good road. The saving made to farmers in States where they have good roads is enormous. The greater portion of the cost of State aid, of course, has been borne by the cities on account of the greater valuation. The problem of good roads in Michigan is not a difficult one, as this is a very prosperous and progressive State. There is plenty of good road material within your borders, and I believe your citizens appre- ciate the value of good roads. W. L. DICKINSON, President Connecticut Valley Highway Association, Treasurer Massachusetts Highway Association, Treasurer American Koad Makers, Treasurer New York and Chicago Eoad As- sociation, Member of Advisory Board, Highway Alliance of New York. HIGHWAY COMMITTEE, 1901-1902. "9 Speech of W. A. Cook of Frankfort, X. Y. FREE ROAD MATERIAL BY USE OF CONVICT LABOR. Mr. President, Ladies and Gentlemen: One of the most difficult problems which has confronted the states- men of all nations and all ages has been the disposition of the time of that unfortunate class of beings who have been convicted of crime and sentenced to a penal institution of some nature. In the earlier stages of civilization it has been the almost universal method to dispose of the labor of convicts to contractors who are al- lowed to work and use them for their own personal gain. As civiliza- tion advances, or as the population becomes more dense, so that the competition between the convict's labor and that of the free man is more keenly felt, this system has given way, either to the total idleness of the convicts, or else to his employment by the municipal division under whose control he is. Idleness for convicts of any grade should not for one moment be allowed. This unfortunate class should not only receive the same care- ful consideration at our hands as any other class in our community, but are entitled to especial attention in order that they may be cured of their malady and made useful members of society. When we remember that crime is a disease, and in many cases heredi- tary, we see how important to society is the proper solution of the prob- lem. Experience shows that idleness and confinement are not a remedy. Idleness impairs the physical strength and weakens the mental powers, even (in many cases) to the point of insanity. How then shall our con- victs be employed? Shall they make boots and shoes? No. We have enough free boots and shoe makers who ought not to be compelled to place their labor in competition with that of convicts. Shall stoves, furniture, or any other article of commerce be made with their labor, when it will come in competition with that of free men? By no means. Reserve for our free mechanics all the gainful occupa- tions, and let our convicts build such of our roads as would otherwise be neglected; or, provide the material for their construction. As a practical matter, we must divide our convicts into two classes. First, those convicted of minor offenses, and who are usually confined in jails or penitentiaries, and, secondly, the more desperate class, who are usually found in State prisons. Of course, the place of con- finement does not of necessity fix the grade of the criminal, but may be safely taken as a starting point, and for the purpose of illustration. The first class may be used to good advantage upon the actual road constructed; such as the grading, levelling of stone, digging of ditches, etc. Oneida county, New York, began this system some four years since, and is still using all of those sentenced to jail in actual road work. Portable houses are set up along the highway which is being built, and here the men are housed and fed. Two of the convicts are de- tailed as cooks, and with them is one guard, who also acts as house- keeper. The men are marched to their labor in the morning, being 80 STATE OF MICHIGAN divided into gangs of eight, each gang having a guard, who is responsible for the care of the men under his charge, and who also acts as foreman of the work. At the present time Oneida county has sixty men thus employed. One foreman has general charge of the work being done. The men are not dressed in uniform, and a stranger would hardly know which were guards and which prisoners. They work well and will accomplish almost as much as the free labor employed in the vicinity. It is rarely ever that one tries to escape. When such an attempt is made the offender is afterwards compelled to wear a ball and chain. Not only does the country secure their labor at a cost of less than 40 cents per day per man but the number of convicts is reduced and a very substantial benefit is reaped. The "drunk," who is sent up for ten days, has the whisky worked out of him, his muscles hardened by the use of the pick and shovel, his whole system toned up by the pure air, and good, plain, substantial food, on which he is fed. The tramp leaves the county never to return, and warns all his fellow travellers to give such a locality a wide birth. In Oneida county the saving by the reduction of the sheriff's and penitentiary bills will amount to not less than $5,000 per year. The direct benefits are more easily seen by the comparison of two pieces of road built in the town of Whitesboro, the same year, under the same specifications, and practically equal conditions. The following table will show at a glance the saving: Road built by prisoners: 12,963 spuare yds.; cost per square yd., 45 1-3 cents. Total, $5,873.35. Road built by contract: 12,516 square yds.; cost per yd., 75 5-6 cents. Total, $9,500, a saving of SO 1 /^ cents per square yard; or, on the road built by the convicts, a total of $3,953.72. The cost of the prison built road was divided as follows: 2,812 yds. lime stone, $1 per yd $2,812 00 598 yds. trap rock, $1.70 per yd 1,016 60 Guards 658 75 Engineer of roller 205 00 Coal for roller 23 00 Water for sprinklers and roller 100 00 Teams 800 00 Mason work, the plow, etc 90 00 Supernitendence 168 00 Total $5,873 35 It will be seen that no allowance is made for the board of the prison- ers, for the reason that the county must pay their board whether em- ployed or idle. Convicts of the second class can be very advantageously employed inside stockades in the quarrying and crushing of the rock necessary for macadamized road building. Both Erie county and On- ondaga county, N. Y., are at present so working a portion of the con- victs in their penitentiaries in a most successful manner. The Erie county work is a good specimen of what may be accom- plished in this line. An excellent limestone quarry on the Almshouse farm is being utilized, and a rock crusher, with elevator, screen and HIGHWAY COMMITTEE. 1901-1902. 81 storage bins have been erected. The bins are so constructed that the crushed stone may be loaded either into wagons or railroad cars. An engineer is hired, a quarry foreman and three guards. About two hun- dred yards of broken rock is produced per day, which thus far has been sold at about 65 cents per cubic yard. While the official figures are not at hand, it is safe to say that the plant will earn the county not less than $70 per day. Nor are these counties mentioned the only ones which have availed themselves of the benefits of convict labor in road building. Jefferson and Broome counties in New York, and many of the counties in the South, especially Mecklenburgh county, North Carolina, have successfully tried the experiment. Why cannot Michigan adopt a sim- ilar policy with benefit to all her people? You have the roads which need to be built, you have the convicts to furnish the labor for supplying the stone, and all that is needed is that you secure a suitable equip- ment of machinery and start the work. One great difficulty in the way of a central crushing plant has been removed by the very liberal treatment which has been accorded the "good roads" movement by the railroads. The live railroad manager, realizing that every good road is a feeder to his line, either transports material for construction free, or at a charge just high enough to cover the actual cost of transportation. Try the experiment. That you will find it successful we, who have seen the success of similar experiments in New York State and elsewhere can not doubt, and we wish you a hearty u God speed in your under- taking." BETTER ROADS! WHY? HOW? WHEN AND WHERE? Speech of Horatio S. Earle, Chairman of Michigan Highway Committee at Michigan Good Roads Exposition, held at Greenville, Michigan, July 20, 30 and 31, 1902. Why are better roads wanted and why are better roads beneficial to the owners of farms, of mines, of manufacturing establishments or other producers of material to be transported? That as much as possible of the cost of transportation may be eliminated. The cost of transportation does not enhance the value of any kind of a product. There is a market somewhere for every kind of product, where the price is set, like Elgin and St. Albans for butter and what the producer of a product gets for his product is the price set at this natural market, less the cost of transportation from the producing point to the market setting point. A bushel of wheat has a certain value in New York City and what the farmer gets for that bushel of wheat in Michigan, is what it is worth in New York City less the cost of transportation from the wheat field in Michigan to New York City, then it is to his interest to eliminate as much as possible from the cost of transportation, no matter where that cost originates; whether on water, on the railroad, on the highway or in the cutting and binding or threshing of that wheat, so that he may .L r -r as much as possible for his wheat, and this same reasoning applies to any kind of a product. 11 82 STATE OF MICHIGAN So the farm owners, the mine owners and the owners of factories in Michigan are or ought to be interested in anything that will have a tendency to eliminate any portion of the cost of production, and the cost of transportation of a product to its natural market is a part of the cost of production as much as is the wages paid to the laborer, and if the producers were as economical with King Mud as they are with King Labor we would have better roads and much of the cost of transportation would be eliminated, and a portion of this saving might well be handed to King Labor who differs materially from King Mud, for Labor is a citizen, a taxpayer and a consumer, while King Mud consumes nothing and produces nothing, but rather reduces the prices that we get for our products and reduces thereby the prosperity of the country. ' Want-to-be-renowned reformers have endeavored to stir up an enmity between the producers and the carriers of the country, and yet it is a fact, that the carriers are transporting wheat from Nebraska to Liver- pool for less money per bushel than it costs a farmer to haul it over a common dirt road ten miles to market. I am not posing as a defender of railroad companies in any unjust charges or at all, for I am not financially interested in any, and fur- ther, they don't need my help, for they have plenty of able men to do that thing, but, I do believe that it is well to appreciate what they have done and to tax them in a spirit of equity rather than in one of enmity; and to insist that they shall carry our products as cheaply as possible and at the same time give a proper return on the capital invested, but, don't let us overlook the fact, that there is a greater pos- sibility of eliminating excessive cost of transportation before the product to be transported gets to the railroad than after. The reason that a threshing machine is used to separate the grain from the straw is, for the purpose of elimination. That is, it is cheaper to thresh this way than it is to thresh with a flail or the old beast stamping process, so a portion of the cost of threshing with a flail is eliminated and remains in the grain producers hands to invest or spend for other purposes. The reason that a binder is employed to cut the grain is, that with the binder, the grain can be cut cheaper and better than it can with a cradle, then by using the binder, a portion of the cost of cutting the grain with a cradle is eliminated. There is no sentimental reason for wishing to eliminate a portion of the cost of transportation, of threshing, or of cutting and binding grain; it is simply and purely avariciousness, a very commendable attribute in man if only coupled with sufficient golden rule inclination to keep the man a man, instead of letting him develop into that less philanthropic^! being, known as the hog. If it costs two dollars to draw one ton to market over a bad road, and only two dollars to draw two tons over that same road when that road has been made better, then the better road is the machine to obtain and use that a portion of the cost of transportation may be eliminated, provided, that the machine, the better road and its repairs does not cost more than can be eliminated by its use of the cost of transportation. If two dollars per ton is a fair average of what is saved by the use of a good road over the use of a bad road, it is only necessary to find out HIGHWAY COMMITTEE, HKjl -im.j. 83 how many tons is hauly natural watercourses as often as possible. Sometimes townships are wasting an enormous amount of gravel, and in a few years will have to face a serious difficulty that of finding a substitute. There are townships now not far from that difficulty ; which have for years been piling gravel on badly drained, badly graded, badly maintained roads. Gravel placed on a poorly drained, poorly graded road, the repair of which is not attended to at the proper time, is quickly rutted, and in the wet seasons of spring and fall is mixed with the soil beneath, its use- fulness as a road covering being largely lost. But on the other hand, when the road is well drained, well graded, the gravel so laid upon it as to form a distinct coating, and ruts repaired as rapidly as they form, the life of the gravel is very much extended. A road roller is as necessary to press and knead the gravel together in courses, so that it will set well and keep its form, as a goose is in the hands of the tailor to press the suit of clothes so it will set well and hold its shape. UNDER-DRAINAGE. It may be accepted as a general rule that roads tiled without gravel are better than roads gravelled without tile. All roads except those on pure sand can be improved by tile draining. A single line of tile, if placed about three feet below the bottom of the open drain, if the graded portion of the road is about 24 feet wide, would accomplish nearly all that tile drainage will do. If one side of road is higher ^than the other, lay the tile on the high side so as to intercept the sub-soil water as it flows down the slope. A four-inch tile meets most conditions, but the size will depend on the length of the drain and the amount of water to be carried away. Care must be taken to give the tile a uniform grade, so that there will be no depressions. If possible give a fall of at least three inches in one hundred feet. The cost will be about fifty cents a rod. The work, if properly done, will be a permanent and substantial improvement to the road and will save many times the cost by lessening the amount of gravel needed on the road. The name "Macadam" is commonly applied to any road surfaced with broken stone, and in this respect is a very unfortunate misnomer. It is the neglect to provide for a dry subsoil that .is the greatest cause of the unfortunate condition of roads throughout Michigan today. Koads which are not well drained are but a repetition of the English roads as they existed before the time of macadam they are the roads which the system of Macadam displaced. A roadbed in which subdrainage is not suf- ficiently provided is the opposite of a macadam road. HIGHWAY COMMITTEE 1901-1902. 105 The importance of drainage cannot be too thoroughly impressed. Clay in thick beds, when dry, will support from four to six tons per square foot of surface, according to the quality of the clay. If only moderately dry it will support only from two to four tons per square foot of surface. If the clay is wet and soft it will yield to almost any load. Gravel, if well compacted, forms a much stronger roadbed, is less yielding to the action of moisture, and for this reason, even for a thin surface coating strengthens the road somewhat. But the real strength of the road must lie in the subsoil. Vegetable molds and alluvial soils are weak, have a sustaining power of only one-half to one ton per square foot, and for this reason it is well to remove such soil, securing, if possible, a gravel, clay or sand foundation. A dry subsoil becomes of greater necessity in a cold and humid climate. The injury done to roads by frost is caused entirely by the presence of water. Water expands on freezing, and the more there is under a road and above frost line the greater is the injury. In freezing, the particles of soil in immediate contact w r ith the water are first compacted. When room for expansion ceases within the body of the soil itself, ow r ing to its saturated condition, the surface is upheaved. When thawing takes place the subsoil w r ill be found honeycombed, ready to settle and sink beneath traffic. It is therefore of the utmost importance that the soil should be relieved of all water of saturation as quickly as possible by under- drainage. The impassable condition of the roads during spring, often ankle-deep with mud, is to be attributed very largely to a wet subsoil which has been honeycombed in this manner. The making of a strong foundation thus resolves itself into a question of under-drainage, and the means whereby proper under-drainage is obtained must be adapted to the manner in which water finds its way under the road, and the nature of the soil. A soil retains in its texture, by capillary attraction, a certain amount of water. In the case of a plastic clay soil, w T hich will absorb nearly one-half its weight and bulk of water, the w r ater retained in this way may be the cause of injury. In the case of gravelly, sandy, or other porous soil, it is necessary to remove only the water held by hydrostatic pressure in the foundation of the road. The effect of this is that with a clay subsoil, under-drains are nearly always beneficial in securing a strong foundation, and are necessary for traffic of even moderate degree. With porous soils, on the other hand, the necessity and means of drainage will depend upon the height to which the water rises in the foundation and the direction from which it comes. When a strong foundation is needed these under-drains should be three or four feet below the surface of the subsoil. Their location with respect to the road should be varied with circum- stances. The most effective type of drainage employed is a system in which there is a tile drain on each side of the roadway underneath the open gutters, with V-shaped drains at intervals from the center of the roadbed to the side drains. From this the scale descends to drains at the sides of the roads only; then a drain at one side only, or in the center of the road, then only an occasional drain at springy or damp points. It is of advantage to understand the manner in which nnder-drains act in different cases. With porous soils, in which the water rises under hydrostatic pressure, the water enters the tile from below; just as water rising in a vessel finds an outlet in the sides or flows over the top. so the 14 106 STATE OF MICHIGAN under-drains supply the necessary outlet for this excess moisture at a proper depth from the surface ; it "lowers the water-line." With clay the process is different. Absorbing and holding as it does, like a sponge, a large quantity of water, drains are less effective, but none the less necessary. The cracks and fissures which appear throughout the surface of a baked soil during the summer drought afford a clue to the action of under-drains upon the soil. As the clay yields up its mois- ture it shrinks, is torn apart. These fissures commencing at the drain, spread in different directions, and each fissure thus becomes a new drain leading to the tile. This process goes on, the fissures become filled with sand, vegetable and other porous matter, so that they assume a degree of permanency and. in clay soils under-drainage is more effective after several years than at first. TILE CULVERTS. A great number of townships have largely discarded timber as a material for small culverts and sluiceways. Cedar, where obtainable, has been most commonly used, but all varieties of suitable lumber are becoming scarce, the price is constantly increasing and the quality now available is far from being equal to that of former years. Those townships which have experimented with vitrified and concrete tile have, with very few exceptions, been favorably impressed with the new material. Failure and some dissatisfaction are occasionaly reported, but this in every case can be traced to causes not in any sense condemna- tory of the new materials. Where any kind of tile is used there are cer- tain requirements which must be observed. In the first instance the tile must be of good quality. It is just as necessary to use good tile in cul- verts as in sewers; where "culled" tile are used, failure is almost of necessity the result. These tile must be perfectly sound and straight, not warped or mis-shaped in any way, otherwise good joints cannot be made, water will lay in hollow places and culverts are apt to wash out. Excellent culvert pipe of concrete can be manufactured cheaply in any gravel pit under the immediate direction of the road overseer. The pipes are from two to four inches in thickness, according to diameter, which latter may safely and conveniently reach three feet, in lengths of two and one-half feet. The implements required are of the simplest kind. The most important are two steel, spring cylinders, one to set inside the other, leaving a space between the twq equal to the thickness of the finished concrete pipe. By "spring-cylinder," it may be explained, is meant such a cylinder as would be formed by rolling a steel plate into a tube without sealing the joint. With the smaller of these cylinders the edges over-lap or coil slightly, but are so manufactured that the edges may be forced back and set into a per- fect cylinder. With the larger, the edges do not quite meet, but may be forced together and fastened. Accompanying these molds are bottom and top rings, which shape the bell and spigot ends of the pipe. The two cylinders, with joints flush, are set on end, the one centrally inside the other, and on the bottom "ring," which in turn rests on a firm board bottom. The concrete, made of first class cement and well-screened gravel, in the proportion of one of cement to three of gravel, is then tamped firmly but lightly into the space or mould between the two cyl- HIGHWAY COMMITTEE, i 107 inders. The tamping-iron us<-U> yards of crushed stone. Fifth Conglomerate rock stampings from the copper mines 4,500 tons a day are dumped in Portage Lake, or sufficient to make more than three miles of first-class country road every day, placed upon a properly pre- pared sub-grade. Sixth Soft Limestone, followed by poorer gravels, mixtures of sand and clay, loam and sand, and finally a well rounded but not too round, common clav or loam. SAMPLE ROADS IX MICHIGAN. I'.V FRANK F. ROGERS. To the Michigan Highway Commission: Gentlemen At Ihe request of your president, I have the honor to present some of the engineering features of the sample roads built in Michigan during the past two years. 116 STATE OF MICHIGAN THE HILLSDALE ROAD. An exhibition road was built on the grounds of the Hillsdale Agricul- ture Society during the fair held in October, 1901. The place selected for this road was in the line of one of the main drives on a soil whose surface was a clay-gravel. Although located on land slightly depressed below the general level, the soil was firm, naturally well drained and afforded an excellent foundation for a macadam road. The road-bed was prepared by crowning the center with an ordinary road machine having the blades set so as to push some of the earth to the sides and thus form shoulders some four or five inches deep along the margins of the proposed stone bed. The old grade was in reasonably good shape and therefore required but little hand labor to finish prepar- ing the sub-grade for the stone. The road built was nine feet wide, being the width that is usually built and recommended for a single track country road leaving the un- disturbed sides for turning out upon. The crushed stone was applied in two layers, each four inches in depth before compacting. The voids in the stone were filled with gravel. There were many things about this road which were not ideal. The problem before us was, to make the best of previously prepared ma- terials. As we seldom, if ever, find all the conditions to our liking when called to build a road, we proceeded to make the most of the materials at hand and instructed our audience that economy in road building must ever consist of making the best possible use of the materials that nature has provided, and usually not far distant. The stone had been crushed but was not graded, the screenings, in- termediate sizes and "tailings" all being dumped into one pile. For this reason the stone was placed upon the road "mill-run" instead of beinc: able to place the coarser grades in the bottom and finish the surface with finer stone. In the same manner the screenings which should have been carefully saved for binder, were entirely lost and gravel had to be sub- stituted. The gravel was found in a pit near by and served a very good purpose although the rounded pebbles of gravel do not wedge into the interstices of the stone so well as the small angular pieces of stone found in the screenings. The machinery used in building this road was furnished by the Port Huron Engine & Thresher Company of Port Huron, Michigan, and con- sisted of a steam roller weighing ten tons, two spreading wagons hold- ing three yards each and a road sprinkler. After shaping the sub-srrade with a grader, as above described, it was finished and the edges trimmed to a line by using picks and shovels. The center was crowned between three and four inches in a width of nine feet. When the trimming was finished, the sub-grade was rolled till no more compression could be produced. The spreading wagons were loaded at the stone pile with shovels and forks and drawn to the road with the roller and spread automatically on the road-bed at iust the desired depth. After the first layer had been placed and rolled enough to form a true surface, the gravel was spread upon the stone to a depth of one inch. Water was then applied with the sprinkler when the rolling began and was continued till 1lio road was hard and smooth. After the first layer had been completed as above described, the second layer of the same kind of stone was applied, rolled, another course of 5 w EH >, I I S I 02 - ij * I < "3 HIGHWAY COMMITTEE, 1901-1902. 117 gravel put on for binder and again sprinkled and rolled until no further compacting was possible. The gravel contained a little too much clay and the road became rather sticky when sprinkled but after it had dried for one day it became very hard and was very much admired by the thou sands of people who attended the fair. This year, we are told, that the road is very much more appreciated than the vear in which it was built. THE GREENVILLE ROAD. The last week in July of the present year, a sample one-half mile road was built at Greenville, Michigan, under the auspices of the Michigan Highway Commission and the American Road Makers and the office of Public Road inquiries. This may be well called, "The Practical Farm Road" and is a road ad mirably adapted to many sections in central Michigan where both gravel and cobble stones abound. The soil on which this road was built is sand but had been surfaced with gravel about six years previous and the gravel still presented a very fair surface. The road was slightly rolling but contained no steep grades so that no heavy grading was required and the work of preparing the bed was reduced to a minimum. The road was marked out by a line of pickets located parallel to the center line and just far enough from it to be out of the way of the grader, the exact line for the shoulders being marked by measuring in small tem- porary stakes from the picketed line. To shape the sub grade, a grader was first run over the road with the blade set to plow a small furrow toward the center, thus leaving the un- disturbed earth along the sides to form a shoulder as there were some hard spots where the grader made but little impression, the work had to be finished with pick and shovel. One-half day was sufficient to do the machine work on a one-half mile road, after which two men had plenty of time to keep the sub-grade fitted ahead of the stone and at the same tine to do what little hand leveling was required behind the spreading wagons. On account of the excellent gravel bottom and the dry sand foundation it was decided to only surface the road to a depth of four inches with crushed cobblestones. The road was surfaced to a width of nine feet. Fifty cords of cobblestones had been placed in a pile at one end of the road. These were crushed and separated into two sizes by means of a revolving screen placed over portable bins of sufficient height to permit the stone to be drawn out into wagons. The first section of the screen had perforations seven-eighths of an inch and the second section two and one-half inches in diameter. The crushing outfit was manufactured by the Acme Road Machinery Company of Frankfort, Xew York. The stone was drawn to the road by a ten ton steam roller in large five ton spreading wagons which were designed to spread the stone auto- matically at just the required depth. The wagons and roller were made by the Port Huron Engine & Thresher Company of Port Huron, Michi- gan. The stone were nil crushed, hauled to the road, and thoroughly rolled till hard in one week's time, three days of which were occupied by the exhibition which considerably hindered the progress of the work. 118 STATE OF MICHIGAN The two and one-half inch stone was placed in the bottom of the road and the screenings, from dust up to seven-eights inch in size, were placed upon the top in sufficient quantities to fill the voids and leave a little surplus upon the surface so that after the rolling was completed the road was very hard and smooth. At last reports (December 1st, >02) the road was said to be in splendid condition. Its cost was surprisingly low and it furnishes an excellent example of the combined gravel and stone road (stone top and gravel bottom) which can be adopted with saving in cost in all sections where both gravel and cobblestones are plentiful. THE SPRINGWELLS TOWNSHIP ROAD. Late in the fall of 1902 eight hundred feet of road, fourteen feet wide was built on Michigan Avenue in Springwells Township, adjoining the city limits of Detroit and extending in a westerly direction. This road takes the place of an abandoned, plank toll road. It re- ceives an enormous traffic, a large part of which is teams drawing heavy loads of brick from numerous yards in the vicinity to the City of Detroit. Under the worn out plank which formed the surface was found a lot of quarried lime stone in pieces ranging from six to ten inches in the larger dimensions. This in turn was underlaid by an old corduroy road supported by an undrained blue clay sub-soil. Owing to the enormous traffic which this road sustains, and extremeh bad character of the soil, the outcome of this road will be watched With a great deal of interest by its builders and a great fear as to results by the citizens in that neighborhood. To secure the best results possible in such a difficult location, a tile drain w r as laid the entire length of the road on the upper side to thor- oughly cut off all ground water. The trench was filled with coarse cin- ders up to the bottom of the stone. A permanent and free outlet was se- cured for the tile in a city sewer. The old road had no drainage except tho comparatively shallow open gutters. After the sub-grade had been thoroughly rolled, twelve inches of stone were applied in three equal layers and each layer filled with stone screen- ings and watered and rolled separately. The two bottom layers wero of crushed limestone from Monroe and were filled with screenings of the same kind of stone. The top layer was of crushed cobblestones, the stone being shipped from the P. M. R. R. gravel pit at Milford and crushed at a siding near the road as they were moved from the cars. This road was also built with a road building plant furnished by the Port Huron Engine & Thresher Company. The road was not completed till freezing weather had set in and no report as to its wearing qualities can be given at this writing. The build- ers expect that the thorough drainage provided, the extra depth of stono used and the unusual pains taken with all the details will enable this road to hold up even under the severe traffic which it must bear. Respectfully submitted, FRANK F. ROGERS, Consulting Engineer. Respectfully submitted. HORATIO S. EARLE, Chairman. UNIVERSITY OF CALIFORNIA LIBRARY BERKELEY Return to desk from which borrowed. This book is DUE on the last date stamped below. b ' 14Nov'52DP 1952 Ul LD 21-95m-ll,'50 (2877816)476 YC RSITY OF CALIFORNIA LIBRARY