REPORT /. : ::.-.: V /<,:_::' V:'-l:': :/- OF A STUDY OF THE CALIFORNIA HIGHWAY SYSTEM BY THE UNITED STATES BUREAU OP PUBLIC ROADS TO S THE CALIFORNIA HIGHWAY COMMISSION AND HIGHWAY ENGINEER NEWELL D. DARLINGTON, Chairman CHARLES WHITMORE GEORGE C. MANSFIELD AUSTIN B. FLETCHER, Highway Engineer [ ISSUED 1920 : REVISED 1921 ] WASHINGTON GOVERNMENT PRINTING OFFICE 1922 CALIFORNIA STATE: HIGHWAY SYSTEMS FOR 1909-15-19 RELATED TOPOGRAPHY CAUFQRHIA HIGHWAY STUDY M)v{M*U.;m -i/j~ ,i>^- - \ RELIEF MAP OF CALIFORNIA, SHOWING STATE HIGHWAY SYSTEM. (From the model by Prof. N. p. Drake of Leland Stanford University.) CONTENTS Letter of transmlttul by the Secretary of Agriculture _____ Foreword by the Chief of Bureau of Public Roads ________ Letter of transinittiil 1" Chief of Bureau of Public Roads. Historical /Systems designed ---------------------------------- Kelation of total system to agriculture and popu- lation ________________________ ______________ i irganization ______________________________________ < 'onvict labor ____ 1 ________________________________ Specifications ------------------------------------- Work done ---------------------------------------- Federal aid ___________________________________ Bridges and structures _______________________ Maintenance __________________________________ Present condition of constructed roads _____________ Classification _________________________________ Photographs ________ Subgrade soil _________________________________ Soil classification _____________________________ Special studies of defective pavement ___________ Soil moisture determinations ___________________ .Mi list u iv equivalent determinations _____________ Shrinkage tests _______________________________ Subsoil moisture cross sections _________________ Rearing ixiwer ________________________________ Concrete sample cores _________________________ Results of tests ________________________________ Remarks on tests of cores ________________ j _____ (Jrade. alignment, and location _________________ Economics and other studies _______________________ General economic features _____________________ Motor vehicles general _______________ Page. 6 7 8 9 14 14 14 18 18 19 49 M .-,4 88 .-,!( 69 70 70 71 71 71 71 78 82 86 S7 90 90 90 DATA Continued. Page. Economics and other studies Continued. Traffic counts 91 Truck questionnaire 95 Passenger bus lines 99 -Motor truck freight lines 102 Field weighing 102 Speed measurement 102 General 102 Violations of State law 109 DISCUSSION : Bond issues, systems designed, and general policy 110 Management 110 Standard pavement design ill Design of grade, alignment, and sections 119 Specifications 119 Further discussion of policy of extension of mileage-- 120 Present conditions 120 < ^instruction and maintenance 124 Administrative and engineering organizations 124 Convict labor 125 Economics and other studies rjr, CoNci.rsiON 127 APPKNDICES: A. Details of State highway bonds highway systems proposed 132 B. Tables of comparison of engineers' estimate and liual payments on 20 selected jobs 137 ('. Motor-vehicle legislation 139 D. Cross sections showing soil moisture 141 K. Tratlic blank 148 K. Motor-truck freight lines 149 <;. Traffic diagrams 15] H. Pavement condition diagrams 159 LIST OF PLATES FRONTISPIECE. " Relief map of California." PLATE I. Outline nmp of Oaliforniu, outlining the State highway system recommended by the bureau of highways, November 25, 1896 PLATE II. Diagram of total bond requirements showing both interest and principal repayment by years PLATE III. Outline map of California showing State high- way systems for 1909, 1915, 1919, and agricultural areas PLATE IV. Organization chart for 1920 PLATE V. Outline map of California showing pavement completed, by years 1913 PLATE VI. Outline map of California showing pavement completed, by years 1914 PLATE VII. Outline map of California showing pavement completed, by years 1915 PLATE VIII. Outline map of California showing pavement completed, by years 1916 PLATE IX. Outline map of California showing pavement completed, by years (1917 PLATE X. Outline map of California showing pavement completed, by years -1918 PLATE XI. Outline map of California showing pavement completed, by years 1919 PLATE XII. Outline map of California showing pavement completed, by years 1920 PLATE XIII. Concrete culverts PLATE XIV. Yolo Causeway; three-spaa concrete culvert; 7 Tehema A PLATE XV. Diagram showing present classification of pavement laid each year, from 1913 to 1920 PLATE XVI. Diagram showing percentages of concrete pavement classes, In surfaced and unsurfaced pave- ment PI.ATE XVII. Pictures showing class A pavement PLATE XVIII. Pictures showing class B pavement PLATE XIX. Pictures showing class C pavement PLATE XX. Pictures showing class D pavement PLATE XXI. Pictures showing class K pavement PLATE XXII. Pictures showing class F pavement PLATE XXIII. Showing profile views of soil shrinkage PLATE XXIV. Showing profile views of soil shrinkage__ PLATE XXV. Showing top views of soil shrinkage PLATE XXVI. Showing top views of soil shrinkage PLATE XXVII. Curve showing relation between moisture content and bearing power of soil from 7 Colusa C_ PLATE XXVIII. Curve showing relation between moisture content and bearing power of soil from 2 Los Angeles B PLATE XXIX. Diamond drill PLATE XXX. Typical cores drilled with diamond drill.- PLATE XXXI. Typical cores drilled with diamond and chilled-shot drills PLATE XXXII. Types of grading and distribution of coarse aggregate Page. 11 12 15 16 41 42 43 44 45 46 47 48 52 60 61 63 64 CM (56 67 68 72 73 74 1 1 79 80 81 83 Page. PLATE XXXIII. Types of grading and distribution of coarse aggregate 84 PLATE XXXIV. Diagram showing relation between age of concrete in years and crushing strength 85 PLATE XXXV. Motor vehicle registration in California and the United States by years 02 PLATE XXXVI. Motor vehicle registration in five leading States 93 PLATE XXXVII. Outline map of California showing traf- fic stations and their locations and designations. 94 PLATE XXXVIII. Traffic on State highways 96 PLATE XXXIX. Diagram showing estimated agricultural tonnage hauled on California State highways dur- ing a calendar year 97 PLATE XL. Diagram showing total number of trucks in four classes reported by questionnaire and relation of per cent in each class to corresponding per cent from traffic count 98 PLATE XLI. Passenger motor busses 101 PLATE XLI I. Diagram showing comparison of number of trucks of various capacities reported by question- naire and by licensed truck freight lines 103 PLATE XLIII. Diagram showing hourly variation of week- day traffic at 101 stations and corresponding aver- age hourly variation of Sunday traffic at 37 sta- tions . 1O4 PLATE XLIV. Diagram showing average hourly variation of week-day truck traffic at 101 stations 105 PLATE XLV. Diagram showing variation of total traffic during the week based on 283 week-day counts 100 PLATE XLVI. Kern County ; average number of trucks and horse-drawn vehicles passing five stations 107 PLATE XLVII. Los Angeles County ; average number of trucks and horse-drawn vehicles passing nine sta- tions 108 PLATE XLVIII. Typical sections 112 PLATE XLIX. Typical road sections 113 PLATE .. Pictures of edge failures 115 PLATE A. Longitudinal cracks with faulting 116 PLATE AI. Pitting and checking 117 PLATE All. Misplaced mesh reinforcing; shoulder wear f-om insufficient width US PLATE A\'. Oil macadam pavement 121 PLATE A'. Supplementary construction 122 PLATE ,VI. Supplementary construction; maintenance.- 123 PLATE -iVII. Route 9, Los Angeles County, Section A ; coast route 2, Santa Barbara County, Section K_- 13O PLATE LVIII. Route 7, Solano County, Section A; route 9, Los Angeles County, Section A 131 PLATES LIX to LXIV. Ap]K>imMx 1>; soil sections 142-147 PLATE LXV. Traffic record blank 148 PLATES LVI to LXX1I. Appendix (!; traffic diagrams.- 152-158 PLATES LXX1II to LXXXIV. Api*mdix H; condition dia- grams . 160-171 (4) LIST OF TABLES TABLE 1. Analysis of bituminized aggregates used in oil top TABI.K 2. Construction and costs TABLE 3. Recapitulation of work-done schedule, giving payments made for construction, labor, and materials, including engineering, equipment, and administration charges TABLE 4. Resume estimated costs and payments made for labor and materials on contract anil day- labor road-construction work done, by divi- sions, in California to July 1, 1920 TABLE 5. Resume estimated costs and payments made for labor and materials on contract road- construction work, by divisions, in California to July 1, 1920 TABLE 6. Resume estimated costs and payments made for labor and materials on day-labor road- (i instruction work, by divisions, in California to July ]. 1920 TABLE 7. California Federal-aid projects to November 1, 1920 _' TABLE 8. Reconciliation of highway maintenance sched- ule. California, with statement of condition of funds July 1. 1920 TABLE 9. Recapitulation of maintenance costs : Schedule J, details of administrative expense, motor- vehicle fund, maintenance schedule by de- partments for headquarters and divisions TABLE 10. Total motor-vehicle fund expenditure, highway maintenance schedule, all divisions consoli- dated, by types TABLE 11. Total earth and general maintenance charges, by divisions TABLE 12. Total oiled earth maintenance charges, by divi- sions TABLE 13. Total oil macadam maintenance charges, hy di visions TABLE 14. Total concrete base maintenance charges, by divisions TABLE 15. Total oiled concrete maintenance charges, by divisions TABLE !. Summary of bus-line data, lines in whole or in part traversing State highways 100 TABLE 31. Summary table showing truck-traffic data 102 TABLE 32. Schedule of interest and principal, first bond issue. SIS.000.000 133 TABLE :-K5. Schedule of interest and principal, second bond issue, $15.000,000 !> TABLE 34. Approximate total bond requirements, first and second issues 134 TABLE 35. Schedule of interest and principal, third bond issue, $40,000,000 134 TABLE 36. Approximate total bond requirements, first, sec- ond, and third issues 134 15) DEPARTMENT OF AGRICULTURE, Washington, D. C., February IS, 19*21. The CALIFORNIA HIGHWAY COMMISSION AND HIGHWAY ENGINKEH, Sacramento, Calif. GENTLEMEN: I take pleasure in transmitting a report of the study of the California highway system, made by the Bureau of Public Roads in compliance with your request of June 25, 1920. I trust this study may prove of service to the California Highway Commission and the people of California in continuing their program of highway development upon which such splendid advancement has already been made. Very truly, yours, - E. T. MEREDITH, Secretary. (6) FOREWORD AN adequate review of the results which have been secured by the development- of any system of State highways must follow to-day an uncharted course. The essentials and nonessentials of such a task have not yet been sufficiently classified to avoid the gathering, on one hand, of material which modifies only slightly the final conclusions, or, on the other, to insure that all vital data and information is secured. The California study is the most comprehensive study of results obtained through the development of a State highway system that has yet been undertaken. The work of this study has followed two principal lines, one that includes those questions that are engi- neering in character and the other those that are eco- nomic in character. These two groups of questions are so interrelated and so interdependent that they can not be separated. All road improvement is a means to an end improved transportation facilities. The proper development of such facilities ought to be based on both the engineering and economic considerations involved. But the practical application of these considerations is always modified by the attitude of the public. For the purpose of this study, the principal opera- tion was to classify all the pavement laid. This classi- fication covered 1.262 miles, from which a complete record of condition of all concrete pavement for each one-tenth mile resulted, and is supported by 7,500 con- secutive photographs filed in the bureau. It is recorded completely by diagram. Associated with this classifi- cation there were drilled 638 cores through the pave- ment at intervals on 800 miles of the highway between Red Blurt' and San Diego; 481 of these cores were tested and all were carefully examined and measured. A large number have been photographed for this report. Twelve special, intensive studies of failed portions of the road surface resulted in a great volume of data which can only be summarized in the report, but which clearly establish in practically every instance the nature and cause of the defective pavement. In connection with the many selected special studies, soil moisture determinations were made for cross sec- tions of the road by borings at close intervals. Tests for moisture content, moisture equivalent, and for shrinkage were made at the laboratory of the Uni- versity of California. A complete classification of the subgrade soil under all the pavement on the State highway system was made by soil experts and plotted on the pavement con- dition diagrams. Below each concrete core samples of soil were also removed and classified. A State-wide traffic census was taken at 10.3 stations for an equivalent 16-hour week day, and many Sunday and supplementary counts were also taken. This traffic record revealed the amount and character of travel for the summer interval on the State highways. It has resulted in a set of traffic diagrams from which the total annual duty of the California highway system has been estimated, and also the corresponding revenue, or the operating income to the community. Supporting the traffic count, extensive field studies were made of the producing agricultural areas for 9 groups of agricultural crops and the peak load in tons and the peak interval in time for these crops was de- termined. This study covered the main valleys of the State. During the progress of field investigation there was carried on at Sacramento a complete audit and analysis of all the books of the State highway commission office. This work resulted in a satisfactory and complete dis- tribution of all costs of survey, construction, engineer- ing and maintenance, and prodviced summaries that account for practically every dollar made available for the use of the commission. Painstaking efforts have been made to secure all the data necessary to present the conclusions impartially and uncolored. There is much of value in the record to be made available after more research. Within the past five years an unprecedented demand has been made upon the highway administrator and highway engineer to produce a large mileage of eco- nomical and serviceable highways. The extent to which he has produced this combined result is the true stand- ard of measurement of his achievement. Let the present traffic service rendered by the State highways of California, conservatively estimated, we believe at 400,000,000 vehicle-miles per year, be multi- plied by any reasonable unit rate to indicate the pres- ent annual returns to the people on the total invest- ment to date of about $42.000.000. Now turn to one paragraph from the report selected as the most vital to be repeated here : The financial administration has been scrupulously honest and careful and the administrative and engineering costs have not been excessive, nor have final costs much exceeded the engi- neer's estimate. There should be no hesitation in going forward with confidence. The bureau gratefully acknowledges the cooperation and assistance extended by the Bureau of Soils of the Department of Agriculture, the Bureau of Standards of the Department of Commerce, the University of California, the California Highway Commission, and the highway engineer. The field studies and the preparation of this report were carried forward under the immediate direction of Dr. L. I. Hewes and T. Warren Allen, general in- spectors of the Bureau of Public Roads. THOS H. MACDONALD, Chief of Bureau. FEBRUARY 18. 1921. (7) DECEMBER 21. 1920. Mr. T. H. MACDOXALD, Chief of the Bureau of Public Roads, Washington, D. C. In accordance with your telegraphic instructions of July 8, following the request of June 2.">, 1920, from the California Highway Commission and highway engineer, a study has been made to determine the operations under the three California State highway bond issues and the costs thereof, the present condition of the roads built and so far as possible the causes of existing conditions and also to determine a measure of the usefulness and duty of the highway system, and to develop recommendations for the future. A report of this study is hereby submitted in three parts which refer, respectively, to data, discussion, and conclusions. Acknowledgment of the continuously courteous response by the State highway commission and the highway engineer to every request to facilitate this study is gratefully recorded. Very respectfully, L. I. HEWES, General Inspector. (8) DATA c HISTORICAL ALIFORNIA. in common with other States, ex- quirements. and it is probable that the State-wide in- perienced the preliminary processes associated with spection and study made by them, as reflected in their the adjustment of highway conditions to the demands report and bulletins, was later a valuable guide to the of developing industry. Some of the earliest road work State highway commission in its work of laying out was done by private individuals or corporations and the system which is now building^ This is evidenced the roads operated as toll roads. These roads were later by the closeness with which the present system coin- taken over by the State. cides with that shown on the. 1896 map.^No_funds A definite movement by the State for improved high- for construction were provided by the act ofl895.] ways began March 27. 1895, by a legislative act provid- (This act of 1895 was repealed in April. 1897r~antl a ing for a bureau of highways of three members to be department of highways was created. The department appointed by the governor for terms of two years. f highways act provided for three highway commis- The duties of this bureau included a study of the high- sioners to be appointed by the governor, to serve for a way laws of California and of other States, a study of period of two years, at the end of which time the gov- the physical features of the State and their relation ernor was to appoint for a term of four years and even- to a system of roads, and of the economic and legal four years thereafter one civil engineer as highway status of the highways in each county in the State, commissioner, in whom should be vested all the powers together with a study of the road work done in the a d duties attaching to commissioners first appointed preceding ten years by the counties, and costs therefor, under this act;? These appointments were made as re- and a report with conclusions and recommendations quired by law and the department of highways car- of such measures as the bureau deemed advisable. ried on certain work until 1907, when it was merged The bureau of highways was organized April 11, by legislative enactment into the State department of 1*05. and November 25. 1896, rendered a report recom- engineering. The money appropriated from time to mending a proposed system of State highways of 28 time by the State legislature for certain " State roads '' routes. The report stated that the principles had in was expended under the direction of this department mind in outlining a system of highways were : of highways. The details of work done and money ex- First. To lay them out along the lines which the pended are shown in the published reports, copies of physical features of the State forever fix as the which are on file in the document department of the easiest lines of communication. State library at Sacramento. Second. To traverse the great belts of natural wealth In $907 the State department of engineering was of the State by one or more highways. created by law. It was composed of an advisory board Third. To connect all the large centers of population, consisting of the governor as ex officio member and Fourth. To reach each county seat in the State and chairman, the State engineer, general superintendent tie in with the rounty roads. of State hospitals, and the chairman of the State board The report with a map showing the State road sys- of harbor commissioners of San Francisco. The State tern recommended is filed in the documents department engineer was appointed by the governor. of the State library in Sacramento. A copy of the The legislature of 1907 took action to forward road map. designated "System recommended in 1896," is building in the State, by what was known as the Savage attached to this report as Plate I. Act. which permitted counties to bond their whole The report shows that the total amount expended property for road improvement purposes. by counties on highway work during the period of After the creation of the original bureau of high- 1885-1895 approximated $18.000.000. and states " no ways the California Legislature from time to time took adequate return therefor is apparent/' In Appendix A over certain wagon roads as " State roads." These of the original report of the bureau of highways are special roads have l>een almost exclusively roads in shown the road expenditures by counties for the years the mountainous regions and only nominal appropria- lHX6 v to 1895, inclusive. tions were made for their improvement. The total of The members of the bureau of highways, in addition such appropriations up to 191.3 for all these roads \va- to their other duties, traveled about the State to ac- $807.243. These roads were later in charge of the quaint themselves with highway conditions and re- State department of engineering and doubtless pre- (9) 10 pared the public and the legislature ' for the more im- portant legislation of 1909. With the support of the governor agitation for an improved highway system in 1909 became acute and resulted in the passage by the legislature of the " State highways act " of March 22, providing for an issue of bonds to the amount of $18,(XX),000 for the construc- tion and acquisition of a system of State highways. 1 This act was approA'ed by a. majority of the electors of the State November 8, 1910. ' The legislature of 1911 passed what is commonly known as the " Chandler Act," adding three members to the department of engineering, to be appointed by the governor, whose duty would be to carry out the provisions of the first highway bond issue. At a meet- ing in August, 1911, of the advisory board of the de- partment of engineering, an enabling resolution desig- nated the three members appointed under the " Chand- ler Act" as an executive committee to be known as the California Highway Commission, and vested in the commission the actual handling of the work of con- structing and acquiring the State highway system under the bond issue of 1909. A highway engineer was appointed by the governor and was made executive officer of the commission. J A law passed in March, 1905, provided for registra- tion of motor vehicles with a fee of $2.00. There were minor amendments in 1907, and in 1913 an act known as the motor vehicles act was passed requiring annual registration of motor vehicles and increasing the fee for such registration. This act was amended by an act of 1915, and again in 1917 and 1919. The act of 1913 provided that half the net proceeds of motor vehicle licenses should be returned to the respective county road funds, and that the remainder should be devoted to the maintenance of State roads and highways, and the amendment of 1915 changed the wording to per- mit such moneys to be used also for improvements of State roads and highways. Further details of the mo- tor vehicle laws will be found in Appendix C. The advisory board imposed upon the California Highway Commission the further duty of maintaining the State highways constructed under the " State high- ways act." In 1915 the State legislature passed the second " State highways act " providing for a second issue of bonds for $15,000,000. This act was indorsed by the people at an election in 191.6. The State legislature of 1917 gave the California Highway Commission statutory recognition as a sub- division of the department of engineering, expressly prescribed its powers and duties, and transferred all State roads theretofore constructed under the super- vision of the State engineer to the commission. 1 For details of the three State highway bond issues see Appendix A. (The California Highway Commission thus in 1917 became a statutory body in immediate control and su- pervision of all State road and State highway ac- tivities of California, and is now carrying out the provisions of the bond issues of 1909 and of those of 1915 and 1919. The bond issue of 1919 for $40,000,00(1 was submitted by the legislature to the vote of the people July 1, 1919, and carriedo In the campaign for this bond issue the California State Automobile Asso- ciation of San Francisco and the Automobile Club of Southern California of Los Angeles were active advo- cates of the law. The California State highway bonds are all of the deferred serial type and with maximum terms of from 40 to 45 years. The beginning of the repayment of principal is deferred about seven years in each issue. The counties were required by the original State high- ways act to pay the entire interest on those bonds, the proceeds of which are expended by the State Highway Commission within their respective boundaries. The bond issue of 1909 for $18,000.000 was carried by a bare majority. The second serial bond issue, that of 1916 for $15.000,000, was carried by every county in the State by a vote of nearly four to one. The third serial bond issue, that of 1919 for $40,000.000, carried by a vote of approximately seven to one. Further details of each bond issue are described in Appendix A. There is shown graphically in Plate II the progress of the total tax requirements to pay interest and principal for the first two bond issues which total $33,000,000, and in the same figure the approximate progress of necessary total payments of both interest and principal on all the issues which total $73.000.000. The State highways act of 1909, which provided the first bond issue, stated : The moneys placed in the State highway fund, pursuant to the provisions of this section, shall be used exclusively for the acquisition of rights of way for and the acquisition and con- struction of said system of State highways. The route or routes of said State highways shall be selected by the depart- ment of engineering and said route shall be so selected and said highways so laid out and constructed or acquired as to consti- tute a continuous and connected State highway system run- ning north and south through the State traversing the Sacra- mento and San .Toa<|uin Valleys and along the Pacific coast by the most direct and practicable routes, connecting the county seats of the several counties through which it passes and join- ing the centers of population, together with such branch roads as may be necessary to connect therewith the several county seats lying east and west of such State highway. * * * The highway constructed or acquired under the provisions of this act shall be permanent in character and finished with oil or macadam, or a combination of both, or of such other material as in the judgment of the said department of engineering shall be most suitable and best adapted to the particular locality traversed. 11 PLATE CALIFORXIA OITLIXIXG WE STATE HtGtWQT SYSTEM THE BIHEAT OKMOHVi'AYS 12 PLATE II (VJ o tr> i/> oo to ** * <-0 * ro rO .000,000 was insufficient to complete the original sys- tem. The funds from the new bond issue were not available until July. 1917. but the old fund was ex- hausted January. 1917. To carry on work during the intervening months money was borrowed from the motor-vehicle fund. The State highways act in 1915 stated : Of the moneys placed in the said second State highway fund, pursuant to the provisions of this section, the sum of $12,000,000, or so much thereof as may be necessary, is hereby made avail- able, and shall be used exclusively for the acquisition, construc- tion, and improvement of the uncompleted portions of the sys- tem of State highways prescribed by said " State highway act " (act of 1909). And of said moneys so placed in said second State highway fund, the sum of $3,000,000, or so much thereof as may be necessary, is hereby made available, and shall be used exclusively for the acquisition, construction, and improve- ment of certain extensions from said system of State highways prescribed by said State highways act 1 * * * : Provided, hoic- ((/. That excuses of the acquisition, construction, and im- provement of the extensions above enumerated and the acqui- sition of right of way therefor shall be partly borne by the county or counties in which said extensions lie. the extent and character of such division of ex|>enses between the State and county sliull rest for final determination with the State depart- ment of engineering, and the State department is hereby au- thorized to enter into such agreements and undertakings as are necessary to properly carry out the intent of this section. The first biennial report of the California Highway Commission was issued December 31. 1918.' and closes with the remark : The data embodied herein may surest still further legisla- tion, and any cooperation by the legislature of 1919 tending to the betterment of State highway work will \te appreciated by the commission. = There follows in the law a list of 1598 miles of prescribed extensions given in detail in Appendix A and which are shown in the maps of the frontispiece and Plate III. 1 First biennial report of the California .State Highway Commission, a .subdivision of the department of engineering of the State uf California, Dec. 31, ISUS. 141i pp. A complete report of activities of the commis- sion to July 1, 1918. The legislature of 1919 passed the third bonding act and on July 1, 1919, at a special election called for the purpose the electors indorsed the act. This State highway act of 1919 states: The moneys in said " third State highway fund " shall be used by the State department of engineering for the acquisition, construction, and improvement of uncompleted portions of the system of State highways prescribed by the act of the legis- lature approved May 22, 1909. known as the " State highways act." and the act of the' legislature approved May 20, 1915, and known as the " State highways act of 1915," and certain exten- sions thereof described in said last-named act,, and also for the acquisition of the rights of way for and the acquisition, con- struction, and improvement of the following additional high- ways as State highways.' With these extensions the designated State highway system now totals 5,560 miles. It is to be noted that the California State Automobile Association and the Automobile Club of Southern Cali- fornia both took an active part in campaigning in favor of the various bond issues and more recently in the campaign to authorize an increased interest rate for the third bond issue. Except for separate appropriations for salaries and expenses of commissioners and highway engineer, the funds put at the disposal of the State Highway Com- mission consist of those funds derived from the sales of bonds issued. 50 per centum of the net money collected on account of the State motor vehicle act, certain county, municipal, and private funds, special State ap- propriations, and Federal-aid funds. The total of these funds up to July 1. 1920, is $42.007 ,330.07, made up as follows: First bond issue $18,002,129.00 Second bond issue 13,000,025.00 Third bond issue 3, 000, 000. 00 Motor-vehicle funds 0.539,563.21 County, municipal, and private funds 632, 120. 73 Special State appropriation 265,308.36 Federal-aid funds 568,183.77 Total -*2. 007, 330. 07 The total expenditure for construction and mainte- nance to July 1. 1920, is $41,790,884.41. 4 There follows in the law a description of 30 adjoined routes which total 1,798 miles and which are shown in the maps of the frontispiece and Plate III. and listed iu Appendix A. 14 SYSTEMS DESIGNED The system of State highways laid out in 1896 by the old bureau of highways totaled approximately 4,500 miles, which was about 10 per cent of the total of 45,056 miles. No construction was done o\n this system as such. /The law authorizing the bond issue of 1909 provided tar a system of highways and the laws of 1915 and 1919 extended the 1909 system as above mentioned. Complying with the conditions imposed by law the State Highway Commission laid out the road system shown on the relief map * of the frontispiece, which also shows separately the adjoined routes provided by the acts of 1915 and 1919. /The mileage of the system of 1909 is approximately 3\OS2, or 6.4 per Cent of the estimated total mileage of 45,069. B In 1910 the total mileage in California was estimated by the United States Bureau of Public Roads at 61.039. The combined mileage of 1909, 1915, and 1919 is 5,560, or 9.1 per cent of the total estimated road mileage in the State for 1916.' Plate III is a map showing the system laid out by the State Highway Commission in following out the pro- visions of the law of 1909, and separately the adjoined roads described in the highway acts of 1915 and 1919, and the relation of all these roads to the land classed as agricultural. The combined system is divided into numbered routes and these routes within each county are subdivided into lettered sections. The roads in this combined system are those which the State High- way Commission has been engaged in improving. BELATION OF TOTAL SYSTEM TO AGRICULTURE AND POPULATION. It will be seen from Plate III that, although the system of highways laid out by the commission under the act of 1909 is a restricted through system which in general parallels the railroads, it supplies, to a consid- erable extent, market roads for the great agricultural valleys. The land classed in this map as agricultural is plotted from the data of the United States Bureau of Soils and from that of the University of California. It is clear that the systems adjoined by the legislatures of 1910 and 1919 are also well placed to serve additional market areas. The system of roads laid out in compliance with the act of 1909 served directly about 47 per cent of the State population exclusive of the people of San Fran- cisco and Los Angeles (as listed by the detailed census figures of 1910 for incorporated cities). These pro- posed roads also served directly an additional un- known percentage of the rural population living in small unincorporated places and consequently not listed separately in the census but on the highway, and lastly an undetermined increment of rural population not living in such incorporated and unlisted cities but close to the highways. If the cities of San Francisco and Los Angeles are included it may, therefore, be esti- mated that at least 66 per cent of all the people in California in 1910 lived on or immediately adjacent to the highway system laid out under the first bond issue. The available 19-20 census figures show that at pres- ent 54 per cent of the population of California, exclu- sive of San Francisco and Los Angeles, live in places on or Immediately adjacent to the system of highways now built or projected (including those highways to be built under the third bond issue). Furthermore, the figures show that while the total increase of population in the State was 44 per cent from 1910 to 19-20. the increase in listed population only on the highway built and proposed and not including San Francisco and Los Angeles was 63 per cent. ORGANIZATION The organization of the State highway department as modified .January 15, 1920, is shown in Plate IV. The principal change made at that time was an increase -in the highway engineer's staff from one to six. This staff now consists of a construction engineer, a main- tenance engineer, an equipment engineer, a bridge engi- neer, and two general inspectors. The construction en- gineer is the senior staff engineer and in the absence of 8 From the model by Prof. N. F. Drake, of Lelnnd Stanford Univer- sity. * Estimate by the U. S. Bureau of Public Roads in 1009. A similar estimate for 1904 was the highway engineer acts in his stead. The general inspectors, one assigned to the northern part of the State and the other to the southern, act as the Held representatives of the highway engineefc It is believed that the recent increases in the stuff will considerably facilitate the handling of the great volume of business passing through the offices of the highway engineer. Other branches of the headquarters organization are a legal department, which handles right-of-way matters, a disbursing department, an accounting de- 15 PLATE III. CA1J FORMA MAIL iii^invvi .-i.viii A'.i, J^ --... 16 PLATE VI. i i i / , p- | 1 i j ! t/l -5 X o i < ^ 00 i I : v- J . JO or H 4 _ _J , i) ^ Z ^ u j fl O ^ i u [ r < U Q i r N J L i i z l/l ^~| K n -i r i i z u K U u o z ; u : j u i i i ' u i 4 E o . S 3 J g i 3 in i r -s r- t d i" i 3 z < * i i C u> 9 ' 2 n r? 1/1 i & I ' u Z i i 8 Q I 3 t k. i 5 a 5 i r" I L o ~ o < i C Q o 1 Ifl 5 [c u IA Iff U i o i 15 Li ^ i *fl ~ i Z 5J s ^ i i j . " i . > i u. 3 U t) 1 b .8 u L- i u j u. T. UJ x- 1 J i u _, ^/Q 4J C AJ U *-> 2 5 z. u: (/) CO o r : ; -. B E 2 2 s "J S I] [i r ' ^LB] 1]^" O IjJ ii i O _J u | 1 i "-JZ H Q. E tt joo ^ O H | .RTMEINTOFI o \Y ENGINEER CONSTRUCTION E^ MAINTENANCE EQUIPMENT BRIDGE GENERAL!NSPE.C 1 IEERINS HELADQUAF l | GEOLOSIST | STIM& EN&I [pTELO G [avi onus MCH^J [PHOTOS RJ L S oj 1 t J , J J J n C ( j O D. > 5 S-E 5 t- ; j Jj LU U 11 2 s f i2g ""!"?" U o ^^ S 1. 1 C u < ~ : > i 1 ; ' i _ 3 Out s-f-S i is. -i u e? ,9 i O o . ' C C 3 L^J *r^ "^ v ^ ^ r j ^ Q I a r. . , tf) _ . ~ < ^ t o: z n Rl n - Z Q 01 s: O CD a: o U- \ \ u '1 s --s * gi . -5 S ! 2 4 i PH O > Ij SMs 1 * 1 * K ' > a 1 O EI-I 1 > ~ H cc O O 3l|pj B ^ (n c t i fi n [^ 5K 1 Q u Q t!) H I- 1 u | J t o 1 ^ Z o u 1 ^ h o W ' '. 1 Z 7_ <. k. tO t 1 : z 1 o ~ U ~ ' 1 - = 1 s J < 3 1 b a 1 ^ u < b J LL 1 l__J I 1 l tt 1 1 a u > 1 1 u u h z -I \ 3 : 1 z z j: U u 1 J^ 5-1/1 u - U 1 1 3 5 . iC L 1 i s < Z L 1 Q 5 ^J L [^ I "" 1-' u . " 1 a hi > 5 o u. 1 o u z 71 f> H % ^ j 1 _J " '* 1" * o u u 1 O 3 < c L 1 hi < t i * B k t 1 9 10 1 ^^^_^MK 1 K 17 partment, a purchasing department, and a headquarters engineering department, all of which are shown on the chart, with a suggestion of their duties. The headquarters organization at Sacramento at fh'e present time consists of about 71 employees^ The State is subdivided into seven divisions, with a division engineer in charge of each. A division office is maintained in the principal city in the division. The division engineer has responsible charge of the location, construction, and maintenance of the State roads and highways in his division and reports to the highway engineer. The number of assistant division engineers in each division depends on the size of the division and the volume of the work under way. Usually there are two in the larger divisions, one the division construction engineer and the other the division maintenance engi- neer. In the absence of the division engineer the divi- sion construction engineer acts in his stead. There is also an office engineer who reports directly to the division engineer. In each division there are the necessary chiefs of survey party on location, chiefs of survey party on con- struction, resident engineers, assistants, etc. 7 The procedure in the case of a project proposed by the commission for improvement is approximately as follows : First the division engineer is directed to make a reconnaissance. If the reconnaissance is favorably received, the commission directs the highway engineer to proceed with surveys, plans, and estimates. The appropriate divison engineer is then notified of this action, and this is his authority to proceed. The division engineer designates the controlling points of the survey and assigns a chief of party to the work. No definite estimates of cost of surveys and plans are made in advance. The surveys follow de- tailed instructions issued by the highway engineer. The so-called ''base-line method" has been uniformly used. Drafting and designing is done, as a rule, at the division office and not in the field. The division engi- neer forwards completed plans to Sacramento, where- upon field inspections are made and plans are examined and checked in a general way. The necessary bridge and structural designs are made in the bridge department. The law requires that work be advertised in papers of local and general circulation for four weeks. If excessive bids are received, the commission may order the work readvertised or done by day labor. 7 Tlie State civil service commission through examination, open to anv Ain.-rii-au citizen resident in California, supplies to the Ilighway Com- mission employees below the grade of Slate highway engineer. There are six classified grades in the highway engineer group. tirade, 1 includes junior draftsmen, rodmen, and cbainmen. at salaries of $100 IT month, or $85 per month and board, respectively ; and lirail.- VI includes the assistant highway engineers and division engineers, at salaries of $325 to $400 per month. Competitive examinations are re- quired for promotion from one grade to another, and the civil service must sanction promotion within gratk-s. The preliminary estimate, as approved by the high- way engineer, becomes the estimate used in the consid- eration of bids. Upon receipt of bids and award of contract, allotment equal to the total price bid, plus the cost of materials furnished by the State, plus 3 per cent for contingencies, is made for the project. The engineering expense of handling the project during construction is covered by a separate allotment. Upon award of contract and allotment of funds the division engineer is authorized to proceed with the con- struction engineering work. He assigns a construction survey party to this work. This party stakes out the line in accordance with the approved design and gen- eral instructions, after which a resident engineer with the necessary assistants is assigned to the work. The resident engineer's duty is to see that the job is com- pleted in accordance with the contract and specifica- tions, and further to furnish the information upon which the division engineer bases partial payment esti- mates. The information for the partial-payment esti- mate is to be prepared so as to reach the division engi- neers office by the Saturday nearest the 15th of the month. Estimates are prepared and checked in the division office, signed by the resident engineer and division en- gineer, forwarded to the office of the highway engineer, where they are again checked and then sent to the comptroller. The comptroller, if satisfied that pay- ment should be made, places the amount of money called for in the estimate at the disposal of the State highway engineer, after which the disbursing office issues a check to the contractor. The average time from estimate to payment is about 1-i days. The resident engineer assists the division engineer in preparing the final report and the final estimate. This estimate is signed by the resident engineer and the divi- sion engineer, and transmitted to the highway engineer with the final report on the work. The estimate is there checked and payment made as in the case of par- tial-payment estimates. The average time from esti- mate to payment for the final estimate is about 35 dav-. Maintenance work in the larger divisions is handled by a division maintenance engineer, in the smaller divisions directly by the division engineer. Mainte- nance is divided into general maintenance, which con- sists in maintaining the road in the condition in which it is left upon completion of construction and in im- provement, which consists in relocation or new work and in reconstruction. Reconstruction consists in the rebuilding of considerable portions of the work. The division engineer makes a detailed estimate quarterly of the amount needed for the general maintenance of each of the State highways in his division. This amount, when allowed, becomes an allotment for the work. In the case of improvement or reconstruction an estimate 18 is made by the division engineer at such times as he deems such work necessary, and this estimate is han- dled in the same way as an allotment for a new project. A record of the cost of maintenance, subdivided as de- scribed above, is kept in the highway engineer's office. ( Beginning in April, 1920, all the division engineers lira! assistant highway engineers have been required to meet at the headquarters office in San Francisco on the first Monday of each monthJ CONVICT LABOR. The legislature passed a law April 27, 1915, permit- ting the department of engineering to employ State convicts on State highways under its supervision, but placing the discipline and control of convicts under jurisdiction of the prison directors. The entire ex- pense of convict work is borne by the department of engineering. The convicts must not do any work of " skilled labor." Their terms may be shortened not to exceed one day for two on the road. Under this law up to November 1. 1920, grading of about 115 miles of road in the remote districts of northern California in Divisions I and II has been completed. At present about 220 convicts are at work. The maximum number of convicts reported employed at one time in one camp was 225 in July, 1917, in Men- docino County. The total number of convicts shipped to the two camps in Mendocino and Humboldt Coun- ties since September, 1915, is 955; of these 33 escaped and were recaptured and l(i others who escaped were not recaptured. The following tabulation shows the distribution of costs per man-day : CONVICT COSTS, DIVISION I, TO SEPTEMBER 30, 1020. Mendocino camps. Humboldt camps. to. 132 $0.237 .170 .180 Clothing .250 .182 .952 1.013 .165 .198 .035 .040 Medical .055 .069 .052 .071 1.811 1.99C 2. 830 3. 0") CONVICT COSTS, DIVISION II. Food ?0. 78 .023 .043 .148 .152 .084 .035 .015 1'reparing and issuing food .052 Hauling Transportation Guarding Clothing, medical, tobacco Escapes I ifpivciation equipment ('amp maintenance Cost per man-day 1.332 Cost per effective man-day 1.97 The term " effective man-day " means days actually worked and excludes Sundays, bad weather, sickness. etc. Excavation, including clearing and grubbing and averaging 65 per cent solid rock totaled in. Division I, to September 30, 1920, in Mendocino County, 939,100 cubic yards at $0.838, and in Humboldt County 36,000 cubic yards at $1.333. In Division II, 500,000 cubic yards " mostly solid rock " cost $0.70. The average cost per mile of 57.5 miles of road in Mendocino and Humboldt Counties is approximately $15,000 for he^avy mountain road, 18 to 21 feet wide for 35.0 miles and 12 to 16 feet wide for 22.5 miles. In Nevada and Sierra Counties 41 miles of about 14-foot mountain road cost $12,195 per mile. SPECIFICATIONS. The principal features of the specifications in use since 1912 are described below: Embankments and subyrade. The specification pro- vides that the engineer may require puddling of fills greater than 12 inches. The 1913 to 1918 specifications require that all finished fills and cuts shall be watered and rolled until the surface is smooth and unyielding. In the 1919 and 1920 specifications these provisions are incorporated in the specifications for subgrade. Concrete pavement. The commission adopted a standard specification for concrete pavement in 1912, which has not been extensively changed until the pres- ent year, except with respect to the proportions of the concrete, which in 1917 was made 1:2:4 instead of 1:2|:5, as originally adopted. All cement is required to conform to the requirements of the American Society for Testing Materials. With reference to the fine aggregate, the specification permits 6 per cent by weight of clay, silt, and other material, passing a No. 100 standard sieve. There are brief specifications regarding the quality and grading of coarse aggregate. In the present specifications there are no slump-test requirements for the concrete. The original specifica- tions provided for mixing until the mixture, was of uniform texture and color. In 1916 the requirement was 10 turns of the mixer and a minimum interval of one minute. With reference to surface finish, the 1912 specifica- tions provided for hand tamping and roughening by raking. The 1913 to 1915 specifications provided that the pavement should be finished by hand tamping until the mortar flushed freely to the surface and the 1915 to 1916 specifications, in addition, prescribed that the finished surface should not vary more than one-quarter inch when tested by a straight-edge 5 feet long. There was no requirement until 1919 for striking off or float- ing or troweling. In 1919 the specifications required the surface to be finished by rolling and belting. It is believed that the California commission first extensively used the method of ponding in curing con- crete pavement. In 1913 the time of wetting was in- 19 cicased from 6 to 10 days. The 1919 specifications spe- cifically provided for curing by ponding or covering with wet earth. There were no specifications for expansion joints, except on one contract in 1916 in Marin County. No reinforcing was required by the specifications except in 1920, beginning with contract No. 271. Gen- eral instructions to division engineers No. 421, issued May 1, 1920, orders reinforcement of concrete bases and shoulders by one-half-inch square deformed steel bars v< j4aced in the center plane 2 inches from the out- side edgfexjapped 12 inches and butted at 30-foot in- tervals; trahs^ersej'ernforcement, three-eighths-inch square deformed steel bars 18-inch centers hooked over the longitudinal bars and wired thereto; all steel is to be temporarily supported by short lengths of iron pipe. General instructions to division engineers No. 427, issued September 15. 1920, read : Voted that hereafter because of the rapidly increasing volume and intensity of the traffic over the State highways, no con- crete base be laid on any State highway of lesser thickness than ~i inches and all concrete bases are to lie reinforced with steel as heretofore ordered. Although not explicitly called for in the printed specifications, reinforcement has from time to time been incorporated in the pavement and is of various types. Topeka. With reference to the specifications for To- peka pavement, there have been no changes since 1912. A consistency of bituminous material of from 70 to 90 as determined by penetration is permitted. Oil macadam. With reference to oil macadam, the specifications provide for water-bound macadam con- struction with surface treatment at the rate of seven- eighths to If gallons per square yard, the oil to be not less than 85 per cent asphalt with a penetration of 80. Oil top. An analysis of the three-eighths-inch oil- skin top is shown in Table 1. TABLE 1 . Analysis of Intuminized aggregates used in oil top. 1 Location. B. I>. R. Lab. No. Passed '. incb, retained } inch. Passed i inch, retained No. 10. Passed No. 10, retained No. 20. Passed No. 29, retained No. 30. Passed No. 30, retained No. 40. Passed No. 40, retained No. 50. Passed No. 50, retained No. 80. Passed No. SO, retained No. 100. Passed No. 100, retained No. 200. Passed No. 200. Per cent Of bitumen. Total per cent. Route. C Unt . V tiOT. 12 2 I 2 2 1 2 1 20 12 2 2 2 2 2 2 2 4 4 23 23 H 9 9 4 4 4 San I>ie^o. . B B C V. E A A A B B A C H H H H C C C C I) D B C B A A B B B 16814 16815 16816 10817 16S97A II1.S97B Itkxyx 1'iSSW 16900 16901 11)902 1U903 16904 16905 17015 17016 17017 17018 17029 17030 17031 17032 17033 17(134 17035 17038 17037 17038 17039 1704U 17041 17W2 1.6 7. a 12.4 18.0 36.0 38.0 10.8 26.4 2A.9 12. S 12.11 7.2 20.8 32.0 30.4 30. 8 37.2 17.0 15. 9 11.6 20. S 19.2 29.2 21.2 22.0 y.o 10.8 37.2 3IJ.S 21.2 Hi. ,x 2.1. 4 7.6 9.0 5.4 11. e 15.8 12.0 10.4 14.0 14.8 5.2 3.2 14.8 15. C 16.0 16.0 14.0 14.4 13.2 13.4 14.0 11.6 16.0 14.0 11.6 12.8 9.6 15.6 12.8 8.4 20.0 12.0 13. 2 11.4 14.0 7.2 8.8 7.2 5.2 7.2 8.8 9.2 4.0 3.0 11.2 8.8 8.8 7.6 7.2 5.6 10.8 12.4 13.4 9.6 10.8 9.0 11.6 10.4 R6 1H4 6.0 4., 12.0 8.8 .S. 4 14.2 14.0 9.4 6.0 3.6 2.0 5.6 4.8 4.X 5.2 4.2 6 4.8 3.6 3.6 3.2 2.4 6.6 7.9 8.2 5.9 5.2 4.7 7.1 5.8 5.0 5.3 2.8 2.4 5 6 5.4 :.. (i it 7.4 7.2 3.6 2.0 6.4 4.4 5.2 9.4 8.0 6.4 4.x 4.0 3.6 3.6 2.4 6.2 7.2 11.4 5.6 4.9 4.8 7.4 5.8 5.4 5.2 3.7 2.9 5.3 6.1 5.X 9. ti 9.11 10.4 8.1 3.6 2.0 8.8 5.2 :,. (j 15.2 15. 8.0 0.0 4.4 4.4 4.4 2.8 5.9 5.9 6.2 5.2 5.5 8.0 7.6 6 2 6.8 6.4 3.9 3. G 5 8 7. v 7.0 12.0 11.4 14.2 3.6 1.6 1.2 6.4 2.0 2.4 . 4 7.2 3.6 2.8 2.0 2.0 2.4 1.6 2.1 2.0 2.2 1.9 2.4 2.6 3.0 . 2.9 3 2 2.9 1.8 1.5 2.4 3.4 3.5 4.6 4.:, 6.4 8.0 4.0 2.4 7.2 6.4 6.4 14.8 lx. 2 12.0 8.4 5.6 4.8 7.2 5.6 6.1 5.2 6.0 5.5 7.3 7.0 ?:? 11.0 9.0 5.4 4.8 6.4 9. !< 8.2 9.0 9.2 IK. 2 14.9 6.1 4.9 19.7 13. 12.9 11.0 14.6 21.1 1.x. 4 10.7 15.4 18.4 12.8 18.1 14.2 12.1 17.5 17.7 15.1 10.7 15.9 22.7 24.0 C 3 x.y 16 1 19.8 16.1 4.:. 7.0 11.9 11.9 10.9 13.9 17.5 10. 6 8.4 8.4 x.ti 9.7 7.6 9.3 9.8 7.2 7.2 9.6 10.9 11. 1 9.4 6.9 7.6 10.0 6.0 12.3 10.4 13.1 5.3 3. 1 8.6 8.2 11. H 8.3 8LT 100.0 100.0 100.0 ioao 100.0 100.0 J 100.0 100.0 100.0 100. 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100.0 100. U 100.0 100. 100.0 100.0 100.0 Orange . San Luis Obispo.. do Santa Barbara do 4.4 4.4 5.2 6.0 San Bernardino... Santa Barbara Monterey 2.0 3. A 2.4 1.6 8.0 4.4 5.0 3.6 7.0 4.1 San Benito Santa Clara Santa Barbara do do do Kern do ".Ao do Los Angeles 1.8 5.1 6.4 do . ..do 7.0 2>i. s 2. 1 1.5 42 3.6 4.2 2.8 ..do San Bernardino... .. ..do do LG--' Angetes do do ' Lab. Nos. 16898 and 16899 are modified Topeka; Nos. 17040, 17041, 17042 are Willite. 1 3.2 per cent passed 1 inch, retained J inch: 0.8 per ci-m pasM.nl j inch, retained I inch. 3 2. 4 per cent passed J inch, retained .1 inch. WORK DONE. ffhe State highway system, shown in Plate III, on July 1, 1920, totaled 5,560 miles of roads. Of this mileage, 1,345.4 miles were completely graded and paved, and 337.1 miles were graded and not paved. In addition, 319.4 miles were in process of grading and not to be paved, and 206.8 miles were in process of pav- ing with Portland cement concrete. Sixty-six miles of the pavement were reported to be reinforcedj Of the paving. 7G5 miles are built with Portland cement concrete unsurfaced (of which 47.G.miles are re- inforced), 480.7 miles with Portland cement concrete surfaced three-eighths inch thick with bitumen. ">3.!> miles with Portland cement surfaced with 14-inch Topeka. 4/J miles with Portland cement concrete sur- faced with Willite. o.l) mile with Portland cement con- crete surfaced with Bitucrete. li miles with aspliahi- 20 concrete on macadam, 0.9 mile with Willite on maca- dam, and 33.8 miles with oil macadam. 8 The summary of construction proposed and done, as of July 1, 1920, under each separate bond issue is shown by the following tabulation : 9 Bond issues. Miles pro- posed. Mileage actually constructed 1909 3.082.3 1,300 1915 679. 71 550 1919 1 1, 798. 80 Total * . 5, 560. Ul " 1, 930 1 One hundred and thirty-four miles maintained under special appropriation roads. '' Mileages shown under various bond issues overlap in some instances due to the fact that separate contracts were let for grading and paving covering the same section of road or a portion thereof. In the following tables, Table 2 shows, as of July 1, 1920, the details and costs of the survey, plan and construction work done and in progress, arranged by State divisions, routes, counties, and sections, and Table 3 gives a recapitulation. These tabulations are from the official records of the commission. Certain projects there shown were improved by contract and others by day labor; those done by day labor are indi- cated by the letter D in the column headed " Contract No." Following these tables are three tables which show in Table 4 a resume of estimated costs and pay- ments made for labor and materials on both contract and day-labor road-construction work by divisions to July 1, 1920 ; in Table 5, a similar statement for contract work only, and in Table 0, a similar statement for day- labor work only. In Appendix B is shown a study in greater detail of 10 contract and 10 day-labor jobs selected from Table 2 which show the greatest percentage of increase in final cost over preliminary estimate. The final total cost of the construction work shown as completed in Table 2 is in excess of the total of the engineer's preliminary estimates by $1,469,122, or an increase of 6.24 per cent. It should be borne in mind that while this work was in progress the cost of both labor and materials was increasing throughout the United States at the rate of approximately 20 per cent a year; in general this increase of labor and material costs in California is about the same as in other States. The total cost of the completed work done by con- tract is $20,314,278; of that done by day labor, $4,- 679,529 ; while the totals of the corresponding prelimi- nary estimates of cost are $19,652,768 and $3,871,917, respectively, which results in increases of 3.36 per cent and 20.86 per cent, respectively. The total of payments for labor, materials, and con- struction equipment both on completed projects and Much of the work of construction and surfacing with oil top, etc., done by the State after July 1, 1920, was classified, and, conseo,iH-n I ly, corresponding differences appear in the tables on classification. Figures do not Include contracts for surfacing only. those still in progress is $30,936,871, of which $22,209,- 249 is for contract work and $8,727,622 for day-labor work, which amounts are respectively 71.8 per cent and 28.2 per cent of the total. There are also charges for surveying, engineering, administration, etc., all of which are shown in the recapitulation of work-done schedule, Table 3. Certain of these charges should be prorated to contract arid day-labor work in approxi- mately the proportions given above and the results 'added to contract or day-labor totals as the case may be. For various reasons it is difficult to make an exactly just distribution of all these costs. For the purposes of this study, however, the equipment and construction yard items, except engineer equipment, have all been charged as construction costs against the day-labor work and the above mentioned indirect charges have been charged against contract and day-labor work in the proportions of 71.8 per cent and 28.2 per cent, re- spectively. With these additions, the total cost of con- tract work is $25,687,016, and of day-labor work, $10,- 093,542, and of both, $35,780,558. Thus there is an ad- dition for surveys, engineering, equipment, and ad- ministration charges for contract work of 15.6 per cent, for day-labor work 15.7 per cent, and for both com- bined 15.65 per cent. This does not take into considera- tion the cost of equipment which is still serviceable. Assuming a value for the serviceable equipment of $400,000, and eliminating this amount, the above percentage for day labor becomes 15.88. The con- tract percentage becomes 15.85 and the combined percentage becomes 15.86. These percentages are very reasonable. In addition to the $35,780,558 expended from high- way and similar funds, it is appropriate here to state that $1,930,631 was spent from the motor-vehicle fund for " improvement," which is supplementary and ad- ditional construction. Compilations from the work-done schedule, Table 2, si low that the average cost per square yard of concrete pavement 4 inches in thickness and including all grad- ing and structures, but not indirect charges and over- head, was: For 1913, $0.987; for 1914, $1.233; for 1915, $1.116; for 1916, $0.971; for 1917, $1.717; for 1918, $2.105 ; and for 1919, $2.065. From 1913 to 1916, inclu- sive, the concrete was laid in the proportions of 1 : 2| : 5, and from 1917 to 1919, inclusive, 1:2:4 was used. The average for all years for 1 : 2 : 5 concrete is $1.143, and for 1:2:4, $1.837. For three-eighth-inch oil top the cost per square yard was for 1915, $0.0883 ; for 1916, $0.0863; 1917, $0.0832; and for 1919, $0.0719. All of these costs seem very reasonable when compared with costs during the same period in other States. The general progress of pavement and grading con- struction is shown by years on the several maps of Plates V to XII, inclusive. 21 c 1 3 Z s 5 5 a i i A a < * 2 M **l :::!!ii" ::::::::: : : : : |?a Direct construe- p- vm , tion payments. iif!il i'i*igign is ii | ni| W 111 SS i i ii 3 i slliiiiiS SI s gg i i i I l il i t* S>5 ec ^- f ' oo* oT^o'^r oTw" . .i^ 3 g-* bco ow -*^ M?5 r- rt 35 S S" a" :SS " Hill I S it51!?i 11 IS i t-." uo" S" * cTw"' -*" -^ ^c"r-" t?5 ::::::::::: :88 8 8 88 88 ::::::: :8 S 8 88 :S888S8 88 8 88 8 ^T Date, it- 8 f o O : iimiiajiHiaiHIBIiii 1 | S SS os5> co" Q~"T i-T' S ^ ' ' '^! !>' iJ -S.: 'Sj3r-'^-' M" 1 ^^ ^ : = iljj II illllll ^ 5 14 t ' ' ' ' be*; > 2 w o o > 3 y O S &. O I o 2^ i3 3 2-S22232S22 S3 2 32 2 =! 22 | 2 2 ! 2 3 | 22 to aT ?4 10 O> co'i'i --cstoroMo oo tecT -f o ?i ?i ri H *4 9 . -i :: -i _ _ 2 rf 8" S 3" j <3 & " "StS S -< E^ faO ^^ O - 1 ! H 1 It II i i i i i i i 1 i i i i i i s+ i 5 it 4 i tl S ! fci tn i-> : ra Thick (inch Type of work. Base. 50 jp ; CJ Ml .S d - d c c 6 ^-.5 ^T! > 'C'd'^'U > -a " O OB ' x ^ :3* i i : : : : i ': i i ! S is S * S. . TJ .5 "Ho 1 : ' ; o .a o : c? : i :3 ei ^ si" "- " ? s.|^3^^f ^^ J ^ i i * Sil m If KSSSSSSS? ? cd rf ci i 1 G5 T! N " oi N -^ -^ r-^ o-Jt^ J2 8 -S* jy i ji'l Ifj : : d :::::: t t o : : : : 1 I o : ccj^ : : : : : : t S i ' !i ; = -/O - E t^;C..;;-Z^.;3t: -; ^ iililUMl 1 1 ; ^ ; ; !i j | | ;J | i J M 1 g J= S :2 55 ^Si S^-o a Route. CO ^,.a. , , < sas ,aaa,, ^Tlc 77e ^ HH ^> "^ \ w O ^ **i *^ S5 CQ O CH G H^ HH Z --^r^^^^ : n TTT": : : : ~T~ =3132 - ... . . s -^ :::!::::::: : : : : :::::::: \S : : : : : 5 .^ddddcdd.5 o o d c c o c c d d d d d o c d o o ,d > d - - d i C p C. p d p 3-d_d,^c o o .S .2 .2' ?V: :1 : : :1 * : : il i ! i : i i : :11| : : P . Si i| S ||i|HIJJII l| 1 i NS 3 s 51 '1 s ^ Q a "a a 22 DIVISION I Continued. rn it 111 IS sll * DIVISION II. 1 1 a 1 3 'os fi : i i i e B : i S -:::::: 1 : : : t* .9 - i t^> " S M * ' 00"^ g gg ' .... : : : : : ;* S : : : Direct construe- T tion payments. Itflii! ** o tC gj J ^ iQ O uf -"s"" a"-" s" ' 3"" 2" - : irf : fs| Illl i S3 CN t- ^^ co~ ip g a 3)tCt^ O lOO C i i CO o' o" CO "5 CO OC CO I"- ' d 1^- O Cl SI II 88 8 : : 888 8 88 88 88 8 8 Date of 19 "S a s 5 00 I - i fa 2S2 -< |OCO(D ^H R *S $1 S ao r- oo o It! 2 2 222 2 22 22 2 ^2 2 2 ii ^gx >>>> w^j Sx 2 x 3^3 j3 33 5^ g 53 5 li ji i ; ::::::::-: H-H H HI M -.- 3 Type of work. Base 1 ; be ; es ' "c TJ IT C bO w.Ocr Surveyed Office building Maintenance yard S '"caS) ' ft * & ^ o w! -j ao-bc II'G l"o"C ! "O ! "C "^ S^ 12-^2 lei I*S j'2J be ?^bi^ P 2 SfS-" -2 ^ S ^2 t. 3 'so *- o 8 B 8 *- c t- aj t> tj 1.5 t^ 3 ccO OK (/;O O DO wO w ^ O OP5 O Oo O o be >S bib a> C X C c Q >- fM *- "" -^- ~ * U "C " " if ' S c i- ' o * O O -OO w || 31 d 06 c 5 S S S S S s^ 8 : : S i i t-t^^^l-I^CO^HlO 1 ^H l-H ^H (N -H Location. * Willits Arnold S 5 1 c ;;;::;::: :::: : 4 ' ^ .... >. . fl : : B ;;;;;; ; i ; i ; i j XJ Ji * . 1 rt C3 f*i 5 ^ -"fc - h* 53 C rt Easterly b< i i : ', ', ^ . .CO : : : : : : : : g ^ > i i i i ': 1 | 1^ It ''' ' 'a ' a oaa c I 1 1 E Ridgewood-Van Ars- dale. F Willits F Outlet Creek Arnoia Sherwood Junction., Rattlesnake Purnrit 1 : : %; : : ifcW B :3 j : !^s i ? Hopland IS * Near Susanvilie. Copperville do gBi6iIis5l < Bl?Ij1sP*S 3* B -i |s|l J**-!.? IIJl^SllsI 8 s 2 3S =^ Route. I j a A <* o : : ,0 -< 5 3- S?2 ; ; ; ; ; ; i i i 3 ; - i t ! ii i 1 S5S 5 2 5 I 22 Sis SSS s s 12 :::::::: 3 i I ss Sf ,.- C Oi S 3S"SS : : : : : : : : S j ! S3 - r- c 888 i -f C S S f" w l?li 3 S 8 PSS 3 i i o o ^* 00*00 o* ob oo % : SS : :S S : ijljiiii s ijijjjjj t ; 1 i - ! I t-7 (O O * i- a o> c . 5 S S 2 2S2 : 2 2 : . 222 '. 2 2 : \ I 7 | : 2 2 2382 : ~~ : ?S sf . : : 03 az-< s ' S S o IaS! : oo^ : 5 a : '. 22 8 8 28 ^U3 30 t^ .- . Ok ^*t- 822 222 82 2 Ok 3> 5 223 2 2 2 Ok 2222 222 222 22 2 : 2 "1 !* O i- -; ft 2 S3 SS2 a ? 00 ^532^ > s s -ss a a : 22 c.S o. - >> 5 II o-SPa, 2 S- 4_ w C a c s- 9 sas S|| ||| 1 | | T T & ;; ^ T ; | 1 uravi-lMir- ill ;sg - :--g a ii i a : 'S-a i : ~ M * t/ >~ i? isSc^n -7 C 3 O c :vi oj .= 1 ill 5 o 1 III ^ -3c-3 2 S S ^ c 1 . a) L :-J -_,. *> . . s 'S o OB = o J 5 5S : |l P! P If l J Ji f *SS:s3: -5 ^3 0073 CO'71 71 W73 sx 8SSS S3 5>i ?c C? "? o t*- S3-J P 2 '*"' ~ o g Wffi! -j icj ~iSai n .-a ;S8SSS S 5S st f :as j-i ~ Dunsuuiir Southerly bou a ^.. O E>5 ~^ S e : :f_ : j i j i j MMMMIi | : : ^ -." - 3^3 ^ t a 1 = 8 ' : t :*! - 02 C3 z f 3 = 2 5-S : o -1 : s | JP . 3 '- ^> ^ * -OSS : s 3 ^2 8 Ji : 5^s i it ;*= = : 1b ||* S : * " 25 i c SP 3 - CO ^ 1 at aed n-niilii 111 nsmuir... ithprn cil v v _ '5 Z w = H 2 as 1|1|! ^e M -s 51 s -^ 1- 3l| ! : j S- ill fe u |so-5P5 -s fe cils 5 e.= ^3S-=~ 5 S^S 3 x'E.S'3' Sc 'S ^3 : Ss J3 * g 5 : & 1 ^5 iSCa a Q 5 'is a >5 , ; r- < KQH H OB t-^ < < < < a x. -KK.^ 3 * ICM , , .J,oo<^, ' SSS S SSS 88 ^ CCCC f to f *" ., " " " "2" """ '"" ^S S?s SS S^ ^ ooo o T-cn -c cococ KOC Tr-c-c^TS 5'~ l^'- ^ o e o t c c cccocccc es ; ; ; ; ; ; ; ; E o o ooo ooo oc | H: ::: ii _3 ^^O^S -j O_S O OO w J f > . . -r . . . SA :s : : : : : : : : : : Direct constnic- p tion payments. itiwr s / IS 1 * r .. 1 1 f !^J |t2 S :? S5 l~~ I- 1 ! w li! gl 8 r 1? Si- co* f^T oToo" ^-< CO is li s i il |g S'O 10" cc" f fe - g- :g SI Jlfllll U S^ZH "^ (N M P io OHO f Os Os >O O gT uf Tc^ II 3 ! i ! C* OS -H g . s . l|i| 8 8 88 8 g S 8 8 : g S S SB S 888 :S 88 8 i 1 1 5 > i "3, S o O S OS OSOs S 2 1 1 OS . OT> U U3 i 0> 0>0 OS >O '0 e S CM a OS Os OS CT> O> OS Oi OJ OS O> 2~ * ?f Sif g fc S-S 3 S % 5 d OS fj" c-f 1 4 bib ! b r^ cc 01 S tj > *; bit > O o S O a" a" a ESC ^ >> So 3 :3 33 o S 1 r- osocnoirs o S St 2 2 0> 0> OCOS tD * -* OS OsO 0>0> * O> r- co - O> Os OS O OSOiOJCs O) Os Oi Oi O> Os Os O> OS OS Os 4J ^> t*>ft o t* cj "73*73 Q; 32 rt o f".n a li II li! gf 2 2" $ 1! II c5 c-i & ?5 3 WH 0) .X 02^; SKI Q w if 2 a sf 1 I * 2 ! g iifjj I Ilg I i t t 2, T 2 22 ^ J i 2 i il "I 1 i ^^i 1 """-"* rt Thickness (inches). i aj Me i i *. . ,*,... : : : ; * 1 * * 33* * 3 - > , i~V~|j !^ o-* - * Type of work. j d " o gT ss.i- CO CO .2 i i o o o o j 1 '. ' c c B ' bo 1 'a 111! i^Si? o> c C O Is*! fi|{ S 10 hi f, E 1 : M i i . ^ hi bc be-! iii ggg.- OOOcr ^ "a? '^0 "o s o ^ a> o (- ' t_ f | CJ c a 1 " T) *-> 'r*+j . tCC | i J CtiC^ 1 O*'bC c2" eli 5< do Surveyed, total 12-foot concrete base. 12-foot oil macadam. 12-foot concrete base, oil surface. Surveyed ^ C t ;ss ig 8. 59 15-foot concrete base. 4.5S Oiling 1 8SSSS g >C GS CO O 1-^ RSS S 5 22 S 8 to o o oo KaSS ocdoo o to oJ r-l .^ t-I O Ot~- ** !> ( oo o o 06 O (O ' ilt f!i - *Q C C3 Q '"Q oZ o :o j' .!?...& ^i : S : ' ^ : J '3, o" . Q Lindo Channel Chico Oroville. . . . Borings at Feathe River bridge. Westerly boundary .. .do Valley Springs Hershey Through Arbuckle. Hershey Berlin ^SJ . . ; . . . S a ?c = : .1 .2 : : ^ S : : fl S ci S ' 5 - ^ s S G$ S o g^=5l il a * ^^ 3 53 S Wo coo > White Rock Shingle Springs El Dorado Southerly boundan Countvline... 1 a 8 CO T3-c'd2 -a -0*0 * TJTJ -0*0 'O-o 'OTJ'OTJri ^"O *OT3 r C'O3 -d ' ' : 3 : : : : : : : : : ; : : : ; ; :-= ; : ; : ; : : : : : ; . : : : : : : s ^ [* .... . . . ea ; ; : p ; ; ; ; : : : : ; : : : : : : :r u is^* c . . .0 )Q Q ^ Q C . .0 ) Q QQ Q Q Q 25 :8 : : : : : S : : :S : : : ;2 : S :S : : SR : : : : : : : : :S | i i m 1 i r ? r ri 5 r n : : | $ I C4 r 3 I 6 1 : :S S 8 g > -^ OS O M OO oo' ^T 1 SSS : : : : : :8 : :S S h- S TO g 5 ! K | ! 8 5 : a" : : : 2 1 1 i : is" *" S3 * tf " g" i 1 ;'2 2 2 2 S 80 s- r W TO t^ oo ^H fib SS3 2 2 2 s iiS ::::::: :f2 : : : :S SS S3" SS'S" i i i is" S -"<*" 80 cj" s? s >s c s s 1 - * M 2 2 2 2 ; 2 2 2 2 r~ SS'" * *^* '" cc 90 2 222 : : : :2 2 22 1 1 :a o a ti O S S : "S. w >> < 3 & 3 3 en Q < < 3 Sc.'S :::: g -, !-,<;&. ... .ft. 2; ^B iiii a. 22 2 2 22 2 2 2 i 2 2 O S5 if i 2 S S S ?i ~H ?j i s. & s *t T. 'S 2 22 ' ' ' *2 2 x he.. ::::::: :^. : : : :> 1 l<| i : I' If i i ! :z : 22 2 r r 3" S" S" si =? *3 o> Q 'fell .'o * o * !, JM 12 7 2 HH - ; "** i i : i-iy : : 1 T : :=? ^ I I c . 3 " CT* 5 S S x " 5 - : lijjijiji] ; c -I * i. ^ Ml 1 f ss-i 3 Q b C *^Xi 3 E * *- -- ? = 1 ? ST P ^ Fi- ? > g'. e o''S '- = 2 i > 5 ^ =f 3 i o 5 5 S > * - "1 - I 2 " ^ * i i ^ i * 3 : ^ ? ? -g o d o' "_ _ 3 c' v' : o g~ o 1 o 6 x - o g g o 53 :'t C : 5s ^>'' . > ^2 S A : .'.= = . = '.A~ _= '.=A~J>~ j I! I^ll 1 E :c""a' a .l S" 2 ^ : 1 il| ~ - CQ -00 QOQC = = = s s o- c c c'3 ' wo6 I cs i- -i si cio6 o c ;5g$ 8S8 :& SSS83 S?S S 5S2 S S Si RiR SS j5=> o d ,-ci g;;-*- og S w ri ~+ ~H N i : : : -a '. u o i jj : -g : i : : : : : : :^ : : :g : : : i : : : : :^ : : : : . : ::::::::;:= : -a : : : : : :::::: g S ....c ::::2:: ~ t h" " : : : 7. : l; iilk"Mmkc . Nevada Citv X o a \ ij i ^ i i i: iSJiiiiiiii^ i i i ii i i iiii i J : :^ -X o : :fe : : -: 'z 2* -s.< '. ' '."Z, i :w : : : S ^ iiliii ...do... At Walker Cnvk.. WalkcrCrcrk bridj, approaches, (irapil .....do Southerly bonndar ...do... Nevada City 1 i IP:, J W; 1 IN! 5 = i ."-= ; "- J g3i f /- ? is K < -~f. m CQ o Malltoca Houston School . . . HA A O O M 3 * 95 P5 a*;^ <: <: oe9odde9 ^^ccod do 2 o = ^o ,0 o o'd odd d d s ... a 3 2 ?,s i R 7 H ii a j Q C C o Q cs Q a 26 1 , ! o S a IM a ij n ! 08 OP K 2 w jj j- IcSg SR 15 : : : : jO .... g! i i i (O* > ' O* Direct construc- tion payments, i Itffill 1 j # i "i si s o* i : >. o o< 5 S '. 22 i 3 Oi CT> oT -T Ol os OS O> ao to o 5) os os 5t a ; ; gf Mf gf rf o" o" oT C "'^ ^ O ss ^r g" & | ft OT ^ 5 < S S '. E 1 1 2 2 S 05 s? sf I! 22 o c o e 3 2 2 2 S s i t* 00 (N OO f3 t~ I Hi Oi oT 5 it a 1 O . flj OJ s <-( ci cj M* ft! tj tJ 3 a ji ^ ft o "S "S *< S5O O gsflJ Ptjl li T :::::: 5 i 7 i i i 1 ' i i I ' T C^l Cl 1 c S Type of work. Base. f f 1 c I a ^f a 5 S i 2 |ll 2 O Is! s 5 o Q ~ 8 8? O *C -8> -1 ijfllfl 15-foot concrete | 4-6 .. base. Oil surfacing Survived . . . 15-foot concrete 4 . . base. Oil surfacing Surveyed . . . ~ "c k . r> : 15-foot concrete 4-4i .. base. Guardrail Snrvevine. total... ! A d C "3 c ? MM C I I U O o '3 -c *-> 4 *V -M yT "V^-S*^ ~ r C i . !> 12-foot concrete 4-6J . . base, bridge. 12-foot concrete 4 .. base. Concreteshoulders Grading 15-foot concrete 4 .. base. Surveying, total... 15-foot concrete i 4 .. base. If jj 85? %Z3> :8 : 88 82 8 & 3 G88. S S o6c4 o ai 5 '06 ' o* oi a* co oo * oc *oo a*3 "oo o^ rf * 25 1* o 3 o -* .I-* a! e-3 10" H ev 5 Location . ' French camp... Downieville 2J miles south C< dclia. rln Fairfield An Vacaville Batavia Near Batavia.. Putah Creek Northerly Bonn ary. [[ -I jlii i 0) ; >* S c 1 - " O ,S X^ O '.W ! Northerly boun ary. -3 | 1 ^ : ^ o Js O I : & [kS "o 3 o S 1 js 1 g 3 : At river bank... Salida Bald Eajrle rancl Knights Ferry ro Oakdale... Yuba City .2 ' 5 1 I 1 1 1 H iy If g ^S fe 3^3 OJ < O H Banta Paradise C ||s Benicia. . do Ip fo | c | | > : M 55 1 "^ Route. 6 n > E ::;::::::: : : : : : :::::::: 2 ::::::: = a :::;:;:::::: : :::::::::::::: ::::::::: Oo COOOJO OC OO CO O OO COO O CCO COOCOw O O O COO O OO O C O *^3 ^'C'C^/tlT) "O*- *C*O T3"O *O TJ'C 'C'O'C TJ 'O'O'O 'C'C'O'C'C'S *C T3 "O T3"C^ *O 'C'O *O "C u : : v:| : || t V : : ::::. .::::::: : ! 1 ||| || If " | 5 If * 3 | ~ 1 S 1 " I 3 I S 1 P J M 27 f ::::-:=:::::: i i 1 :g i : i : i i i , i i . r -j ' S i -' r~ -< o :52 -3 Jcf-T ef 1 53 -g a i i i ; ; ;i SS 1 E *** oo" 5 S? 3 CO* I i 1 1 ^4 ^ S! S" uf ' if Zf |JPI rfg- 00- i SS i 1 \ ec C I"*" N O R w > " =3 iS 8 8 88 88 8 888 8 8 88 8 s s 8 8 8 : : ;.. .. .. .. 00 CO r- to oc S S S 1! O OS S S 2 O OS 01 a. os os as ~ 5s r-- os jcf - il 5 1 II || I l-i! S If I s < s s i 3 -1 -* 3 1 . - O> >.1 2 2S J: " S S 2 3 2| r- *O Ob m 8 a' B s i := s" to" Sc 7 It 1 C "t-'tc" eo" ' ' t -T. -!^ j> 2 S~ tl k OS < S Mil : : : : ~ ? i4 4 . . K5 -f 1*5 -f C4 C-l , ,. 1 J? ; i is * h is -r ** 2 " iiiii I Is 1 i 1 l|l ^ _-jj ^_ r - -|5 |Sa i * | "gj ^p i|| J ' _|. il il, . C ;5 w C S-; o l.Vfoof concrete has** . l.'.aiul 21 foot con- crete base. >utrviM-iii<' titt->l l.vfoot concrete base. \'i and 21 foot con- crete base. Miirt-orarl . c ll Mirvcvea do Grading =SS7 H^S 8 -re O '^r^^t^i cr ?r ^ -* 'T-l W C C 5O ^ - "H SB :K 2S S N IN : = ' = S S 8=5 2 38& o *"* "" *"* TT~^ ' - ' -6 r ii $ al . Yolo by-pass.. Wnhstnr in i if ii i K i^ V. x r ^- o : : : ji * 1 * & N :s . Morrison's Cro Ing, s- Marysviile i'.- I ? >, ."^ ; ^ p, 'H '*> V) . J , , . i" f| ^ | il I_.i I || ||f 111 If! SxC;-H <>* t- : : : a. o : : = . . M I : i = >. fl "^ 1 =J i. N = 5 -51 i-S ti - ca o .es - t- o *j ^. ,~ .;; f^ co 02? -C2 CQ Southerly boundary Approaches to Gras hopper Dry Creek and Best SI Bridges. Morrison's Cross ing. I I Western bound do Keystone js ! S a to -is -:" n < < < < B , O '^ :C C-5 ^T X CO CC A . l 1 ^ - . . . c . ... . : : : G : : ; : -c T? T ^: -c T -e c T >ct- ^ *?^~r^. TJ as - ov o- -" t-x^c^ c - t~ 5 " " 1 " 1 S ~ 1 < J oa a a a a a o - f? SS KS S" 5 Jg"*"' 8 S 888 os r. - r. 5" 1 3 I s^ s s 888 2 2 2 2 S" 2 < = -< -^ r- 10 e t-5" -T 'pf^f r N" P" ?T" iM* 3 V4pitvi4M-llii 2%. TT T *" ' L. IM ' * U O iSfc c -= O O sllllj ;Si~*" S SS5S ? 3= -*" teno * "5 il>1 d E Ilii 2SSS aiS M G <:cHw !! 4 -"'5 :-SS :|-g :o 3 1 1S15 w o ao 'O O OO -t^ iO 8 uf ?f sfsf sf - " SSS 23 S icTeT pTco"o 15 ^J-H (- 5 s-s; ' O O *f o ^ S -Z |l|!!ij 1 155 i sf jo Q c5 IT? o ** i ifj Jb c^efo* wTpf oTo" >o o< t- 7* co ro ^ S ? f- ?! S S S ft 3 :"* ^ ! 1 *ili 8 888 8 88 8 8 88 888 88 8 88 8888 888 8 8 8 i8 8 8 8 ; Date of i S SSS -f iO iC t- iO iOO - - - - - , . , - , - T. r- oo o> loo o 2 2 1 S > y 35 Z Q OO.> O O> Oi Ol 01 o> a> o 01 a ai o> o> o> o >o> a a" ""ss" f III S s o oTt^ co 1 "o 1 ^"to" ,QO ti Ci CJ ^ ^ C 3 aj [x C 22 S 0>0> S sss is >o t- >o a> * o >o oso* 5>a>oS S s 2 t 2 is 2 2 2 M Cl ! i * 222 2 o> 01 tii sf 1 2 3 2 ^ ilf*^ S3 c^^e^ *c>f ^-cC !i 1 1 ill Hi 1i u Ii II II 1' -." Of CC" -*" tO~ " a 8 a :a> g 5 Q :3, z ( nrtj '? f T i IT t T i IT 1 j ji i 7 : :7 7 7 : :7 : : :7 7 t : : : f : i : :'? T Thicknes (inches) ,= I ., -* * i i* :::'?*' * i i i : i : E c 't "o 1 H' 18 - foot concrete base. do Oil surfacing Concrete base Snrvpvpd . . 24-foot Tapeka surface. Survevine. total... Grading 15 and IS foot con- crete base. 20-foot Topeka on concrete base. Culverts ^ If Hi I ill i 1 1 I Fl c - : 3J E i fe 1 'sol-'g-i i |dl \ o-J>>w Westerly boundary. Stanley Road Hayward I I if l?:-iS i! N it = t lfc 5'2i 1 -,3-2-Ss :^ :| '.| -s t; Ktalfl ?*!*? -S : S | 5 llllsl-gltll s| ll 1 1 gIl>|ll|Si 3S l| /.PH cc cc Pi-^ O r /J C^ o-Q OJ i C/2 O GOO OO ,,, ^^ -2 " o oo 1 T i I s ? Q i III St< *f o cs ^ u> ra i cc ^ oo oc -M ci PV ti ct**a n i c-i OQ Q Q S 29 ::::::::::: r : : : : : : : : : : : : : ; 3 1 i : 1 irii; r< o- ::::::::::: 8 i :::::::::: co* cT cf *o* of --TV si s 3 x, 7* 06 S 8 V -T V eo' x: cs 9|g 'i' "= R C ; j||_ 1 : i co* o 1 *ff i^" V 1 Q* otToo" o* -I" s fi w o *5 Nt- . ?2 S3 S $ S e| os eo r- r~ o c* S S" 2" 3 " S" | 1 Pii SI I B S 3 S - si' -- 1 iigslSlss i S" 3" 2" S" " S" g" g" s"" s" a" e'jf g" 5V -" OC O -H U^ -^ O O C< S || S S5 *** 5 S M c5S w S3 s 888888 88 88 88 8888 8 8 88 8 S S 8 88 8 S S3 Sg SS V i - \ o> 3 ic 2J CQ ^ 2* 2 S 3333 3 33 3 S S SS " 3> O) Ob OS cs O 1.0 aO 2 2^ r r r r r. ~. -. 3* at s" a" a" sf a" as" s" 2" tii-.|j,n.f,| < O & < <5 < % S, fn sf rf iff tC -- T W P4 J- cj > ^ ? SG 2 " rr agf f2" *i > >> > > cS > o o as 0-3 as o o zs z^ az t^ s CiCiO>cso>o*3* 2 J 5 Sf "* 8' S" Jftf S" z:' c. c, -3 * a c. A = <; < ^ (T, H <.? < Ci CO ** f>- 3 3 33 3 S 1 co -w r*. S3 S3 S oS SS S3 M Q C* - f-H rf * b 4 1 S * 3 f 8 S S 10 " S " a o. ao o. & S ; - >* 1 si i f f T i~ '"o co j , , - ** ,- . t? 5 1 * : : 15-foot and IS-loot concrete ban 1 . Surveying total . . . T i ^. :. : - i g | 1 _ ||_ I -S | 1 | J ! ll = "ri,= i -i5 " tsSSf "5 c* aofe^u t^H'-cH't) -i."- E-it".! siiP f liipiiiii M &^&" 5 s^i i ^i? 11 1 J If fs!l I rill f piiiliililili ^OCb S?S?Q AC4 C^M^C* C/ g^ ei2 | -5^ |i g*~"|| * " CJJt/l!^! |{_ e "24 26 S-c S-c "5 1 I s s?! s ^ CJ OS "S tiT3 8 fc J = *J*^ t.* 3 " "TJ ! Q S O S * * O S " I 1 ! 11 !! 1 -! 1 o> o I 1 Si w "So ** '* b I 1 ?! 1 ! 18-foot concrete buse. Fencing Topeka surface SurvoyiiiK, total... N-i i 2 58SSSSSS2 S J5 * "5 -^ oa o - o as co 35 eo >-* c 3 es o -^ *M -r ^4 * t^ ^J $ & r^ cc y ^ o 2 ' 9> ~ -j e (^ t^^ ? a" > t. S Si ad ' ss? tf> - N CO * Easlerly boundary | > * i ; i : S B : 1 : i : 3 ' : ; 1 ** ff ^ ^^ 5 g^^a g's >fj S o^ o a m a co o co v. 2 S s | 1 a . : s 4 is 1 s S 1 -! 15 1 d "^ ; San Jose ...do... ! S J 1 jl I is i 1 1 ^ 1 ! 1. I ! Slag ails j> el o CT^ 1 I i !e| ! I! i 1 1 1 8 3 &^'5 "2 gs i 'S s 1 1| * 5S I < X OH M J EC "3 M I '. ', o o = f : 5 * J> 30 boundary tfl o : tt Ij il : :3 -3 j : : :* 5 := ^oj .93 Q afl g 1 dfe S * 3 ^ w c? :< a iSa S3 = 1^ < Northerly do . i it ii 3 5 il --, -/. -3 .00 a ! , 4 4 * .V M * 1, < <*> < < < << < n a s fflu ^ ao o ! * 7 2 i i a i a o ss s -=> 30 C g o ^ SS""" S" 0" 4, 475, 375 !^ j 33 3S fc- sT .a | s S 5| S Bs I d i ^ ^ill. 888 8 - 8 8 8 88 88 8888 8 Date of _s 5, s o O a' 2 t! 3 S 2 -j< i 01 a 2 || || I - i , I . ; S S S a srrr rt ^ C3 ^ f X CB S CO* O ?< oT jo" 8" 2" 2" S" fs Jf* $ 1 1 1 38 ^ S 3 - I * OC OJ -r M Tf a) .0 -0 I>- JS!| OSOSOS OS ^. 9> A O> C3> O 31 O) s" sr - r S" Sf 8 ' r Sg" ss I III 1 5 8 S % O. o O < .-s pig 2 o i i i |i| i o . o gi ; 3 .^ "7S ; rt^SCojdss . t to . O 9 JS JSA . - -H . C^. ajOOO.*/ 1 -8 S S2E 2 88 3 S S3 S! ' cojj 2 : i- i ^ c4 r 8 - i * : : : 1 I IL i 3 ll 1 . Cloverdale Santa Rosa 3 ^ = 3 CJ ^ i : : : yil isiiti' 3siil 05 m oB ss rt 2 o * C^oofflfiy i Glenwood Easterly boundary. (Jlenwood. . " s* jgg 3 Northerly boundary : "s "^ : : W ^i L 'rtS2 *^ O *3^ W M w Mi? Sw Reclamation Station o2 plus '22. . Petaluma Creek Sonoma Creek I i f Petaluma mainte- nance yard. Route. 1 5 <<< < ooo ^<3 , d 8 IS IO O .0 >0 10 3 X 30 OC 3D OC 00 'O o 1 C 4 g44 IJ CO CO a Marin. Sonoma. ... do c " H vision 1> o o c TST: ogoo o o oo o ooco_occ . c . . CO S O 9) W M -f "1 | | El S|p | O 3 ;o 2^:5 rt ^ is i- o>Ji3 So " O O - = r* I -" ^-."Ol C 88 8 :8 88 ass s 8S IS N iiiii 30 os r r 90S OS OS 1 533 3 eo r- 3 3 3- K 3 5 -i - o i a 1 f+ W -, i. O a SB c ce 3s = f i S. ft =" 5 &. < - : I * i- ' ? ee 1 *,:5 --.i-ll S llsfil S so a A _>> - c s^ i 9 I s .2 X 2 Surveying (total).. Snrvovnil ig'Sg J 2^5 : : : : o S ej ' ' C S C ,-?.- . i il !2 12 '. :'. 15-foot concrete biise.oll surfacing. 15-foot concrete base. (Jradine.. . I'i g i : :| esc g : c :a O 5* O 5^3 O .O 15-foot concrete base. Surveying (total). : : '-i i ^ 11 i, aoC Ha Maintenance building. Surveying... Surveyed 1 15-foot Topeka on concrete. 15-foot concrete base. Oiled eravel.. . I ^ 1 / i - I \ i 15-foot concrete base, oil surfac- ing. 15-foot concrete base. ! 2 N JO ^ 08 f? ^ j ?5S S 3 3 sS r SS3 S 2 i ft 5 332 S S- T r* ~* - ~ O S3 S S 3* 3S R 7 "d ^ ^' 2 C r- o o c 00 C^ S 2- "3 ' : : o* o Ii 1 i o 1 ! 2 - : : : : : : S : 8 -3 t nyoiit 2,'i j i i !iij || | ! jfj 1 Northerly boi ary. -- CO - o rt c o*c 1 ; ; | iji ii ; 2 : 3 c c ; : ; ; w c. *1 O cc tn I I I ii " Itffilj ii i ii i i ! i i ii ! ! i i i i! i i ii i ii i! :3& i i Direct co tion pay llj rH"^ 1 ^* c^i-T otT co" g^u^'M* (O* h- 1 "*" t"* ci" r "** W* CO* 55* i ~** ^T '** ^ M" ^ *V tO 1~ O CO ~- "M OO M Mm CO g i i -~ - -i jjfljf'fl iss g $11 38 1 si 1 s B 9 3 i 1 i I S|&1| s-sg rf ~ s tfR ' g^ a ^ ' a a g s s E fcesl 888 88 888 8 88 8 8 88 8 8 88 8 8 88 S 88 : : ^ SB'S : : . c sis ss sss s si 1 s ss 1 1 ss s s s s si : : IS" 5 " ff 22 f 1 *g 2 1 11 1 1 S 1 R I " 1 1 :: 4 1 $% |- gjt5 i 13 t 8 t g tig S & f t fs : : ::::-;: J 1 : ' 1 I '' ' *3T1 13 T IB ||| ii:::: * " i : 2 2 ii 2 22 =? *? 722 r~t ' *-( r-l ^1 11 7 ::::;: ^.^::^<^ ^ ^.^ * ^ ^ - ^ M :::;:: : : : f^ A QJ !!'> w vi-.ivo' o> o> g ^*3 ' * "it +* * ' ' 12 ** ** n K .X * s I * 5, i : -i ^S S P* G ^'goct* CM.C c 3 OoJ.g,) t bJO O *< 3C C' O *' B B 9 n OcO O S :a> : : .s : : ^ -o's u ' " u -s * 9 . <> % a| =:::::: g '.JN : : : N 2o 4 < '. B s O |o * ! l ;; 2lig ; S H 1 &a|| Si^-jti = i : Isil ', wi , ,feOT I O r> W ^"^rSOn O *S S i'H.2' > 1 ^ ' ^^ -3 8 w S rtl "O'C ft _.X'O'^'C'* J 1 .^^ 3 H'^i lj> Jsll 1 -|!z- 1 R^i^uii :s l * ' ; 1 ! l-^-a illsfflfl f If Iff I- 8 ftlllil Still 11 1 ^| 1 lilfll HoowN2>3w-C< M WW C4 C< MM W d O* M C4 Cl MM M MM MM M > 5 ^o'dd do d d o'od o* do d d do d d o'd d d do* d^od do o'^c i : i i i : i i i :::::: i : : : : ::::::::: ;| i | 'So CM u O C3 G fi QQ WO ft GQ QQ fl*5 33 lii J i ! 19 I fi< o i i 'a " 3 :& == == =,=::: 1 a | j. ! | 6S , u z 8 s j mi* MMjSi nnimmHi- i! " I !J i 11 S S : : : : : 1 g s 2 s s s 3 S S S 8 8 2 <5 SS2 - 2 a SS S " :g a : : : : :SSi : : :2 : : : : : : :S S K 5 :| : : : : :2"S"S" :::!; :::::::: :S" ff " S : : : :8 : : : : :8 8 : : :8 :::::::: :8 8 8 S :::: : : : : : :: :| :::::::: :2 2 2 S 8 88 8 10 a * o 88 88 8 : : : : : I 3 I 2 sf s" s" S 3 1 S S S" 2" *- rf S" 1 55 a S 5 t 1 ? 2 2 ? . ::::::,; :: : c - :::::::: :^ -^M M : 3 '.'.:: :s a ::::::::::: :s 3 3 i : : : -T ; ; ; ; i i i i ;;;;;;;;;;;;; ft : ; w ::::::: ::::.: N ti biy ^ : i 3 35 o. zz z~ *~ff oo" t^ & 1 cT S eS S S3 1 II II "11 N 77 f * rsf r i j I i i * a w < * 10 ^ II 1 1 1 1! 3 S c "3 -c * - J 2 2 a a O 0> o o fl bib c bc* o c o c 9 8 | u fiji 2 2 :::::: 2gl |1 |^ 9v I r; b LA 5 B *B fi ,2 B * C & '* '3 3 * Q ' fi '/ X f~t S M I -X IO *00 CO i !OcO I I ' ' IzO O Oo* C j|i iiisa J53 i33 0^ 2 o 2 02 s'5Sd'go ln '^ ^'ooc S g & 8 S S 2 iSSSS S =82 :SS^? S8SSS2g2888g S SS 8 S O S O OS ^H O SS S3 S :SSSS 0(5 ~- t- c* oJ t-^iooco cxj ciod or**C5 *--> t^iocjc^ooJooog o ooe> t-^ r^ to rt ri ~" OO> OSC*i N >&9)A 18 : : : : : ::::::: i ii^ i :::::::' i* : : S3 S of : : :.... > ! : : :| : : : : :* :| : : :| :::::::: :Sg : i H . : : : : :::::: 9 ^ 2j'3 Q I 5 fsil m BMW || 1| 4 ;i;;;|Jl i i i! i i i 1 i i i i HiJJ US, _ ^a" ^ d So w n *-i 08 ^E o : : : : : * ? j 1 || || S J ill 1 ;;;;;;;;;;;; : ; s s & ^ i 1 "3. 5 *a : 5 s i 1 s i & g S wB 5og 5 1 ? ^1 1 i oj j iiji il '1 * : i : : < < Q CP W W O U N g 00 % : : : ::'::::: S : : : : 41 #| : : :2 I : : s 1 itfWi ::::::::::: :S : * * "* T Direct con tion paym n 3 | ::::::::::: :' f g s en S aS S3 1^ " "^ CO 26 j* S r- ^< So eo c* is S r* S 8 ~ ^4~ ^r 10* * OS t 1 p'lf JS" "" 6" -" r|l ::::::::::: :8 8 8 88 8 888 88 ! j j | :8 88 88 :8 888 S J. o S i > 1 -3 S3 ::::;::::::: 2; : to x : : o> 9O>o o>o> r. r r. - r 8* me? "4o" o" fpf fw &nSo^H;ft : :<;^^^-5 ' :S 3 " S" S . it - * i! I S 2 < d costs Continued. Continued. O 9 . PCS ; ; ; i ;;;;;; ;s a s s i; iiiiiiiiil | | t | * S w e5 ^* * -c-5 M S2 g ^>^ ' tJ" _J !^ 1 _ - c-S^ o3 os 5 z o^^ o-< :53 a 5 : : ; : : : ::::::: :t T T^ O ~. ^ ~ Cl M CO Cl if B S 1 = :S o S5 '*t^cr-oio-*5CQoo* c-i oa o to _^,_ 03 ; "o * o mmHiii* [i] ii! ! -l! w >? . TO : :* :| : : : : : : : : : .= . . a ' j H ::::::::::::! : :' ; S ::::::::::: ::2 : :| S ;:;;;;;;;;;;! ; ; g i feOcc.2-. mO-3 00-- ^.^loCgJ' S^;o -*f ^o Cgf^ GO* 'fl^-' Q o SS CSC3OO_j PaSC R B *A CO O " 2 i- re oc Of - O o 1 slSSI g i S s ! S!!! 5 53 Z5i2* n *o M* " J s" 1 | S SHL? 1 3 1 S i ISSill s iii 2 i i 8 * S 3 sf s" s ssassa 5 a"-- a" - ! g g| 3 i 8 S re s IfSSla ggg 1 1 * IM 'f.S8 'f - -s S 6 3 ' s s s sssssa s f- - 88888 8 8 s 8 88888 8 888 : 8 ; 1 1 a f r I \ : - :- f * - 22222 a" fas's OO s r 00 r ' 00 ** 00 S O OS 222 S M ||t fiOfi 2 222 " *ff r- 1 a \ * 5 | ei u I ^ ^! Ok 2 "3 ^ ^ r- x r- e 5 3 S3 S c r rf S8 a i --" B i ^ S" 2 ^* : r 1 " c c T I i r-o 222 xTcTtf- 2 22 i 1 'll 1 i 2 S II Xffi & a T 2 i : : T " 22? i lit * 2 :2 I J| ; i i i : : : :** : *" : *" : " " ; ' ' * | i 1 il j i 1 50 H| I - ** H 1 . '. ^ \ -r 84 Surveving, total... CrmliiiK do Concrete liridges. . <;ni(liiiK llriilires. . j s I S I t. -7 (Jrading Survevod. . (iruding ...do.. 1 j | j^ -;! ^ > El r : /, / i.vroot concrete base. do #1 concrete shoul- ders. 15-foot concrete base. i,, M 1- =_S .|1 i f t r S S I gas ' - r =ss s -* rf ^<* n ^ r^ 5~-a! SO * 3C t^ -^Sfl "' 3 - St pirf C* acffl^^ S ** csoiaS-: *i at sa g j a! S 8 H -.-: ii 8 Kast boundary SherwMl Hill... Whiskey Canyon.. M,.,r, C|,-ek ... Station II) phis (Hi . Devils Pun c h Bowl, Tiopi Komi, roilte III. > 5 1 f 1 -If 1 i H :>*, 55 ^ North boundary... Traver NearOoshen 8.P.R.R stiition 104 plus (XI and station jr plus 00. Siution ;iT. r , plus 00- lUttenMfplusOO. I.lvinnslon. .. , = xjfz >> . i S ^ J* i i - =''S i g - 7 De.nlmiin Creek Devils Punch Bowl. a A 1 11 luii. in A South bouiidnry B Tipton V 1 mile west of Visiiliii 1>-B (Kwhen B-U Violin l' : Truvcr E I loshen . . Truvcr Kinj> Klvor bridge. (loshon A \Vivst boundary $ d a OA a - - =, i mr* ** m ^3S 3S3?3?i 3 a 3333 3 33 S* " """vJ *** iS 22 o o o o 13 TT-C -3- 4 O O C C-ST: o d o o o c s oooo c : r SgTS-O-O-S -3 T> O'O'O'O 13 -CT5- 5 S : 5-3_| -31 o o c o s -3t; s o a o c c o ts-OT) -s- o oo S 3 o -0-3 33 *7 T*T "T "i T --<.-- a a 2 2 I a a a i ; ; : il ; ; : : i s of \ ii Kg i fT-.r C- i is is SSS N 3 ;= S2 i 1 11 R2 t ii is" iaa gs" s II i III e 2 r r. sa" c ^ 11 ii \ ill S 1 m 5 a 1 I | ii - r- r~ Iss | ; ; i 2 :2 > J ; ; Z O S i* * '* a I 1 Coucrctc bridge... Abutments (or subway. Construct! Hi; lie .- i > 0> Imse. do Concrete bridge... LVfoot concrele base. 3 8 - Sff 83 "* = Coyote Wells > < Hi Q Kl Centre 1 \Uc. Cleek l.ll.ll'c San Ulogo & Arliona R. R. crossing. MvArul'riinlr 1 | [ ^ : : , , Dixie Land Nnw River bridge. . . I'avlnf at Brawlcy (anal. - ^\ ! < uuu 107 Imperial do' t o-a T 38 | a i 4 ! I . e c s T5r ; i a 36 TABLE 2. Construction and costs Continued. DIVISION VII. Continued. I 'S 3 w ** T Br4 .jS S & fS-o ^Q OS^ Payments for |1| :: S MM 88 |_J IN M pit : i ihS s i ; i i : : : : : : i - a Direct construc- tion payments. gss g ! a s 1 g s i i 1 8? M 5 -" * 1 | eo ^H t^. oo 111 B SJ 10 " 3" i B" S s s S ISSI i s S) os S *? r- 9 B S g 2- S SS SSKS RS2 ra ^H CC CO 4 ., 0. OiOi -S OS O> S 2 2 t 2 35i if* 2 2222 o K B 1 2 gf " a O O Iiiiii i i 1- 1 1 < < co S Q si *; i >> O CJ CJ 08 03 Q o o a s liHl t t t 3 T 1 : 1 T i j 2 i : 7^7^ t gjj t T 2 2 i ; i T -r ^4 : : : : : : J. , I M o Grading 15-foot concrete base. do Surveying, total... i i 1^ ill! Ifli! 1 ft 1 j |{ |jj ^ * 2 & ip5ft< (S o 1 i i^-ft pi iSIH So 8 o = Oiling graded road Move pipe line Surveyed . . Ho i Calabasas mainte- nance station. Russells ranch Saugus Castaic Santa Clara Newhall property. . Station 320 (Sec. A) Castaic PH ' Si o ' o no ;*> id e !!- : 5 ^ tfl X ill o rt 3S 00 ;Pt & -1 ; j ;| g | New River bn Approach to River bridge Westerly boui Kane Springs Gravel Wash 1 ^ I 3 a : >- i-d 5 < i B 1! 1 i 4 a is a s 5 1 1 oo M ^ i CQO QW IK -!JP50O X Q C33SS . , ,^H Iw fJ : : :::::: :::::::=$:: : : : : : : : i i :$" :::::: ss 8 Ji i^ s - oo SS S 5 ac JS 8 ss" - s" --V" af . .OiO . : : : : : : : * II B |W| ' 8 S 88 : :S8S : :8 : : : :S : : : : :S 88 8 : :8S : 8 :;:::::::: :88SSS 88 8 88 88 8 888 8 s! o ao to >c So S3 ss s f I" a" 1 " S?Sf I" : . I" \\\ :S :.:. :S 82 1" : : 1 S i : ::::::: :g.sjssg gS ^S 1 **? 1 w o oo N 1 C< ^^ I ^H ^H e OS a 8sS 8 ?;IM So -j POZ o r o" oT "* sf^sf ' "*~ w" " ** *oo fc rp : ::::::: :g(*"a""" el ' ST ^ 22 AT |i >>'^'^'^"3'^>.>'C^'3^ p ^o "o "Q; I |i| || ||| ; |g |i 1*1 i! i I! Ill '=sg^ 55= Oo 20 Topeka surmce 18-foot concrete 4 ... base do 4 ... g S Sg55 gg^?52S 9SSS :33 :SS3 S 5SSS2 :::::::::::: :fe :Vi : : : t-- r- eoco osoJ RS S SS8 2 , g -^ -,- ; ; V - -g p | ::::::: :| ::::::::::: . :::::: ; i ;;; j ;..-.;; ;^^ g j Anaheim Station 3 plus 00. Northerly bound ary. : 8 t : i i =g : i :l 1 ! ! 1 j j j 1 M I ! : ; : : J : ; = i i i i i i i i i i i i i"">, : i l^.dd i i|| j lit 1 i i i i i i i 1 ! i i ; ; o'|=j j 1 i 1 i i i I i i 13 : 'P1 oo Z ... :^ . . .W ;f . .-<;OH . OOJOJMM now -' C f 5 24 1 o ; ; ; ; i ; :s ; :^ ;;:::; ;| sg II i| s 5 : : :JL: :b ::::::::: :g .s gM : : : :< 1 .1 S : : : :So^: :g . : : : :g :::::" w w : : : : -g IX ill i IflS S gS Sg; = = "oSS H * fe ' '"^ S cJj^JeS Q I 1 iii!!! I!*! 3 1 oO c t= f * J3 5 : : J : : E% S g^gg^g^ "ggg O * 1 Q QQW ^^^^O" QWOMhHH^^ ^^CQ fPW fQ OOQsy&5 O ^IffloQH I^^^!'*i^ ^J^ ***1 ^ r^ n o nm u c Eu PP a p o o o o o' o o o o o' o' o o' o o c o o o o c o o o o o o o' o o o o' o o* o' o' o' o* o' o' o o' o c S; o* o' o o o' o o' o o' o' 444 =0 M ft Sfe " SS 38 1 ^ |ll : : S3 jjj - j -X i i i : S : : : : : : 3 :S : : :::::": : : _ IT i !IBB i h il ' ' i sr ti iTi " I* i s i i 1 !^ i i a BH n * : ! 8 i : rf i i" i i ; ; : a :i : : ^ i"^ i i i i i rf i : it- Itffiil Sffi i i i i : fc : ia was as S .3 l g : :9 |g | SS :g 3 : : : :::::: :| p 3 dS J- el lif $3 : : : : ; IS I : :i : II 8" : :8" B~ Sf * :S? - : : : :::::: :g" - afsf _L 5*. . -3 S ::::::?} S : :S g : : p N : : : : :::::: ig> p gg w ilfllf _H ; ;S S ;S Jjf - ; ;| sr* 2 -^ is : i ; ;;;;;; ;# - ??8 * s :::::: : : : : : :::::::::: *i|| 88 : : : : : :8 8 : : : i- : ; : .- : . : 8 8 : : :8 88 8 88 :8 8 : : : :::::: :8 8 88 4 j <*tt ! i i i i :gf f ! i '. II MMMllM! S o> r r = 1 < a Ml" & I i; Is ill! iiiiiilS i S CJ CO o .2 I . " cT o" < ' " 0. : :> w.^, ^ |j ' : : : : :::::: :d ^ >-^ id costs Cot Continued. s . gS .0,2 3 8 1 :::::: a : :p M mmt MM ^ 1 t T C4 P* W ' N M C^ ' W ' W C< ' ' !*!! C4 CM M I ^ ll | r * * r 3 O 5 .... ' h ^ S 1 S | jll Mill ijji ^. g 1 1 iff i i | iff ii i i i i MI n i | . 1 c-S 3 8 3 || Jfs ; ill" .11 ; i f-ib cotn 1 IcocoS Oco |O o J, 1 II 5 ! a j S P t? Kff 8SSS :53 SSSS 3 S S K to > >A oo O r to *S to *-5 .in i r- r- y5 iS c* ^ r-* u5o g ^^ M" h- f- 00 CO Ol OltOI~- ^ P4 W ' 1 ' ^1* ' ~~ lO -4^-i i^O . ii-; . >O 10 O ' C^ Cfl O^H i : c^ 1 6 a |ls : : : :. : :> ':' : :g fix :::::: : : : | S WOO ' ' S ^ o ;1 d ^ ! 1 , -A c ' : ; .ja a" o w i ijl i!.j il if ii*i ||[||||i Hit, M II i M i i i| ^ ifi G ll 1 CO . - .0 i ! W fc f j .O l a - - m M I fe 3 tg = 1*1 t to Z < f =3^8. O 03 o Q OQ :-! S S o> tD O QCO CO ( GO i -t >- < -/! s 22 22saias "78^ GSS = 40 TABLE 3. Recapitulation of work-done schedule, giving payments made for construction, labor, and materials, including engineering, equipment, and administration charges. Divisions. Prelimi- nary estimate of cost, labor, and materials. Payments made. Actual payments. i ilmr, and materials. Engineering. Legal. Con- struc- tion equip- ment. Con- struc- tion yards. Miscel- laneous equip- ment. 1 Miscel- laneous. 2 Total not including equip- ment. Total Including equip- ment. Prelimi- nary surveys. Legal and general. Field daring construc- tion. Engi- neering equip- ment. Overhead. During construction. Divi- sion. Head- quarters. Divi- sion. Head- quarters. 1 $3,541,403 2,954,377 5,724,521 4,670,553 4,372,462 3,853,791 7,399,220 $3,303,142 2,385,465 5,876,803 4,475,375 4,276,459 3,605,482 6,280,745 $229,753 256,430 272, 628 242,530 166,592 166, 147 246,905 $3,557 3,415 5,843 12,457 3,834 2,641 2,624 $171,089 a>s,t>s3 299,076 291,677 187, 923 164,953 289,885 $5,518 7,161 6,094 6,083 5,434 5,576 5,430 $60,637 87,421 75,521 72, 776 63,267 72,068 52,839 $21,966 21,965 21,966 21,966 21,966 21,966 21,965 $28 $5,487 5,486 5,486 5,487 5,487 5,487 5,487 $29,878 28,312 18,352 15,590 23,357 16,109 28,224 $14,652 6,999 4,414 55,777 4,269 $43,839 57,919 102,663 53,501 78,637 58,535 74, 739 $104,042 124,089 142,049 138,000 128,864 122, 776 137, 128 $3, 899, 701 3,092,954 6,669,380 5,260,295 4, 854, 374 4,161,544 7,037,614 $3,993,588 3,193,345 6,830,903 5,391,246 4,966,071 4,241,764 7,163,641 2 3 8 27 12 24 36 4 5 g 7. 17,634 Total. 32,516,329 30, 203, 471 1,580,983 34,341 1,613,286 41,296 484,529 153, 760 135 38, 407 159, 822 103, 745 469,833 896, 948 35,005,862 35,780,568 i Miscellaneous equipment includes: Sand plants $35,792 Powder magazines 10, 655 Store accounts , 64, 834 Furniture and fixtures 42, 337 Auto equipment 266,895 Camp equipment 25, 279 Laboratory 5,351 Stable..... 17,712 Shop 978 Total ; 469,833 TABLE 4. Resume estimated costs and payments made for labor and materials on contract and day-labor road construction work, by divisions, in California, to July 1, 19%0. 1 Miscellaneous includes: Purchasing department expenses $22, 883 Accounting department 221, 904 General 559,940 Laboratory 39,907 Repairs to War Department equipment 52, 314 896, 948 TABLE 6. Resume estimated costs and payments made for labor and materials on day-labor road construction work, by divi- sions, in California, to July 1, 1920. Division. Preliminary estimates for projects. Payments made on projects. Preliminary estimates for projects. Payments made on projects. Completed. In progress. Total. Completed. Inprogress. Total. Completed. Inprogress. Total. Completed. Inprogress. Total. 1 $1, 591, 439 1,546,056 4, 192, 432 4,181,064 3, 822, 755 2,844,247 5,346,692 $1,949,964 1,408,321 1,532,089 489, 491 549,707 1,009,544 2,052,528 $3,541,403 2,954,377 5, 724, 521 4,670,555 4,372,462 3,853,791 7,399,220 $1,631,854 1, 707, 481 4, 704, 921 4,357,176 3,975,522 3,163,315 5, 453, 538 $1,671,288 677,984 1,171,882 118,199 300,937 442, 167 827,207 $3 303 142 1 $44,803 74, 670 761,116 638,359 355,705 462, 624 1,534,640 $1,358,905 564,343 926,304 198, 706 253,530 710, 746 621,691 $1,403,708 639,013 1,687,420 837,065 609,235 1,173,370 2,156,331 $56,926 78,368 1,054,549 554,200 464,302 609,093 1,862,091 $1,198,172 224, 135 953,930 118,199 44,772 323,238 452,247 $1,255,098 302,503 2, 008, 479 672, 399 509,074 932,331 2,314,338 2 2 385 455 2 3 5 S76 803 3 4 4 475 375 4 5 4,276,459 5 8 3,605,482 6 7 6 280,745 7 Total.. 23,524,685 8,991,644 32,516,329 24,993,807 5,209,664 30,203,471 Total.. 3,871,917 4, 634, 225 8, 506, 142 4, 679, 529 3,314,693 7,994,222 NOTE. Percentage of cost of completed projects over estimate equals 6.24. TABLE 5. Resume estimated costs and payments made for labor and materials on contract road construction work, by divi- sions, in California, to July 1, 1920. NOTE. Percentage of cost of completed projects over estimate equals 20.86. Division. Preliminary estimates for projects. Payments made on projects. Completed. Inprogress. Total. Completed. In progress. Total. 1 $1,546,636 1,471,386 3,431,316 3,542,705 3, 467, 050 2,381,623 3,812,052 $591,059 843,978 605,785 290,785 296,177 298, 798 1,430,837 $2,137,695 2,315,364 4,037,101 3, 833, 490 3, 763, 227, 2,680,421 5,242,889 $1,574,928 1,629,113 13,650,372 "3,802,976 3,511,220 2,554,222 3,591,447 $473,116 453,849 217,952 $2,048,044 2, 082, 962 3,868,324 3,802,976 3,767,385 2,673,151 3,966,407 2 3 4 3 256, 165 118,929 374,960 6 7 Total.. 19,652,768 4,357,419 24,010,187 20,314,278 1,894,971 22,209,249 NOTE. Percentage of cost of completed projects over estimate equals 3.36. 41 PLATE V. r - < . :_ - , -.. "C11JNK MM' CALIFORNIA - PAVEMENTS COMPLETED BY YEARS 1913 LE6CHD I"' ' *E . V .:^ 42 PLATE VI. CALIFORNIA SHOWING PAVEMENTS COMPLETED BY YEARS 43 PLATE VII. OCTU.NK MAT CAIJFORNIA SHOWING PAVEMENTS COMPLETED BY YEARS 1915 44 PLATE VIII. CALIFORNIA PAVEMENTS COMPLCTE1D BY YEARS 1916 mm ^B CQMnt1 LDt>VfilN6tlt I "~1 pfriviouSir cOMHtTLD XNM 6**ocD oumitt nit ~^;^ MtLVIOUSLY 6HAQCO ronii<*Hiw>wkv STUDY 45 PLATE IX. OITUNK MM' CALIFORNIA SNOWtNb PAVEMENTS COMPLETED BY YEARS 1917 LffitNO 46 PLATE X. & rAUI'XWXIA PAVEMENTS COMPLETED BY YEARS 1918 \ \ \ \ \ \ \ K "' N 47 PLATE XI. ' ; '-^ & si IHT1JXK MM" CAUFORNIA SHOW1H6 PAVEMENTS COMPLETED BY YEARS ISM9 LC.6UD 48 PLATE XII I! < ALII OKMA PAVLMEN1S COMPETED BY YEARS I92O N v. * yl - J^--' \ \ \ \ \ FEDERAL AID. There follows, in Table 7, the details of all Federal- aid post road projects approved for construction up to November 1, 1920. Those projects completed are iden- tified on the condition diagrams of Plates LXXIII to LXXXIV, inclusive, by their corresponding numbers. All Federal-aid projects completed or under construc- tion are also included in the detail table of "work done." RIDGE ROUTE," 4 LOS ANGELES C. FEDERAL AID PROJECT NO. 13. TABLE 7. California Federal aid projects, to Nov. 1, 1920. No. Route. County. Section. Length. Type. Agreement. Date approved. Status, percent com- pleted. Total Federal estimates. aid. 1 >2 '3 14 15 >6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 25 26 27 28 29 30 31 32 33 34 35 36 37 38 39 40 41 42 2 San Mateo B Miles. 4.24 5-inch concrete. . $70,654.40 $35,327.20 Mar. 29,1917 100 14 A 2.55 54,723.66 24,244.56 Apr. 17,1917 100 20 20 12 28 10 18 4 1 2 1 1 1 10 16 2 2 2 2 2 4 13 17 34 13 1 3 26 12 12 1 10 18 26 28 26 3 'D P A-B D-E-F G A D A B-C G-H F J B I A A-B C A B A A B C B A B 15.94 11.40 15.20 10.85 8.17 14.89 17.62 24.12 .50 2.80 7.73 7.43 9.73 9.36 5.19 1.29 5.23 9.37 3.56 10.73 12.79 6.68 10.74 21.90 4. OS 17.64 7.10 6.61 13.80 7.34 11.99 7.84 14.33 16.84 14.86 15.17 Grading Final c< Earth 210,668.48 310.9S4.30 273, 492. 03 78,717.65 246,668.29 266,667.85 < 310, 388. 10 152,946.92 285,403.58 39,471.56 239, 133. 84 151,646.96 117,368.00 116,708.02 166,885.40 42,310.40 100,070.85 139,889.31 85,373.97 329,598.61 257, R35. 86 137,303.70 71,828.59 105,334.24 155.492. 15 121,913.95 39,358.82 123,334.14 133,333.92 136,404.64 76,473.46 142,701.79 19,735.78 119,566.92 75,823.48 58,684.00 58,354.01 83,442.70 21,155.20 50,035.42 69,944.65 42,686.98 164,799.30 128,917.93 68,651.85 35,914.29 June 24,1918 June 2, 1919 Jan. 8, 1919 June 2, 1919 Aug. 29,1919 Aug. 1, 1919 Aug. 29.1919 Aug. 1,1919 Sept. 11,1919 Aug. 1, 1919 Aug. 11,1919 Jan. 17,1920 Aug. 29,1919 Sept. 2,1919 Oct. 11,1919 ...do 100 89 80 40 100 60 100 100 99 100 82 59 100 100 89 100 100 100 100 51 90 (') 8 55 (') 100 82 73 (') <>* (?) do llodoc Earth Earth Humboldt Earth do Del Norte Hnmhnldt- 4-inch concrete Earth Lake do Los Angeles (See note under summary) do... do Nov. 19, 1919 Nov. 18,1919 do Dec. 10,1919 do do Orange. . Santa Barbara 4-inch concrete : Kern. . 4-inch reinforced concrete Stanislaus 4-inch concrete . Placer ... .do Earth 4-inch concrete .. B B B-A E F F E D O A-B E D 3 4 Gravel... . 37, 136. 70 422,063.13 107J154.79 78,399.04 224,649.11 18, 568. 35 211. 031. 5S 53,527.39 39, 199. 52 112,324.55 Jan. 17,1920 Feb. 26,1620 Feb. 18,1920 do do Siskiyou 4-inch concrete Earth ... Ran Hjpgn do. ... do " do . Concrete . .. . .* Riverside 4-inch reinforced concrete. ..I 356,735.53 178,367.76 May 12,1920 Shasta Grading Imperial .' 355,389.46 177,694.73 May 24,1920 TAli^mft ,,.,,.,,..- do isapproved by Secretary, reject withdrawn. , $15,827.90; concrete, $257,664.13. ' Deferred. 'Not started. >st, $272,809.28. Project statemen t approved. 7571222- 50 TABU; 7. California Federal aid projects, to Nov. 1, 1930 Continued. No. Route. County. Section. Length. Type. Agreement. Date approved. Status, per cent com- pleted. Total estimates. Federal aid. 43 44 M5 46 47 48 49 50 51 52 53 54 55 56 57 58 59 60 61 62 63 18 7 20 1 18 5 5 10 12 1 18 18 12 3 3 2 33 23 21 15 10 H B C D-E E B A F C D-E-F F G D A C D-E A H A B B ifila. 1.28 10.71 12.78 17.96 9.39 8.09 5.53 8.07 6.67 17.80 7.27 5.69 4.59 15.67 13.60 14.64 11.54 13.41 .23 5.95 12.40 $38,004.14 278, 320. 60 $19,002.07 139, 160. 30 May 12,1920 Sept. 8,1920 do 99 51 () M (') 45 ( s ) C) 2 C) ( 5 ) 14 C) () (|) |\ if ') J Yolo 5-6 incn reinforced concrete Grading do 190,439.45 ; 95,219.72 139, 146. 15 ! 69, 573. 07 ...do.... do do do.... 161,110.26 441,263.84 80, 555. 13 220, 631. 92 Sept. 8,1920 do do do do .. 119,412.48 59,706.24 Sept. 8,1920 Shasta ..:::::.:::::: Butte Steel bridge Sutler do SUMMARY. Miles. Agreement. Remarks^. Estimated cost. Federal aid. 221.34 135.26 () 4.08 $5, 081, 562. 40 1, 801, 762. 34 285, 493. 58 37, 136. 70 J2, 504, 041. 40 900,881.15 142, 701. 79 18,568.35 24.41 miles complete, 154.81 miles under construction, 96.30 miles reenforeed concrete, 42.12 miles construction not started. 124.52 miles under construction, 10.74 miles grading not started. One under construction, one not started. 4.08 miles under construction. Gravel Project withdrawn. 6 Deferred. ' Not started. 8 One bridge. NOTE. Project statements have been approved but plans, specifications, and estimates have not been submitted for projects for which amount is not shown under agreement. 1. Tabulation includes only pavements for which agreements have been executed. 2. Type of pavement and reinforcing shown is based on plans approved by Secretary of Agriculture. 3. Of total mileage of concrete 9.25 miles is 6 inches in thickness. Of total mileage of concrete 15.47 miles is 5 inches in thickness. Of total mileage of concrete 19.48 miles includes rebuilding and supplementary construction of old 15-foot pavement. 4. Reinforcing has been added during construction on following projects: 9, 12, 26, 39, 41, 48, 49, 27 (1 mile). 5. Concrete on all pavements under construction has been increased to 5 inches reinforced, effective about October 15. 6. No. 21: From station 0+00 to 96+00, Section A, and station 30+00 to 124+00, Section B, on a concrete road 15 feet wide and 4 inches thick, with wprn macadam shoulders, was placed an additional 4 inches of reinforced concrete extending also over the macadam shoulders to a total width of 18 feet, and from station 124 to station 208, 5 inches of reinforced concrete, 20 feet wide, was placed on a road- bed which had never been surfaced. No. 22: Reinforced concrete pavement 4 inches thick and 18 feet wide upon an old concrete pave- ment 15 feet wide with macadam shoulders, same as No. 21. No. 23: On a concrete pavement 15 feet wide and 4 inches thick with 3-foot macadam shoulders, was placed a reinforced concrete pavement 4 inches thick and 20 feet wide extending over the shoulders from station 167+00 to station 237+00. From station 0+0 to station 167+00 and from station 237+00 to station 276+00, was placed a 1^-inch thick Topeka surface on top of the old concrete pavement and shoulders. No. 24: To a concrete pavement 4 inches thick and 15 feet wide with earth shoulders were added concrete shoulders 2 feet wide and 6 inches thick, and between station 300+00 and Station 494+60 an asphalt wearing surface 15 feet wide and 1J inches thick on top of the old concrete pavement. 51 BRIDGES AND STBUCTTTBES. In the first biennial report in 1918 is a statement regarding bridges substantially as follows : In 1912 the California Highway Commission requested the counties to provide bridges. As a result, the greater part of the new bridges on the State highway have been built by the counties or their cost has been paid wholly or in part by the counties. The bridges represent a very material contribution toward the financing of the State highways, roughly estimated to be at least $3,000,000. The counties have not reported the cost of bridges. The California Highway Commission set forth its general policy in respect to bridges in a vote adopted in September, 1!HL'. as follows: "(a) All such structures are to be designed by competent engineers and the plans, specifications, and workmanship are necessarily expensive structures. Owing to the rapid increase in the weights of motor vehicles, it appeared that a 20-ton tractor was none too heavy a load for the floor systems of steel bridges as well as concrete bridges. Also, the abrupt jump in loading from 100 pounds per square foot to 85 pounds per square foot at a span length of 150 feet led to inconsist- encies in the strength required in bridges of only slightly different lengths. The concensus of opinion among prominent writers on the design of highway bridges favors a live-load re- quirement whicli gradually decreases as the length of the span increases. As a result of these considerations it has become the practice to design both steel and concrete bridges of spans less than 50 feet and the floor systems of all bridges for the 20-ton tractor or 150 pounds per square foot, and long-span bridges for a 20-ton load assumed to occupy an area of 8 by 15 feet, together with a uniform load of 60 pounds per square foot on the remaining floor area. These loadings are also recom- mended to the counties. UNDERPASS. 6 YOLA A. to be subject to the inspection and approval of the highway entniieer of the department of engineering. "(6) The width of such structures, exclusive of sidewalks, if any, shall not be less than 21 feet in the clear. "(c) Concrete bridges shall be designed to sustain, in addi- tion to the dead load, a uniform live load of 150 pounds per square foot of roadway and the floor system to carry a 20-ton traction engine. "(d) Steel bridges of spans less than 150 feet shall be de- signed to sustain, in addition to the dead load, a uniform live load of 100 pounds per square foot of roadway, and the floor system to carry a 15-ton road roller ; for spans in excess of 350 feet, a uniform live load of 85 pounds per square foot of roadway, the floor system to carry a 15-ton road roller as in the case of spans less than 150 feet. "(e) Trestles shall be designed to sustain, in addition to the dead load, a uniform live load of 150 pounds per square foot of roadway and the floor system to carry a 15-ton road roller. " Further, that the commission hereby declares itself in favor of concrete structures whenever such structures are consistently possible because of their substantial permanency." It became evident that to design long-span concrete bridges for a live load of 150 pounds per square foot required un- The initial organization of the California Highway Commis- sion did not include a bridge department, so that when bridge work began to develop it fell to the lot of the office engineer at the headquarters office to carry it on. This arrangement has continued to date, and a squad organization in the headquarters office has developed as a result, with an assistant engineer and from two to three draftsmen almost constantly employed on bridge work. Nearly 250 sets of plans for county bridges have been checked and over 100 structures have been designed by the highway commission forces. Seventy structures, other than short-span bridges and culverts built from standard plans, have been built or are being constructed under the direct control and super- vision of the California Highway Commission. In a number of cases the commission has furnished inspectors for bridges built by the counties. The construction work is carried on by the same division organizations which handle the road work. The commission has furnished plans and handled construction for bridges paid for wholly by counties and jointly by the State and counties. It has handled construction for the counties at their expense and from plans furnished by them. It has fur- nished plans and specifications from which counties have built the bridges. The total cost of bridges constructed under the 52 PLATE XIII. CONCRETE BOX CULVERT 5 ALAMEDA B CONCRETE CULVERT. 5 ALAMEDA B. 53 PLATE XIV. YOLO CAUSEWAY. THREE-SPAN CONCRETE CULVERT. 7 TEHAMA A. 54 direct supervision of the commission amounts to nearly $1,400,000. Short descriptions of a number of bridges of various types constructed on the State highways since 1912 are given in the report. The prevailing type is the short-span reinforced-concrete girder. On the whole, the results of this cooperation (with the county) have been fairly satisfactory, but in some instances a disposition to build bridges according to the practices prevalent before the development of present-day traffic conditions has manifested itself. In a few cases it has been impossible to prevail upon those responsible to change their ideas and build for present-day traffic, with the result that there are some new bridges on the line of the State highways which are not up to the usual standard. While these have never been officially taken over as part of the State highways and the commission disclaims responsibility for them, yet they constitute a part of the traffic route and may easily become a source of embar- rassing controversies in the future. At present the required uniform live load for the floors of steel bridges, trusses, and girders less than 60 feet long and for concrete bridges, except earth-filled arches, is 125 pounds per square foot. For earth-filled arches 150 pounds per square foot is assumed. The uniform live load for girders and trusses is gradually reduced from 125 to 100 pounds per square foot, for spans between 60 and 100 feet long, and further reduced from 100 to 70 pounds for spans from 100 to 250 feet long. The present specification provides for the concen- trated load of a 20-ton motor truck, and the maximum stress from either the uniform or concentrated load is to be used. For floor beams two trucks are used. The unit stresses are increased 15 per cent for this condition. From a study of design loading in use by 36 of the State highway departments, it is found that, while the California assumptions are not as high as those used by some of the State highway departments, they are from. 10 to 20 pounds per square foot above the average for uniform loads for spans less than 200 feet long and less than the average for spans over 240 feet long, and about as high as any for concentrated loads. The bridges and drainage structures built by the State highway commission are in general adequate and well designed and constructed. Some of the larger structures are of noteworthy elegance in design. The Yolo Causeway, 3.13 miles in length, is probably the boldest highway structure of its kind in America. It is to be noted that many streams in the flat valleys de- mand bridges of excessive length to provide for flood stages. Consistent efforts appear to have been made to eliminate dangerous grade crossings, but much remains to be done. MAINTENANCE. The books of the commission show a total expenditure for maintenance from the motor-vehicle fund of $5,780,- 550.92. The items making up this amount are shown in the reconciliation, Table 8, and by State divisions in the recapitulation, Table 9, of which Schedule J fol- lowing is a part. TABLE 8. Reconciliation of highway maintenance schedule, California, with statement of condition of funds, July 1, 1920. Total direct charges to highway maintenance per divisional sheet $4,276,211.77 Undistributed charges including: (1) Injuries to employees $15,328.17 (2) General expense 49,463.84 (3) Maintenance of plant 17,947.78 (4) Repairs to motor vehicle 146,208.49 (5) Repairs to other equipment- 62,732.34 Undistributed overhead, removed from direct charges by analysis since July 3, 1920 24,828.55 316, 509. 17 Highway maintenance, direct charges, per state- ment of condition 4,592,720.94 It will be noted that the total of the so-called " direct charges " exclusive of equipment amounts to $4,- 276,212, so that the indirect charges, equipment and overhead, amount to $1,504,339. Of this latter amount, however, $613,729 was spent for equipment, much of which is available for use on future maintenance. De- ducting this item, there remains $890,610 gross indirect charges and overhead. It is believed fair to assume that there is equipment on hand to the value of $500,000 and that the direct charge should be increased by the difference of $113,729. There is a stores account of $26,419 and a county expense item of $21,893, neither of which should be charged against maintenance work already done. Deducting the total of these two items or $48,312 from the gross indirect charges and over- head, there results $842,298, or an addition of about 19.2 per cent of the direct charges and depreciation on equipment. The overhead is 12.5 per cent. This per- centage seems high for maintenance work and indicates the advisability of study to secure a more economical handling of this branch of the commission's activities. The direct charges, not including depreciated equip- ment, are : General maintenance proper, $2,470,836 ; im- provement, $1,577,691 (which is a construction item) ; and reconstruction, $227,685. The true corresponding direct maintenance costs are the sum of the general maintenance and these reconstruction charges, or $2,- 698,521, and to this must be added a corresponding percentage of depreciated equipment amounting to $71,763, also 19.2 per cent for indirect charges and overhead. In like manner the improvement cost of $1,577,691 must be increased by $41,966 and by 19.2 per cent, which would bring it up to a total of $1,930,631. 55 PATCHING CONCRETE. 7 SOLANO E. FENCED REPAIR JOB. 4 KERN C. 56 TABLE 9. Recapitulation of maintenance costs. Division. Direct charges. Indirect charges. Grand total. Total. General. Improve- ments. Recon- struc- tion. Total. Oiling plants. Mainten- ance yards. Mainten- ance equip- ment. 1 Auto equip- ment. Camp equip- ment. Shop equip- ment. County expense. Miscel- laneous.' Miscel- laneous over- head." S445,611 411,392 984,459 718,989 410,051 369,001 936, 709 $222, 810 135, 864 672, 298 455,935 283,316 257,943 462, 670 $222,301 275,486 237,959 248,035 145,440 83,949 364,521 $500 42 74,202 15,019 1,295 27,109 109,518 $159,726 127,206 311,999 253,735 153,078 208,508 290,087 $7,368 4,250 20,921 28,267 6,031 28,638 34,358 $25,528 18, 195 51,662 39,213 15,688 20,367 41,738 $12,601 10,008 43,244 32,927 18,750 41,295 35, 158 $585 1,210 1,370 184 2,275 125 1,764 $37 29 8,605 2,328 320 1,502 3,262 $41,766 41,668 53,507 45,697 41,908 42,696 50,858 $71,841 48, 514 103,268 86,684 66,154 57,286 116, 871 $605,337 538, 598 1,296,458 972, 724 563,129 577,509 1, 226, 796 $3,332 18,891 7,073 1,952 16,599 6,078 3 $10, 531 11,362 4 g 7 Total.. 4,276,212 2,470,836 1,577,691 227,685 1,504,339 53,925 129,833 212,391 193,983 7,513 Hi, OSS 21,893 318, 100 550,618 5,780,551 1 Maintenance equipment includes maintenance construction equipment, $210,349; engineering equipment, $89; furniture and fixtures, $346; stable equipment, $638; and patrolmen houses, $929. 1 Miscellaneous includes stores accounts, $28,419; miscellaneous charges, $291,681; which is made up of undistributed charges as follows: Injuries to employees, $15,328; general exoense, $49,484; maintenance of plants, $17,948; repairs to motor vehicles, $146,208; and repairs to other equipment, $62,732. Miscellaneous overhead includes $525,789 administrative expenses; for salaries, office supplies, traveling expenses, and general expenses (see Schedule J), and undistrib- uted charges removed by analysis since July 1, 1920, $24,829. TABLE 9. Schedule J Details of administrative expense, motor-vehicle fund, maintenance schedule, by departments, for headquarters and divisions. Total head- quarters and divisions. Head- quarters. All divisions. Division I. Division II. Division III. Division IV. Division V. Division VI. Division VII. Engineering department: Salaries $199, 932. 77 $42,159.08 $157,773.71 $20,315.99 $8,556.49 $37,901.14 $27,663.06 $16,439.86 $12,899.19 $33,997.98 Office supplies 11,204.34 6, 104. 48 5,099.86 1,231.27 531.46 434.82 1,005.93 459. 61 317.85 1, 118. 92 11 681.52 1, 907. 65 9,773.87 2, 585. 67 549.18 869.62 1,341.24 707.09 1,138.94 2, 582. 13 1.3M.03 1,364.03 205. 22 17.72 167. 65 106.07 264.87 602.50 Hotel 1 791.92 1. 791. 92 492.50 70.86 217.40 335.31 424.25 79.46 172. 14 Stable 1,317.38 1,317.38 246.26 141.71 144.94 223.55 282.83 105.95 172. 14 Maintenance 1, 101. 48 1, 101. 48 123.13 53.14 217. 40 279.42 176. 78 79.47 172. 14 Total 228,393.44 50, 171. 19 178,222.25 25, 200. 04 9,920.56 39, 785. 32 31,016.16 18,596.49 14, 885. 73 38, 817. 95 Legal department: 9,919.79 9.919.79 Fees . ... 763.05 763.05 1 716.88 1, 716. 88 Total 12,399.72 12,399.72 7 821.36 7, 821. 36 81 013.47 26 707. 10 54,306.37 6,607.83 1,913.25 13,914.00 ii,009.34 6 434. 53 4 529.28 9,898.14 General expense: 37,957.38 11,255.13 28,702.25 1,641.69 956.63 5, 072. 80 6,091.46 1 909.15 1 562.73 9, 467. 79 24,389.19 17,359.62 7,029.57 820.85 513. 74 1,376.90 726.50 671.73 423.79 2 496.06 14, 166. 95 3,052.24 11,114.71 1,477.52 194.87 1,594.31 1. 620. 66 1,202.05 635.69 4, 389. 61 10 299.98 4, 196. 83 6, 103. 15 779. 81 230.30 797. 16 894. 16 601.04 476.77 2 323.91 48,277.10 9, 538. 25 38,738.85 4, 227. 37 3,968.22 9,203.55 3, 464. 87 3 818.29 3, 814. 13 10 242.42 8 584. 43 8,584.43 40 658.30 27 851.68 12,806.62 287.29 17.71 724.68 1,061.81 2 121.27 158.92 8 434.94 1 144.59 1 144.59 Total 185 477.92 82 982.77 102 495. 15 9, 234. 53 5,881.47 18,769.40 13 859.46 10 323. 53 7 072.03 37 354.73 Laboratory: 8,775.19 8,775.19 1,144.60 1,144.60 763.05 763.05 Total , 10,682.84 10, 682. 84 Grand total 525,788.75 190,764.98 335 023.77 41, 042. 40 17,715.28 72, 468. 72 55,884.96 35 354.55 26 487.04 86 070.82 " General maintenance," in the words of the State highway commission, covers " maintenance in present condition and 'making of minor repairs"; "Recon- struction " covers " rebuilding with original type over large areas," and " Improvement " covers " new or ad- ditional construction or betterment, and including changes in line, grade, or type of construction." Table 10 shows total consolidated maintenance ex- penditures by types ; following this are Tables 11 to 17, inclusive, which show the expenditures for mainte- nance of the various types by divisions. None of these tables, however, shows any of the indirect or overhead charges, and in each case approximately 22.12 per cent must be added to obtain final costs. 57 The records on file in the office of the State highway commission give maintenance costs in considerable de- tail, and it is possible to get total and yearly mainte- nance unit costs for the different types. For example, the average maintenance cost of 15-foot by 4-inch con- crete base, not oiled, has been $0.006 per square yard per year and for 15-foot by 4-inch concrete base with f-inch oil top, $0.009 per square yard per year. In special cases the maintenance has exceeded these fig- ures. These costs are for the items mentioned alone and do not include other items, such as shoulders, ditches, roadsides, etc. There are also given, in Tables 18 and 19, detailed costs of maintenance and improvement of 32.45 miles of oil macadam pavement as well as the first cost of construction of this mileage. TABLE 10. Total motor-vehicle fund expenditure, highway main- tenance schedule; all divisions consolidated by types. TABLE 13. Total oil macadam maintenance charges, by divisions. Division. Uiles. Total. General. Improve- ment. Recon- struction. I... 7.73 $16,577.11 $15 599.41 2 3 96 10 270 044 02 170 662 83 46 468.77 $52 912 42 4 5 42 15 806 58 14*162 43 *401 89 l' ''1 ' " 5 12.67 43,535.04 38*863 18 4 671 86 8 10.00 4 532.28 4 ij, 28 '433 32 7 55.11 56 402 20 48 961 01 Total... 187.03 406.897.23 292 347. f S3 039 sn fii sna 01 TABLE 14. Total concrete base maintenance charges, by divisions. Types. Miles. Total. General mainte- nance. Improve- ment. Recon- struction. Earth and gravel Oiled earth ... 1.524.17 23.72 $1,302,659. 00 29 732 75 $764,896.64 19 469.56 $533,493.22 10 172 08 $4,269.14 91 11 187.03 406 897.23 292 347 82 53 039 50 61 509 91 Plank trestle .44 386.63 '386.63 Pile trestle 1.24 3,039.64 3,039.64 Oiled plank road 20.80 86,308.77 16 224.01 70 084,76 Asphalt on plank .43 461.02 461.02 Topeka on plank Topeka on macadam. Concrete base .57 16.18 868.66 4,070.21 56,618.18 1 044 254. 12 983.43 23,148.42 619 503.33 1,416.63 31,030.94 386 735.69 1,670.15 2,438.82 38 015. 10 Oiled concrete 557.71 1 010 205.63 599 752.22 298 400 35 112 053.06 Topeka on concrete. . Asphalt on concrete. . Willite on concrete. . . 67.10 8.08 1.00 278,327.89 20,767.12 1,283.05 87,891.49 15,893.29 764.81 187,384.05 3, 138. 62 518.24 3,052.35 1,735.21 Bitucrete on concrete. Asphalt concrete .89 15.06 1,332.12 29, 858. 41 265.22 25,807.84 219. 73 2,054.52 847.17 2,006.05 Total .. 3 293 00 4 276 211 77 2 470 835 37 1 577 688.33 227 688.07 Division. Miles. Total. General. i Improve- ment. Recon- struction. 1.... 4.32 49.68 258.11 110. 16 149.11 118.86 178.42 $48, 141. 53 5,796.89 176,897.13 222.617.77 150,689.35 111,252.13 328,859.32 $10,740.01 ' 5,796.89 139,495.31 158,864.41 93,237.21 89,866.43 121,503.07 $37,401.52 2 3. .. . 31,507.95 59.874.01 56,945.09 18,889.73 182,117.39 $5,893.87 3,879.35 507.05 2,495.97 25,238.86 4. 5. 6 7 Total 868.66 1,044,254.12 619,503.33 386,735.69 38,015.10 TABLE 15. Total oiled concrete maintenance charges, by divisions. Division. Miles. Total. General. Improve- ment. Recon- struction. 1.... 4.83 $7,513.57 $4, 124. 26 $3 389.31 2 3.23 805.12 805.12 3. 105.90 180 652 79 90 504 15 78 765 71 $11 382.93 4. 68.76 143 211.78 97 726 53 41 184 78 i 'itl -!7 5. 68.09 123 710 45 72 106 61 50*907 23 ' - i 6.... 136.95 198,907.06 119* 335. 75 56 641 25 22 930.06 7 169.95 355,404.86 215 149 80 67 512 07 72 742 99 Total. 557.71 1 010 205.63 599 752.22 298 400 35 112 053 06 TABLE 11. Total earth and general maintenance charges, by divisions. TABLE 16. Total Topeka-on-concrete maintenance charges, by divisions. Miles. Total. General. Improve- ment. Recon- struction. ! 1 Division. Miles. Total. General. Improve- ment. Recon- Division, struction. I.... 178.10 $373,378.52 $192,347.81 129,260.85 253,065.32 91,511.18 26, 190. 44 32,313.62 40,207.42 $180,530.71 275,486.94 22, 130. 75 44,413.19 10,931.63 1... $500.00 2... 2 367.67 404,789.79 42.00 3 6.09 32.37 6.13 6.38 16.13 $63,547.56 123,246.06 14,343.20 15,362.86 61,828.21 $7, 161. 54 54,264.44 2,531.11 7,377.84 16, 556. 56 $56,005.11 67,600.57 11,812.09 7,985.02 43,981.26 $380.91 1,381.05 3 656.73 275,196.07 4 4 61.25 135,924.37 5 5 25.49 37,122.07 6 fi 122.79 33,996.97 1 683 35 7 1,290.39 7 112 14 42 251 21 2,043.79 67.10 278,327.89 87,91.49 187,384.05 3,052.35 Total... . 1.524.17 1.302.659.00 764.896.64 533. 493. 22 4.269. 14 TABLE 12. Total oiled earth maintenance charges, by divisions. TABLE 17. Total asphaltio concrete maintenance charges, by divisions. Division. Miles. Total. General. Improve- ment. stSon. Di n ' Miles. Total. General. Improve- ment. Recon- struction. 1 1- . 2 ... 2. . 3 4.00 $5,954.13 $5,954.13 3. 2 33 $7 636 17 $4 007 84 $1 665.16 $1 983 17 4 4. 18 796 58 '364 34 >' V. 42 88 5 3.86 18,828.84 8,565.65 $10 172.08 $91. 11 5. 12 55 21 435 66 21 435 66 6 15.86 4,949.78 4,949.78 7 7 Total 23.72 29,732.75 19 469.56 10 172.08 91 11 Total 15 06 29 868.41 25 807 84 2 054. 52 2 006 05 58 TABLE 18. Detailed cost of maintenance and improvement of St. 45 miles of oil-macadam pavement, distributed by items. County, route, section. Number of square yard-years. Total. PB. BS. S. CD. GR. G. BS. T. GE. Pit. Mendocino 1 C 402 500 115 599 1642 $11 322 $324 $1,659 $268 $1,330 $16 $38 Eldorado 11 B 179*200 'Z miles of oil-macadam pavement built by the State highway commission. County, route, section. Miles. Width (feet). Area (square yards). Construc- tion cost. Cost per square yard. Date com- pleted. Years under mainte- nance. Square- yard- years. Mainte- nance per square- vard-vear (cents). Improve- ment per square yard-year (cents). Construction costs and costs of mainte- nance and improvements per square yard per year. Mendocino, 1, C Eldorado. 11, B... Yuba, 3, B 7.73 5.27 9.45 15 12 15 68,024 37, 101 83,160 $84,167 102,020 72,644 $1.237 2.750 .875 June 23,1914 July 31,1915 Sept. 24, 1913 5.92 4.83 8.67 402,500 179,200 555,000 3.9 1.6 2.0 0.9 .0 2.3 Madera, 4, b 10.00 15 88,000 73,832 .839 Oct. 29,1913 6.58 579,000 .7 .1 32 45 276 285 332 663 1.206 1,715,700 1.98 0.84 TOTAL COSTS PER YEAR AND COSTS IN CENTS PER SQUARE YARD-YEAR, RESPECTIVELY. 1914 1915 1916 1917 1918 1919 1920' Totals per square yard. Cost of improvements. Totals and avcr- Cents. Cents. Cents. Cents. Cents. Cents. $978 Cents. 1.4 $978 Cents. Eldorado 11 B Yuba 3 B $1,015 1.2 $3,356 4.0 $2,889 433 3.5 .5 $5 701 6.9 12,9(11 433 15. 6 . 5 Madera 4 B 1 015 3 356 3 322 5 701 978 14,372 5. 2 Cost of general mainte- nance. Total Mendocino, 1, C 2,937 256 864 639 4.3 .7 1.0 .7 3,670 119 1,068 1,153 5.4 .03 1.3 1.3 $1,301 1.9 293 .8 890 1.1 222 .3 $2,234 509 985 750 3. 3 4, 829 1.4 1,325 1. 2 3, 689 .9 804 7.1 3.6 4.4 .9 627 405 2,611 417 .9 1.1 3.1 .5 15,599 2, 907 11,074 4,099 22.9 7.9 13.3 4.7 Eldorado, 11, B Yuba 3 B 967 113 1.2 0.1 Madera 1 080 4,696 6,010 2,706 4,478 10,647 -4,060 33,679 ,2.2 ' One-half year only. PRESENT CONDITION OF CONSTRUCTED ROADS To determine the present condition of the Portland cement concrete State highways and of pavement of other type incidentally laid field inspections were made of 1,734 miles of paved roads. These inspections were in such detail that each one-tenth mile of concrete could be classified; 7,500 photographs were taken and 638 sample concrete cores were drilled at intervals from the pavement. (In addition to the pavement inspected about 350 miles of graded State highways without pav- ing were also inspected, with special reference to the features of grade and alignment.) All inspections were so organized that a thorough initial examination. with photographs, was first made, directed by such supervision as was found neressary. Then as fast as the data from those inspections developed, supple- mentary and more intensive studies were organized to cover portions of the pavement which presented un- usual features or defects. Finally, a complete field in- spection of the entire pavement, with photographic record and field notes in hand, was made as a check prior to the compilation of final figures. All inspection field work and photographs were made with two main purposes in view: First, to determine the present condition of the highways with respect to 59 serviceability or usefulness to traffic, and, second, to determine the present physical condition of the pave- ment itself and the quality of the work done. CLASSIFICATION. To describe systematically the present physical con- el it ion of the concrete pavements, whether oiled or not, they were classified into six classes, designated by the letters A to F. It is particularly emphasized that with the exception of those sections of the pavement which contain failed portions, all of which are classed F, and also with some additional minor exceptions in the classes E and F, the classification by letter has no nec- essary relation to the present serviceability of the high- ways. Classes A to C, inclusive, are for practical pur- poses at present equally serviceable to traffic. Class D seldom presents bad travel conditions ; class E includes some pavement which is rough to travel, and class F in several instances presented pavement very difficult to travel. It is to be noted, however, that where" pave- ment is impaired to such an extent that repairs become necessary which result in fencing of considerable por- tions of the road against travel, then physical condi- tion of the pavement becomes an impediment. Classes D, E, and F frequently require such repairs and reconstruction. The following definitions of the de- scriptive classes for cement concrete pavement were adopted : A. A pavement in which the plainly visible trans- verse cracks do not exceed the normal number expected of a pavement constructed without expansion joints, and which has no plainly visi- ble longitudinal cracks. B. A pavement having more than the normal num- ber of plainly visible transverse cracks, or with some " crowfoot " cracks at the edges, or with both. C. A pavement similar to classes A and B and with one plainly visible longitudinal crack, or with a considerable number of " crowfoot " cracks. D. A pavement so cracked transversely and longi- tudinally that numerous slabs are formed of less area than in class C, but that do not average less than about 50 square feet. E. A pavement in which the plainly visible trans- verse and longitudinal cracks are so numerous that it is broken into slabs having areas less than about 50 square feet, but in which no gen- eral disintegration appears. F. A pavement bady broken and with disintegrated portions. The engineering inspection in the field determined by tenths of a mile, as measured by automobile odometer, to which of the above classes all concrete pavement be- longed. This classification operation disregarded the presence or condition of the three-eighths-inch asphaltic oil surfacing, but sometimes where such oil surfacing was present, or particularly where it had been recently applied or renewed, the observation of cracks and other defects was made difficult, and for this reason 26.2 miles of concrete pavement with newly laid three- eighths-inch oil top was not classified, nor for similar reasons 50.39 miles of concrete " pavement-base " with H-inch Topeka or similar top. On sections with three-eighths-inch oil top an error in classification may be assumed to be one which tends to raise rather than lower the class. This is particularly true as between classes A to C, inclusive. The record of this field inspection for classification is presented with explanatory legends in the " condition diagrams," which constitute Plates LXXIII to LXXXIV, inclusive, in Appendix H, and which are arranged according to the standard numbering system of the State Highway Commission for route, county, and section. The horizontal scale of these diagrams is two miles to the unit and the classification of the pavement by tenths of miles is schematically indicated by nega- tive ordinates to an arbitrary vertical scale. With reference to the descriptive classification of the 4-inch concrete pavement itself, it is to be noted that cracking is mainly the basis of measurement of classification and that practically all the pavement laid by the California State Highway Commission was without transverse joints. The classification re- quired judgment in many instances to evaluate mixed classification within a tenth of a mile and also to evaluate unusual combinations of defects. It is not mathematically rigid and is subject to some small error of position in the sections due to differences in odome- ter calibrations. In the main it is correct in detail, and the totals are probably subject to very little error. For all other than concrete pavement such classifica- tion as excellent, good, fair, etc., only was made. The results of the concrete pavement classification are summarized in Tables 20 and 21 and in Plates XV and XVI. In addition Table 22 presents a classification of concrete pavement and subgrade soil and Table 23 shows the mileage of all pavement and other roads con- structed in the State highway system. There are also shown in Plates XVII to XXII, inclusive, a series of photographs of each class of concrete pavement above described. 60 PLATE XV. DIAGRAM SHOWING PRESENT CLASSIFICATION OF PAVEMENT LAID EACH YEAR FROM 1913 TO I9EO UJ o or ui Q- 61 PLATE XVI. p 45 40 35 30 25 H a cc. LJ c 20 15 10 5 DIAGRAM SHOWING ERCENTAGES OF CONCRETE PAVEMENT CLASSES, IN SURFACED AND UNSUR FACED PAVEMENT ( N L i \ \ SURFACED >UNSURFACED \ \ \ \ \ \ i\ \ \ \ \ \ \ < 1 1 1 i i \ \ \ \ \ \ \ \ \ \ \ i \ \ \ \ \ \ \ \ \\ \ \ 1 \ \\ V,, \ k x \ \ \ \ \ / \ \ i w A B C D E F CLASSES 62 TABLE 20. Showing the classified condition of concrete pavement built each yew 6j/ the State Highway Commission. CONCRETE WITH JfrlNCH OIL TOP. UNSURFACED CONCRETE. Class. Years constructed. Totals. Class. 1 1915 'ears constructed. Totals. 1913 1914 1915 1916 1917 1918 1919 1920 1913 1914 1916 1917 1918 1919 1920 \ Miles. 2. S3 5.83 3.85 1.88 .10 6.00 Miles. 71.35 63.75 18 27 2.67 .40 11.50 Miles. 135. 59 89.44 60.19 11.40 2.40 19. 04 Miles. 26.90 15. 19 6.49 1.75 .35 Miles. 2.87 1.79 2. 81 1.50 .10 Milfi. 0.27 .63 Miles. 0.04 Miles. Miles. 239 85 A Miles. Miles. Miles. 3.74 16 91 7.98 3. 25 . 75 .10 Miles. 46.48 104 43 46.92 30.84 11.20 5.13 Miles. 3.78 24.50 12.47 7.16 2.19 Miles. 37.27 48.87 24.37 10.24 3.29 .05 Miles. 53. 87 66.78 23 90 12.20 8.23 .25 Miles. 33.24 37.32 4.15 1.60 1.00 .10 Miles. 178. 38 298.81 119.79 65.29 26.66 5.63 Q 176 65 B c 91 61 C J) 19.15 3.35 136.54 D E E p F Total. Total. 20.46 167. 94 318.06 50.68 9.07 .90 .04 * 567. 15 32.73 245 00 50.10 124.09 165. 23 77.41 ' 694. 56 i This total includes 17.75 miles of new Topeka on concrete pavement classified as failed. There were 26.20 miles a(" JI "~ 1916. There were also 26.56 i 1920. In addition to these i TABLE 21. Showing all classified concrete pavement built by the State, surfaced and unsurfaced combined. Year built 1913 1914 1915 1916 1917 1918 1919 1920 Totals. Class. Miles. Per cent. Miles. Per cent. Miles. Per cent. Miles. Per cent. Miles. Per cent. Miles. Per cent. Miles. Per cent. Miles. Per cent. Miles. Per cent. A 2.83 5.85 3.85 1.83 .10 6.00 13.8 28.6 18.8 9.0 .5 29.3 71.35 63.75 18.27 2.67 .40 11.50 42.5 38.0 10.9 1.6 .2 6.8 139. 33 106.35 68.17 14.65 3.15 19.14 39.7 30.3 19.4 4.2 5.5 73.38 119.62 53.41 32.59 11.55 5.13 24.8 40.5 18.1 11.0 3.9 1.7 6.65 26.29 15.28 8.66 2.29 11.3 44.4 25. S 14.6 3.9 37.54 49.50 24.37 10.24 3.29 .05 30.0 39.6 19.5 8.2 26.6 .4 53.91 66.78 23.90 12.20 8.23 .25 32.6 40.4 14.4 7.4 5.0 .2 33.24 37.32 4.15 1.60 1.00 .10 42.9 48.2 5.4 2.1 1.3 .1 418.23 475. 46 211.40 84.44 30.01 42.17 33.1 37.3 16.7 6.7 2.4 3.4 B . C. D. ... E F Total 20.46 100 167.94 \ 100 350.79 100 295.68 100 59. 17 100 124.99 100 165.27 100 77.41 100 1,261.71 100 Per cent of total each year 1.7 13.3 27.8 23.4 4.7 9.9;; 13.1 6.1 100 TABLE 22. Concrete pavement classes and underlying soil types. Miles in each class. Total Total percent- ace in classes D, E.aiul K. A. B. C. D. E. F. Soil type; 131.9 .3 89.5 156.8 53.2 225.7 .9 104.9 124.1 34.8 116.1 .2 56.0 38.1 8.5 58.2 .1 11.5 11.7 3.1 24.2 .0 2.0 1.6 2.3 27.5 .0 9.0 5.5 .2 583.6 1.5 272.9 337.8 102.1 18.9 .0 8.2 5.6 5.5 5. Sand, and sand and gravel Total 431.7 49.04 218.9 84.6 30.1 42.2 ' 1,297.9 12.1 ' Includes 36.2 miles built by counties. TABLE 23. Shouing all roads constructed and under construction in the California Stale system, />earing power. BEARING POWER. Soil studies l>egun in the laboratory of the Bureau of Public Roads at Washington have resulted in prelimi- nary and tentative tests for studying the bearing power of soils. The tests consist essentially in subjecting previously prepared samples of the soil containing various per- centages of moisture to uniformly increasing loads ap- plied through a bearing block 10 square inches in area and measuring the corresponding penetration. For two samples of soil with varying moisture con- tent, results are shown in Plates XXVII and XXVIII." Since a soil is characterized by its moisture equiva- lent, when the moisture content exceeds the moisture equivalent it contains sufficient free water to consider- ably reduce the bearing power, therefore, the moisture equivalent percentage is a critical percentage in respect to bearing power. 11 These are advanced studies from work now under way. 72 PLATE XXIII. PROFILE VIEWS OF SOIL SHRINKAGE. SAMPLES FROM 2 LOS ANGELES B. 73 PLATE XXIV. I > PROFILE VIEWS OF SOIL SHf SAMPLES FROM 5 ALAMEDA B. 74 PLATE XXV. TOP VIEWS OF SOIL SHRINKAGE. SOIL SAMPLES FROM 1 SONOMA C. 75 PLATE XXVI. TOP VIEWS OF SOIL SHRINKAGE. SOIL SAMPLES FROM 5 ALAMEDA B. 76 PLATE XXVII. (O D z g CURVES SHOWING RELATION BETWEEN MOISTURE CONTENT AND ? * BEARING POWER OF SOIL (6807 1 1 440 3 400 r^ J ^Xs 360 <** $^L P^ ^ J3 o- ^ jy ^^ rf s J* ^.J* p D" J rf 840 6 f . T~ P y f EOO / S* / f / 4 1C A ' S^l 1 O U / s / s / s 180 / J MO ISTURE '31.8 f y ..o-< >..<>... O [ .> O a. z ZOOO 1000 234 AGE IN YEARS 86 mixture of crushed and uncrushed fragments of gravel. The mineral composition of the coarse aggregate varied considerably. The prevailing types, however, were trap, slate, quartzite, and sandstone. The fine aggre- gate in general was clean and of good quality and well graded. The concrete as a whole was fairly dense, and only in comparatively few cases gave evidences of hav- ing been mixed with a large excess of water. Average results of compression tests of the concrete averaged . according to mix, age, and class of pavement are shown in Table 26 and are plotted in the diagram on Plate XXXIV. Averaged by routes the results are shown in Table 27. The strength of the concrete is very nearly constant for all pavement classes, and, with the tested showed crushing strengths of 2,190, 2,020, and 1,685 pounds per square inch much lower than the general average. An inspection of all cores showed the presence of considerable dirt in the sand which may be the cause of the low strength obtained. In Orange County, Section B, of route 2, four cores (serial Nos. 13, 14, 15, and 16) were taken, two of which broke during the drilling operation. The other two cores, however, showed strengths considerably over 3,000 pounds per square inch, although the broken con- crete indicated that the sand contained considerable dirt. The other cores tested from Orange County, Sec- tion B, showed strengths averaging 2,600 pounds per square inch. CRUSHED CORE AFTER TEST. exception of class A, the average for 1:2:4 concrete for the various classes is higher than for the 1 : 2 : 5. The general average for both 1 : 2| : 5 and 1:2:4 con- crete decreases with age with the exception of 1:2:4 concrete at four years and 1 : 2 : 5 concrete at five years. In the case of 1:2:4 concrete only six speci- mens were tested at the age of four years, which may account for the comparatively high results. In gen- eral there seems a slight tendency for the concrete to decrease in strength with age. This general tendency follows also within the various pavement classes, al- though there are several exceptions. REMARKS ON TESTS OF CORES. Individual results in compression considerably lower than the general average were noted in the following cases : Section C, Los Angeles County, route 2 : In this sec- tion three cores were secured after six trials ; the other three cores crumbled during drilling. The three cores In Stanislaus County, Section A, route 4, cores 17 and 18 gave strengths of 2,550 and 2,510 pounds per square inch, respectively. The concrete after failure indicated a rather fine sand. The concrete was also more porous than the general average. In Merced County, Section C of route 4, serial No. 27, showed a crushing strength of 2,065 pounds per square inch. The only distinguishing characteristic of this core was that it showed a very small percentage of coarse aggregate 36 per cent. In Madera County, Section A of route 4, cores 53 and 54 gave crushing strengths of 1,690 and 1,470 pounds per square inch. There were no unusual characteris- tics about this concrete to account for the low strength obtained. It is possible, however, that in this one case the oil skin top was allowed to remain in place during test, which would account for the low results. In Glenn County, Section A of route 7, cores 62, 63, 65, and 68 showed considerably lower strength than the average, or about 2,100 pounds per square inch. 87 There were no unusual characteristics of the con- crete, however, which would indicate the reason for the low strength, except that the presence of alkali crusts raises the question as to possible injury to the concrete by alkali in either the wet subsoil or in the mixing water. Other cores on Glenn County, Sec- tion A. showed strengths averaging 3,000 pounds per square inch. The general high average quality of the concrete is indicated by the fact that out of a total of 481 samples tested only 1 per cent gave values for crushing strength less than 2,000 pounds per square inch, and only 8 per cent less than 2.500 pounds per square inch. The gen- eral average of all 1:2:4 specimens is 3,640 pounds per square inch, and of all 1 : 2 : 5, 3,370 pounds per square inch. Since specimens were of different heights, it was impracticable to test standard size specimens. To ob- tain some idea of the effect of height of specimen on the crushing strength, 30 special cores were drilled from class A pavement, route 2, Santa Barbara, Sec- tion B, 1 : 2 : 5 concrete, four years old. These cores were tested as follows : Four at 3 inches in height. Five at 4 inches in height. Five at 4^ inches in height. Five at 5 inches in height. Five at 6 inches in height. The results are given in the column headed " Ob- M-rved values " in Table 28. flowing comparative com- pression tests of concrete check cores. It will be noted that except in a very general way there is no relation between height of specimen and the crushing strength. 13 These values could, therefore, not be used in deriving a law for correcting the strengths obtained on the rou- tine specimens. To correct the observed values of crushing strength for varying height of specimen, the comparative results obtained by a committee of the American Concrete In- stitute on " Specifications and Methods of Tests for Concrete Materials " were used. 14 All values for crush- ing strengths given in the following tables, as well as all individual results noted, have been corrected accord- ing to methods given in the above report, and are the equivalent crushing strengths which would be obtained on cylinders 4| inches in diameter by 9 inches in height. The " corrected values " in the comparison table indi- cate that after eliminating the effect of height of speci- men there still remains a considerable variation in the strength of concrete, even when the specimens are taken from a relatively small pavement area. a Doubtless the actual variation in tlie quality of the concrete In different spots In the pavement was greater than the variation caused by the difference in height of tested specimen. 14 Report of this committee is given on page 422 of the October-Xo- rember (1914) edition of the Journal of the American Concrete In- stitute. TABLE 25. Shotting per cent of coarse aggregate in concrete cores by planimeter measurement. PERCENTAGE OF COARSE AGGREGATE. Route. !:::4mix. l:2}:5mix. Remarks. 2. 48 (4) 50 (28) k odd hmd 4 50 (17) 4- '' 7 49 (11) VI ./' 14 50 (12) 53 (10) Do Average.; 50 (44) 49 (150) Figures in parentheses indicate number of specimens averaged. Average variation between measurements of two sides of core about 3 per cent. Average variation between measurements of check cores about 5 per cent. TABLE 26. Shoicing average compression tests of concrete averaged by mix, age, and class of pavement. MIX 1 : 2J : 5. Class of J Lgein years. Average by pavement. 3 4 5 6 ! 7 classes. A... 4,085 (2) 1 3,780 (11) 3460 (30) 3,390 (27) a o-*5 (4\ B... 3,040 (4) 3,660 (40) 3 540 (30) 3 310 (15) C 3,370 (30) 3 160 (29) 3*120 (20) o'-un u\ D 3,240 (2) 3,090 (25) 3,650 (12) 2990 (4) E 4,360 (4) 3,070 (8) 3,780 (7) 3,210 (8) 3 520 (27) F 2,980 (9) 3,660 (6) 2 9SO (14) 3 190 (6) Average, by years. 3,755 (12) 3,390 (123) 3,450 (114) 3,220(88) 3,180 (16) 3,370 (353) MIX 1:2:4. Age in years. Average by 1 2 4 5 classes. A... 3,470 (6 3,560(12) 2 940 (2) B... 3,740 (24 3,650 (14) 3 080 (61 C 3 950 (6 3,490 (17) D... 4430 (1 3,460 (13) 4 440 (6) E... 4,060 (9 3,130 (6) F 3)890 (6 Average by years.. 3,810(52) 3,500(62), 4,440(6) 3,045(3)1 3,640(128) NOTE. Figures in parentheses indicate number of tests averaged. Results are equivalent values for specimens 4} inches in diameter by 9 inches high. TABLE 27. Shoicing average compression tests of concrete aver- aged by mix, route, and class of pavement. Class Route - pave- ment. Mir. Mix. Route. 1:2:4 1 : 2J : 5 1:2:4 1 : 2J: 5 1 A 3,635 (2) .. 2 4 020 (2) 3,250 (24) 3,695 (18) 3,245 (33) 3,430 (22) 3,730 (12) 3,270 (15) Average B.... 4,365 (2) 3,650 (16) 4,440 (7) 4,110 (14) 3,555 (4) 3,390 (4) c....: D. 3,030 (2) E 4,465 (5) 4,560 (4) 4,905 (2) .. . 4,140 (11) 4,495 (6) 3,890(47) 3,435 (124) 3 A.. 3, 190 (2) 3, 170 (12) 4,260 (8) 2,795 (12) 3 77S V> 4 3,470(14) 3,290 (14) 3,940 (1) 2,815 (2) 3,065 (4) 3,320 (19) 3,280 (34) 3,010 (24) 3,245 (4) 2,850 (2) 3,065 (12) Average . . B c D 4)736 (I) F .. 4,042 (10) 3,790 (31) i 3 385 (35) 3, 1S5 (95) 3,465 (13) 3,360 (23) 3, 150 (13) 2, 785 (12) 3, 180 (6) 2,690 (4) 5 A 7.. X Avenge B C D.... 4,020 (2) 4,410 (4) 3,910 (4) 3,225 (5) 3 395 (2) 3, 080 (4) 2,335 (2) E F 2,985 (2) 3,945 (6) 3,580 (13) 2,830 (6) 3, 180 (71) 4,130 (3) 14 A 3,580 (1) 15. . B... C D E F... 3,090 (7) 3,815 (4) 3 230 (4) 3,380 (1) 3,485 (2) 3,615 (2) 3 255 (2) 3,160 (13) 3,760 (5) 3,745 (8) Figures in parentheses indicate number of specimens averaged. NOTE. Results are equivalent values for specimens 4$ inches in diameter by 9 inches high. 88 GRADED ROAD. ROUTE 3 SHASTA COUNTY. TABLE 28. Table showing comparative compression tests of concrete check cores. 1 Height of specimen when tested (inches). Crushed strength (pounds per square inch). Height of specimen when tested (inches). Crushed strength (pounds per square inch). Observed values. Corrected values. Observed values. Corrected values. 35 4,940 5,940 4,325 5,545 2,980 3,580 2,600 3,340 5.0 3,940 3,750 3,450 4,920 3,920 3,150 3,000 2,760 3,940 3,140 Average 5,190 3,125 3,995 3,200 4.0 6,380 4,000 6,040 5,650 5,270 3,630 2,700 4,080 3,820 3,560 6.0. . . . . 5,420 3,930 3,910 5,230 3,890 4,710 3,420 3,400 4,550 3,380 5,150 3,560 4.5 4,475 3,890 6,175 4,690 4,540 4,535 5,040 4,680 3,550 3.440 3,440 3,820 Average 4,995 3,785 i See note under table 27, p. 87. NOTE. Results under "corrected values" are equivalent values for specimens 4j inches in diameter by 9 inches high. Specimen cores were taken from class A pavement on route 2, Santa Barbara County, Section B, 1 : 2i : 5 concrete, age 4 years. GRADE, ALIGNMENT, AND LOCATION. Nearly all the graded and unpaved section of the main routes built by the commission were carefully in- spected with respect to location features. Such features were also specially investigated on selected paved roads. These location inspections covered particularly route 14 in Contra Costa County (Eckley to Martinez), route 7 in Solano and Yolo Counties, route 1 from Sausalito to Willits, and route 4 in Los Angeles County, also route 3 from Sacramento to the Oregon line. In addi- tion location features were also examined in connec- tion with all field inspections made to check the pre- liminary pavement classification. Grade and alignment in all- cases were particularly studied and with respect to (a) present traffic conditions, (?;) topography, and (c) right-of-way limitations. No attempt was made to classify location. Much of the road inspected is above criticism. There follow a few examples of location features that demand notice. Contra Costa, lli-R (Ecldey -Martinez}. On this section are short radii, blind curves, and excessive rise and fall. Probably more than a mile of distance could have been eliminated in the four easterly miles. Solano 7 and Yolo 7 (Benicia-Sacramento). There are some locations on this road that indicate too close an adherence to the old rights of way, notably between Fairfield and Vacaville. North of Dixon are two right angle turns in order to follow section lines, and this is repeated north of the Yolo County line. Route 1 (>ausalito-W!/'!ts). From Sausalito to Larkspur the road presents excessive curvature and im- paired vision. The alignment appears to be worth straightening to make this trunk line less slow and less dangerous. From Cloverdale to the north line of Sonoma County (1-A), a sweeping revision is indicated as very desirable in order to eliminate both blind curva- ture and the switch-back at stations 29 and 50 and to avoid the development from station 185 to the end of the project by a heavy cut in the saddle near station 202. On Section A in Mendocino County a route of less than 7 per cent grades might have been found along the Russian River between Cloverdale and Hopland, but heavy mud slides would have been encountered. On Section D in Mendocino County a new line in cer- tain places is under construction to eliminate curvature, and heavy grade, and such work could advantageously be continued in other places. 89 POOR ALIGNMENT. 1 MENDOCINO D. Los Angeles, 4-B, 4-C, and Jt-D. This is the Ridge Road over the Tehachapi Mountains and is built on higher standards than other mountain roads. Curves of less than 100-foot radius have seldom been allowed and the vision has been improved by cutting the inside banks to within 3 feet of grade. The road is paved 20 the light of present conditions, should have been made easier. Some of the blind curves from the summit north of Redding and toward the Pitt River bridge occur in relatively steep grades. The good location so gen- erally obtains, however, that it serves to emphasize the inconsistency. GRADED ROAD. ROUTE 3 SHASTA COUNTY. feet wide and the curves carefully superelevated. Some In several instances, notably on route 3 in Butte straightening could have been done and some of the County, the floors of small bridges are noticeably rough alignment improved as work progressed. but serve as a pavement. The connection with the Route 3, from Sacramento to the Oregon line, pre- adjacent pavement is often quite uneven, and it would sents much excellent location, and the elimination of grade crossings in Division II is specially commend- able. There are. nevertheless, many curves which, in appear possible to eliminate this condition by lowering the floors of bridges and carrying the pavement con- tinuously across. 90 ECONOMIC AND OTHER STUDIES GENERAL ECONOMIC FEATURES. California, the second largest State, had in 1910 a population of 2,377,549 and ranked twelfth. The 1920 census figures indicate the present population as 3,426,- 536. The increase is 44 per cent. In 1910 only 36 per cent of the people were classed as rural, so the popula- tion was largely in cities and towns. The topography in general may be characterized as one great interior valley and numerous small valleys, all surrounded by the Coast Eange and the Sierra Nevada and Siskiyou Mountains. The Sierra Nevada Moun- tains are highest in the southwest, between Tulare Lake and Owens Lake, and on to Nevada. The northern counties are generally mountainous. These features are shown to a distorted vertical scale in the frontis- piece. The main valley is subdivided into the Sacramento River Valley in the north and the San Joaquin River Valley in the south. There are numerous small agri- cultural valleys, but these two valleys, with the Santa Clara Valley south of San Francisco and the valley lands south of the Tehachapi Mountains, are the prin- cipal agricultural lands of the State. The agricultural products of the State were valued by the 1910 census at $153,111,013; they have since greatly increased, and in 1920 may be conservatively estimated at $539,000,000. The acreage of improved farm land in 1910 was approximately 11,389,894. The value of mineral and timber products in 1910 was estimated at $63,382,454. 15 There are about 1,000 miles of coast, and besides the harbor of San Francisco there are harbors at Monterey, Los Angeles, San Diego, Eureka, and Crescent City. Commerce with the Orient, Australia, New Zealand, and South America is extensive, and is supplemented by coastwise shipping and European cargoes through the Panama Canal. The bank clearings at San Fran- cisco for August, 1920, were $645,480,714. The State ranks eighth in exports. The climate of California is characterized by the vir- tual absence of snow or frost except in the mountains. There is considerable winter rainfall in the northern counties, particularly on the coast. In San Francisco the average rainfall for normal years is 22.27 inches. This precipitation occurs largely in the interval Octo- ber 15 to March 15. In Sacramento the average rain- fall is 20.09 inches for normal years, in San Diego, 10.01 -inches. The summers in the big valleys are hot, with unbroken sunshine. 11 These figures are compiled from reports of the U. S. Census, of the State controller, State commission of horticulture in cooperation with U. S. Bureau of Crop Estimates, annual reports California Development Board, statistical reports California State Board of Agriculture, etc. Railroad transportation in the State is adequate, and is furnished by the Southern Pacific from the Oregon line straight through the great Sacramento and San Joaquin Valleys and over the Tehachapi Pass to Los Angeles, thence through the San Bernardino and Impe- rial Valleys to Yuma, Arizona. The main line east also connects San Francisco with Sacramento and Reno, Nevada, and the coast route traverses the Santa Clara and Salinas Valleys to Los Angeles. The Sante Fe enters the State from the east at Needles, and crosses the fruit belt around San Bernardino, thence across the Tehachapi Pass, and down the San Joaquin Valley to Sacramento and San Francisco. A branch runs to Los Angeles and San Diego. The State is also crossed by the Western Pacific and the Salt Lake roads, and there are smaller roads, including the Northwestern Pacific through the Sonoma Valley north of San Francisco, the San Diego and Arizona, connecting San Diego and the Imperial Valley with the coast, and various electric interurban lines. There are numerous motor truck freight lines and autobus passenger stage lines which are described below. MOTOR VEHICLES GENERAL. 1 ' /The California Highway Commission is directed by law, as previously mentioned, to expend one-half the net motor- vehicle registration receipts for maintenance and improvement of State highways. 17 The commission is also authorized to issue special written permits for loads in excess of those permitted by the motor vehicle law, to proceed over State high- ways or bridges, and also to reduce the maximum per- missible loads on particular highways and bridges un- der special conditions. The commission is also charged with the duty of pro- viding forms upon which county supervisors shall re- port expenditures from their one-half of the net motor- vehicle fund returned to the respective county funds. With reference to these county expenditures, the com- mission states in the first annual report that the forms prepared were somewhat complicated and the returns extremely crude. There was an indication that the vehicle money was merged with other county funds and it seemed to be a general practice to divide the money into five parts one for each supervisor's district and thus to dissipate the revenue. There has been a rapid and large increase in motor- vehicle registration and use in California since 1907 " A summary of motor-vehicle legislation in California will be found in Appendix C. 17 Also for maintenance and improvement of roads in State parks under certain conditions. 91 and corresponding increase in the motor-vehicle fund. This progress of registration and revenue is shown in Table 29. TABLE 29. Approximate total motor-vehicle registration and revenues in California, 6j/ years. 1 Years. Total. Trucks only. Increase, by years. Total license receipts. > 10 020 1907 14,061 4,031 1908 19,561 5,510 1909 28,633 9,072 1910 44,122 15,489 1911 60 779 16,657 1912 . . 91,194 30,415 1913 118,716 28,522 1914 123,516 6,156 3,800 $1, 343, i 16 1915 163,795 8,189 40,279 2,059,683 1916 235,440 68,645 2,192,790 1917 310,916 75,476 2,846,030 1918 370,800 13,953 53,884 3,540,306 1919 4!'.i 4'^i 128,663 4,468,721 1920 '545,000 32, 555 51,537 4, 922, 250 1 Xotal automobiles and trucks from the records of the secretary of state, 1907-1913, and from those of motor vehicle department for 1914-1920. Trucks only from other sources except for years 1918 and 1920. > Prior to April 8, 1907. ' Estimated for calendar year 1920 from registered automobiles and trucks to July 3, 468,211. and to Sept. 24, 507,255, and exclusive of 8,107 U. S. Government and other motor vehicles exempt from license fees. 4 Trucks to Sept. 24 and with solid tires only. About 6,200 trucks additional with neumatic tires estimated June, 1920, are included in the column headed "Total." ' Estimated at 1919 average per vehicle. The progress of registration is also shown by Plate XXXV, which also presents for comparison a curve of total registration progress in the entire United States since 1906. In Plate XXXVI is shown the relative progress of motor-vehicle registration in the five leading States, in- cluding California, from 1914 to 1919. TRAFFIC COUNTS. Traffic counts were made to determine in a short in- terval (a) an index to the usefulness of the State high- ways to the people of the State and (&) a measure of the relation of travel to the condition of the constructed roads. The principal traffic counts were taken during an interval equivalent to one day of 16 consecutive hours, from 6 a. m. to 10 p. m., at 103 stations between August 7 and October 14. Supplementary counts were also taken. To check the positions selected for the 103 traffic sta- tions for the principal one-day count, the California State Highway Commission independently selected 187 traffic stations which were compared with the 103 stations already selected, and the latter were found sufficiently in accord with the State selections so that no extensive changes were required. The positions of the stations used are shown on the State map, Plate XXXVII. The traffic blank used is shown in Appen- dix E. Traffic diagrams of the State routes were prepared from the record of these counts. These diagrams, which are shown in Appendix G, were made with a hori- zontal scale of 20 miles to the unit, and the total num- bers of vehicles of all kinds counted at the various stations were plotted as ordinates. The ordinates were subdivided to show (a) the number of all motor trucks, (b) the two-way division of travel (either north and south or east and west) . It will be seen that most of the traffic stations were near towns and thus their result " peaks " of travel corresponding roughly to the size of the town and inci- dentally showing the relative importance of local travel. It is noteworthy also that the flow of traffic both ways tends to balance. The sum of the areas be- neath the total traffic curve gives the approximate total number of vehicle-miles for a 16-hour day, counted between August 7 and October 14 on the system of California State highways. This total is 2,582,201 vehicle-miles and about seven-tenths occurs on the State-constructed paving. This daily figure represents summer traffic when the movement of agricultural produce and tourist traffic may be assumed to be highest. On the other hand, it omits excess Sunday traffic and all night traffic from 10 p. m. to 6 a. m. It is also based on the " traffic curve," which is a combination of straight lines which shape tends to reduce the total vehicle-miles near centers. This summer interval extends roughly from June 1 to November 1. Using the total daily traffic-miles as 2,500,000 for this interval of, say, 150 days only, results in a total of 375,000,000 vehicle-miles. 18 For the re- mainder of the year another index traffic count is re- quired. These figures as stated neglect all special oc- casions night traffic, and extra Sunday traffic, which tend to increase them, rainy days, etc., which affect this increase. The resulting average of the different kinds of traffic for one equivalent 16-hour week day throughout the State is shown in the following table : Table showing average 16-hour week day traffic at 10S stations. Type. Average vehicles. Percent of total traffic. Percent of total trucks. 472 34.10 674 48.50 31 2.20 73 5.30 42.40 41 3.00 23.70 28 2.00 16.20 29 2.10 16.80 32 2.70 2 .10 1.10 1 387 100 00 100.00 173 Trucks, class 1 : Less than 1 ton with pneumatic and less than J ton with solid tires. Trucks, class 2 : One to 2$ tons with pneumatic tires and | to 1J tons with solid tires. Trucks, class 3 : Three to five tons with pneumatic tires and 2 to 3 tons with solid tires. Trucks, class 4 : Five tons plus with pneumatic tires and 3 tons plus with solid tires. a This figure is supported by the estimated gasoline consumption of 22,000,000 gallons per month by motor vehicles. At 10 miles per gallon for five months, if one-third of the resulting motor-vehicle mileage is on the State highway, there results 367,000,000 vehicle-miles. 92 PLATE XXXV. S3JLV1S Q31INO (O u fe tf) U) 1 o tr O u. O oc 2 (9 UJ Ct U _i O tr o o z: VINHOJHVO 93 PLATE XXXVI. ! I z 2 3 z X <. LJ 000. - y.vj Dairy products 131 461,128 Poultry and eggs 11 18,800 18 45,750 Fuel wood 81 315,850 Totals 1,417 6,073,998 AWAY FROM MARKET. u There is found to be considerable truck traffic before 6 a. m. traffic wag, therefore, not included in the standard 16-hour day. This Groceries, provisions, and general merchandise 187 631,900 Dry gnnrti and laundry , ", , , . . 7 10,250 103 267,900 Building materials and machinery of all kinds 500 2,777,150 16 46,400 Ice ." 51 173,700 Soft drinks, etc ... 44 164,300 Freight....'. 32 107,820 Gftsolinp flnd njl 45 211,700 Totals 985 4,391,120 96 PLATE XXXVIII. TRAFFIC ON STATE HIGHWAYS. 97 PLATE XXXIX. TONS OF AGRICULTURAL PRODUCTS 7571222- 98 PLATE XL. oy DIAGRAM SHOWING TOTAL NUMBER OF TRUCKS IN FOUR CLASSES REPORTED BY QUESTIONNAIRE AND RELATION OF PERCENT IN EACH CLASS TO CORRESPOND- ING PERCENT FROM TRAFFIC COUNT. 99 The data in this table are of little value in respect to information as to the total commodity hauling by motor truck in California, since they are compiled from only 2,402 answers. They probably indicate (a) the rela- tive amounts of various commodities hauled, and (&) the ratio of inbound to outbound loads, which is 1.44 20 ; (c) the arithmetic average load of about 2.1 tons; (d) the relative number of trucks hauling agricultural products and merchandise, etc. In order to develop further information on the opera- tion of motor trucks and to gage the effectiveness of the truck questionnaire, there are shown in Plate XL the numbers of the various classes of trucks reported in answer to the questionnaire, together with the rela- tion of the percentage of such trucks in the various classes to the corresponding percentage computed from the traffic census. In each case the classification of trucks is that used in taking the traffic census. PASSENGER BUS LINES. Organized automobile stage truck transportation originated in California and promises to develop into a necessary and large public service. Rail and electric transportation systems are vitally interested, and regu- latory and control legislative action was early essential. By legislative act approved May 10, 1917 (amended May 13, 1919), the railroad commission of the State of California was given "the supervision and regulation of the transportation of persons and property for com- pensation over any public highway by automobiles, jitney busses, auto trucks, stages, and auto stages." Under this law the railroad commission fixes rates, classifications, and rules and regulates the accounts, service, and safety of such transportation companies. This jurisdiction superseded conflicting jurisdiction of any municipal or county authority. Carriers operating over a regular route between fixed termini must secure a permit from municipal authorities through whose territory they operate, provided they were not operat- ing prior to May 1, 1917. Carriers operating other than wholly within the incorporated limits of a city or town must secure a certificate of public convenience and necessity from the railroad commission. Rules and regulations Avere established by the commission governing fares and rates, time schedules, filing of bonds, and safety of operation of stages and trucks. The applicant for a permit to operate a stage or truck line, having secured a permit from the municipal authorities, must file a statement setting forth the ter- mini and description of the route; time schedule and fares; description of equipment, list of officials of the company, etc., and names of stage or truck lines, steam railroads, and electric railways operating between the points to be served. Upon filing of the application, a public hearing is fixed, and the applicant and existing transportation lines affected are asked to present evidence and argu- ments for and against granting the application. If it is found that public necessity and convenience make the proposed line advisable, and that the applicant is financially able to render the service and otherwise capable, the railroad commission grants permission to operate the line. The powers of the railroad commission relative to operation of the lines are far-reaching. Reports upon the manner of operation, character of service," assets and liabilities, numbers of persons or tonnage carried, receipts and disbursements, and other related data are required and rules and regulations for operation are issued. When the original act became effective a number of auto stage and truck lines were actively operating, in most cases with but a single truck, driven by the owner. There was no law specifically regulating State au- thority and the business was practically without sys- tem. Irregularities and abuses were common. The entire auto stage business, and to a somewhat lesser degree, the truck business, has now become stable and systematized. Lines operating under the most favor- able conditions, or best able to adapt themselves to the new law, continue to operate under the authority of the commission. Under the sanction of the State and with the protec- tion accorded against unfafr and unnecessary competi- tion business has improved and expanded enormously, and promises to grow with even greater rapidity with the extension and development of the State high- ways. A systematic study of these passenger bus and freight truck lines was made with special reference to the use of the State highways. A summary of the passenger bus information is presented in Table 30. Of the 103 lines 54 have schedules involving two to five round trips per day between termini. The least frequent schedule authorized by the State railroad com- mission is that of one trip weekly on the line from San Francisco to Portland, Oreg. (786 miles, of which 163 are on the State-paved highway). The most frequent is 54 round trips per day between Los Angeles and Santa Ana, a distance of 36 miles (of which 25 miles is over State highway No. 2) . As far as practicable, bus-line routes or division points on routes are so located that the distance can be covered in not to exceed one day. In 47 per cent of the 31 Not restricted to any given time or part of year in the questionnaire. *> Deviation from schedule is not permitted. 100 routes this distance ranges from 25 to 99 miles, which permits one or more round trips per day. The average length for the 103 lines is 59 miles. A large number of the companies cooperate to make practicable the purchase of through transportation over connecting lines. The longest through trip possible by such arrangement is that from El Centre via San Diego, Los Angeles and San Francisco to Portland, Oreg., a distance of 1,488 miles. There is a tendency to combine ticket offices and establish common starting places or union stations at Oakland, Los Angeles, Fresno, Bakersfield, etc. Plate XLI shows pictures indicative of the pas- senger motor-bus business. TABLE 30. Summary of bus-line data lines in whole or in part traversing State highways. State highway route No. Number of bus lines operated. Total distance between termini. Total miles paved State highway between termini. Number of trips each way between termini daily. Car-miles between termini daily.' Car-miles on paved State highway. 1 Number of through passengers daily.' Passenger- miles between termini. Passenger- miles on paved State highway. 1 1 ( i 99.25 31.3 6 199.5 187.8 (<) ( 4 ) (<) 2. \ 3 / 3 67. 25 41 49.7 32.5 58 784.5 477 607.5 377 484 0) 23,746 () 18,901 0) 3 \ 30 3 1,918 36.75 1,217.75 21 (') 73 31,860.5 778 5 22, 960. 5 435 9, 342. 25 700 519, 649 7 635 389, 103 4 260 4 ' / 1 12.75 12.5 4 51 50 0) (<) (<) 5 \ 607. 75 278. 75 347. 75 176. 75 214 140 10, 370 5,637 7,632 9 883 2,009 1 310 90,504 62 178 5 64, 761 43 716 5 6 .....: 1 14.25 14.25 6 85.5 85 5 24 342 '342' 7 .... 2 926 180.5 2.14 207 57 9 1 206 299 5 8 1 36 6.5 6 216 39 12 432 78 a 4 171. 25 123. 75 82 3, 789. 5 3 135 5 1 027 50 456 25 44 794 25 10 1 60.75 S 4 243 '32 24 1 458 192 11. 3 82 72 22 651 574 208 4 890 4 273 12 ! A 5 5 12 60 60 w M (<) 14 . I 6 / 3 498. 25 36.5 271. 75 25 22 3 1,907 476 1,025 430 136 (') 12, 179 0) 6,500 (') 18 1 V 168 93 86 15 159 2 2, 159. 2 186 1,538.4 30 908 70 20, 231 6 510 10,608 1 050 22 1 172 7 2 344 14 12 2 064 ' 84 26 1 193 5 .85 165 4 28 g 1 158 30 Combinations of 15 of above routes 1 14 11 8 112 88 (<) (S (*} Do 7 60S. 75 355.5 52 4,461 5 2 801 5 3X3 33 230 21 755 Total. ... 3 103 6,074 3,075 900 65 220 46 046 16 664 837 869 610 747 ' One line from Fresno to Bakersfield not included (total distance, 109i miles paved State highway, 106} miles); record lost in mail. In this summary table one car per scheduled trip is taken as the basis for car-mile calculations, but on many runs two or more busses are regularly dispatched and as many as 10 on special occasions. Flrxi- biuty of service is one of the main claims of the motor-stage operators. * Estimated average number through passengers; local passengers estimated as 15 per cent of through traffic. 3 Three lines out of Eureka not included for want of data (total miles, 25; paved State highway, 18J miles). Incomplete. Below are given three additional tables of data re- garding the passenger motor-bus business. Daily trips between termini. Passenger capacity of equipment, scheduled trips, etc., of some of the larger bus-line companies: Number of trips dally. 2 or less Number of lines operating. 15 3 to 10 54 11 to 20 - _ _ 12 21 to 40 14 41 to 60 4 61 to 80 2 80 or more . _ 2 Total 103 Number of bus lines of various length. Length In miles. to 4 5 to 9 30 to 14 15 to 24 25 to 49 100 to 199. 200- Number of lines operating. 8 15 11 14 26 22 3 1 Total 103 Dis- Num- ber of Pas- senger capac- Total capac- itv Daily trips each tance be- tween Termini. High- way route cars. ity. 1L> . way. ter- No. mini. Miles. 40 38 IS 14-22 720 674 62 108 36 36 Los Angeles-Santa Ana do I 27 23 621 102 31 San Francisco-Palo Alto 2 4 22 12 16 616 32 67.75 Los Angeles-Redlands 9 24 14 1 ,23 10 19 5 15 378 48 43 Oakland-San Jose 5 6 11 3 8 1 8 3 11 195 26 77.5 Stockton-Oakland 5 2 14 7 18 13 15 195 52 117.5 Sacramento-Merced 4 4 7 22 14 | 186 36 23 San Fernando-Los Angelas.. 9 17 20 8-11 8 170 160 10 6 127.5 134.5 Los Angeles-Bakers field San Diego-Los Angeles 4 2 20 8 160 6 134.5 Los Angeles-San Diego 2 5 18 \ US 14 52. 25 Santa Rosa-Sausalito. 1 2 14 / 16 ,-7 112 2 93 Merced-Yosemite IS 1 2 5 19 14 11 102 6 51.5 Sacramento-Placerville 11 I i 101 PLATE XLI. AUTO STAGE DEPOT, LOS ANGELES. SAN FRANCISCO MARTINEZ STAGE. 102 ^HEIGHT LINES. A special investigation was made of the motor truck freight lines licensed under the State railroad commis- sion and as one result there is presented Plate XLII, which shows the reported number of motor trucks of the several existing classes as returned by this investiga- tion and also as determined by replies to the question- naire to all owners of solid-tired trucks. Additional commercial motor-truck traffic information is shown in Appendix F. FIELD WEIGHING. In addition to the above indicated studies, 219 motor vehicles (and 5 horse-drawn vehicles) were weighed in the field as shown by the following table: Weighing data. Place. Date. Number of vehicles. Gilroy Sept. 25, 27, 1920 86 French Camp Sept. 29, 1920 Sept. 30, 1920 . 46 40 Yuba City Santa Rita Oct. 2, 1920 Oct. 4, 5, 1920 24 28 Total 224 The results of the weighing are shown below. The truck capacities there indicated conform to the classi- fication used in the field traffic counts since no heavy pneumatic-tired trucks came to the scales. Summary of result of field iceiyhing. Kind of vehicle. Num- ber. Average gross weight in pounds. Light autos, motor cycles, Ford, Chevrolet, Saxon, Dodge, and 13 1 924 23 3 828 4 14 2 091 42 4 708 44 10 034 33 14 640 33 4 863 12 7 461 6 5 838 1 6 290 Total 225 SPEED MEASUREMENT. Measurement of speed of motor vehicles was made in the field with measured distance and stop watches at four stations, as follows : Modesto, Gilroy, Saugus, Richmond. These stations were chosen from the traffic count and where total travel was not excessive. The results of this study with respect to speed of the various classes of vehicles are shown in the following table : Speed of motor vehicles. 'Type.1 Miles per hour. Number observed. 24.3 990 26.1 1,177 29.7 113 23.2 153 19.9 61 Trucks class 3 16.5 41 13.7 83 1 The classes of trucks refer respectively to those adopted in the traffic census. GENERAL. There was found to be a certain typical hourly varia- tion throughout the 16-hour day in all traffic through- out the State. This average hourly variation in per cent of total daily traffic for a week day as determined from 111 week-day counts, taken at 101 stations, is shown in Plate XLIII, together with the corresponding hourly variation of Sunday total traffic from 56 partial and complete Sunday counts at 37 stations. The corresponding hourly variation in truck traffic only is similarly shown for a week day in Plate XLIV. This curve indicated a considerable truck traffic before 6 a. m. The figure of 12.48 per cent for total truck traffic is^ therefore, subject to a plus correction, as the percentage of total traffic prior to 6 a. m. is much less than that of trucks. There is shown in Plate XLV the typical average variation of total traffic during an entire week based on all counts taken. In Plates XLVI and XLVII are shown respectively the relative decrease of horse- drawn traffic and the relative increase in motor-truck traffic as determined from traffic counts in Kern and Los Angeles Counties. A summary of various truck data from various sources is shown in Table 31. TABLE 31. Summary table showing truck traffic data. [From traffic census, field weighings, and questionnaire.] Class of trucks. From traffic census. Weighted average speed, miles per hour. Weighted average weight from field weighings in pounds. Average cargo weight, in pounds. Average length of haul, in miles. Weighted daily average number of trucks. Per cent of total daily vehicles. From speed count. From question- naire. Front. Rear. Total. Field weigh- ings. Ques- tion- naire.' Field.' Weighted average, question- naire. 8 Less than 1-ton pneumatics, less than J-ton solid 73 41 28 29 2 5.3 3.0 2.0 2.1 0.1 23.2 19.9 16.5 13.7 (18 14.7 14.1 110.8 697 1,674 3,227 4,751 i , :W4 3,034 6,807 9,889 2,091 4,708 10,034 14,640 (') 1,684 4,649 6,989 1,007 2,332 5,970 9,603 14 43.7 48.6 73.5 31 39.1 51 <54.4 1 to 2$ ton pneumatics, f to li ton solid 3 to 5 ton pneumatics, 2 to 3 ton solid 5-ton-plus pneumatics, 3-ton-plus solid.. Extra heavy Total 178 12.5 Weighted average 19.4 14.0 2,848 5,810 8,658 3,682 4,324 48.6 45.3 1 From replies to questions at the 138 weighings at 5 stations. 2 From 2,766 replies to 21,000 inquiries. Styles of body too variable to permit accurate estimate of weight of trucks. Weights of all other trucks determined from manufacturers' catalogues. < Twenty trucks of this class and above 5 tons' capacity were reported by the questionnaire, but the data is not included in this figure. 103 PLATE XLII. TRUCK CAPACITY IN TONS I? 2 2? 3 3^ 4 DIAGRAM SHOWING COMPARISON OF NUMBER OF TRUCKS OF VARIOUS CAPACITIES REPORTED ON QUESTION- NAIRES AND BY LICENSED FREIGHT LINES. 104 PLATE XLIII. DIAGRAM SHOWING AVERAGE HOURLY VARIATION OF WEEKDAY TRAFFIC AT 101 STATIONS AND CORRESPONDING x A.M. 6-7 7-8 AVERAGE HOURLY VARIATION OF SUNDAY TRAFFIC AT 37 STATIONS \^ X. 8-9 x x N S \ 9-10 10-11 M \\-\Z S 0v i / y P.M. 12-1 1-2 UJ r 3-3 ii \ V >^h > I \ 3-4 \ ^ 4-5 5-6 \ \ r) 6-7 7-8 8-9 9-10 C ^~ / rt. ^' y> jj, \ C ti 5 1 3-4 4-5 5-6 6-7 7-8 8-9 9-10 C P \ \ ^J X C 3 4 6 8 10 PERCENTAGE OF AVERAGE DAILY TOTAL DIAGRAM SHOWING AVERAGE HOURLY VARIATION OF WEEKDAY TRUCK TRAFFIC AT 101 STATIONS 106 PLATE XLV. 22 eo hJ Ul 18 hi o 16 o cc u Q. 12 (0 o z o I to u a (O LJ LJ O CO oc Q DIAGRAM SHOWING VARIATION OF TOTALTRAFFIC DURING THE WEEK BASED ON 883 WEEKDAY COUNTS 107 PLATE XLVI. KERN COUNTY AVERAGE NUMBER OF TRUCKS AND HORSE DRAWN VEHICLES PASSING FIVE STATIONS 150 v> O UJ ut 100 O K 50 (O & s? ,_VH/CXEs 09 YEARS 108 PLATE XLVII. 350 300 250 10 Ul 5 {^/ o / pi bJ CO 1 50 ( 100 50 ^ / / > / V V> x p ( f X^ X \, . VEHICLES , > * 10 5i 5> 2 2? YEARS LOS ANGELES COUNTY AVERAGE NUMBER OF TRUCKS AND HORSE DRAWN VEHICLES PASSING NINE STATIONS 109 VIOLATIONS OF STATE LAW. In connection with truck traffic the State highway commission states in the first biennial report: The present State highways are being subjected to constant abuse by too heavily loaded trucks and other agencies. The statute books of California already contain sufficient legislation to regulate and penalize these violations, but the de- linquency lies in the enforcement of these laws. The commission is of the opinion that the most effective policing of these evils will result from the establishment of a State motor police limited both in numbers and authority under the jurisdiction of the motor vehicle department, who could ap- prehend both motor vehicle offenders and persons injuring the improved highways of the State. The chief engineer states in the same report that in the northern part of the Sacramento Valley a new dif- ficulty presents itself in the rapidly increasing use of the land for rice culture. * * * In November and December of this year (1918) the State highway has been damaged seriously by motor trucks hauling rice. All the trucks carry loads in ex- cess of their rated capacity, and it is probable that in all such cases the loading on the rear wheels per inch of width of tire in contact with the pavement is in excess of the limit of 800 pounds fixed by the motor vehicle act. It would be folly to di- rect or discourage all trucks and tractors, but they should con- form to the legal requirements of the vehicle act, which are rea- sonable and were enacted in 1917 at the suggestion of the Motor Truck Dealers' Association. If such excessive loads are to be permitted the State must spend much money to strengthen the roads, and why should such selfishness be permitted? Why should not the reasonable provisions of the vehicle act be enforced ? The inspection force of the motor vehicle department is composed of nine men working under the direct su- pervision of one chief. Each man is assigned to a par- ticular district, and the secretary of the motor vehicle department reports that it is impossible for these men to enforce all the provisions of the motor vehicle act. Their paramount duty is the collection of license fees. The enforcement of the law regarding weight limit and speed limits has been left almost entirely to the local officers throughout the State. The State officers work in conjunction with the local police, and where a case arises the traffic officer of the district is called upon to do the prosecuting. Violations of the motor vehicle act or convictions that are carried to the court are re- ported to the motor vehicle department. The abstract of the court records so filed from July 22, 1919, to October 18, 1920, shows a total of 33 convictions of violations of the law; with respect to flanges (4), weight per inch width (19), number of trailers (2), special permits (3), and with respect to unspecified provision of the section governing all these points (5). The fines range from $100 for flanges to $4 for opera- tion without special permit, and in the case of excess weight per inch of width from $50 to $10. DISCUSSION BOND ISSUES, SYSTEMS DESIGNED, AND GENERAL POLICY. The system of 4,500 miles laid out in 1896 by the old State bureau of highways reached every county seat and traversed the main valleys. It was doubtless of value as a guide to the selection of the system of 5,560 miles, now building, and the present system visibly reflects the original one. Apparently the interval from 1896 to 1909 demon- strated the futility of attempting to create an adequate system of State highways by small special appropria- tions for selected roads. The State highway bond issue of 1909-10 had been preceded by an issue of $1,250,000 in San Diego County and of $3,500,000 in Los Angeles County and by high- way-bond issues in Eastern States. The deferred serial type of bond chosen was in accord with the best prac- tice, but the term of 45 years for the longest serial is unnecessary and will require a corresponding excessive total interest payment. The legal provisions fixing both the nominal interest and the sales price proved embarrassing to the highway commission. There is every evidence that the bonding principle itself at this period was sound. The highways act of 1909 created by implication a system of 3,082 miles, which was manifestly far in ex- cess of the possible construction with the fund of $18,000,000 provided. The influence of this discrepancy has been far-reaching. The State highway commission stated in their final report : " Notwithstanding the ad- mittedly impossible task, the commission endeavored by the employment of every honorable expedient to obtain the greatest possible return in roads for the money." 22 Actually 1,300 miles, including graded roads, were built from proceeds of the first bond issue. The system of roads laid out under and by the vari- ous laws is an excellent one, and the portions built by the commission prior to January, 1917 (when the funds of the first bond issue were exhausted), appear in gen- eral to have been most needed. The distribution and the order of this first construction may have been con- ditioned by necessary policy. Because of the legal re- striction on the sale of bonds, it became necessary for various counties to buy the bonds, and naturally roads in those counties which bought took some precedence. Counties were also obliged to pay the interest charges on the funds used for highways within their boundaries some of the poorer counties were not easily able to do this. In order to make the bond money go as far as possible, the commission also influenced the various counties to furnish the necessary expensive bridges and rights of way, which action created some opportunity for preference in construction. In addition to these in- fluences, which conditioned the distribution of construc- tion, it was doubtless good policy to acquaint as many voters as possible with the proof of the advantages of improved roads by actual examples. The maps, Plates V to XII, show the progress of construction from year to year. 23 The success of the initial policy of the commission with respect to type of road and distribution of con- struction is evidenced by the increased majority for the second bond issue of 1915, and the still larger majority for the third issue of 1919 is evidence of its continued success. The general policy of the commission, especially witli respect to the order of construction, in attempting to carry out the terms of the laws which conditioned the sale of bonds and implied or prescribed excessive mile- age to be built, must be judged by its progressive reac- tion on the whole State rather than by comparing it with other alternative policies that may now be ap- parent to a State community enlightened by the benefits of the improved roads. Such a possible alternative policy, for example, might have given priority to the trunk road from Los Angeles to San Francisco. MANAGEMENT. The actual construction work of the commission was also conditioned by the highway act : (a) In respect to its permanent character and (b) by the first implied order for more than three thousand miles of highway. The commission obviously attempted to combine the element of durability in design with rapid extension of mileage. Although the money was theoretically avail- able after the fall election of 1910, no construction was started until August, 1912. There were also theo- retically sufficient funds to allow large planning of the work, and the commission took advantage of the opportunity to conduct business on a big scale. They oegan work deliberately. In the fall of 1911, with the highway engineer, they made a comprehensive tour of the State and estab- 22 First biennial report of the California Highway Commission, Dec. ** Nearly all the gaps in the 1920 map indicate pavement acquired 81, 1918, p. 40. from the counties. (110) Ill lished seven divisions. On the 21st of October, 1912, they signed contracts with the Natomas Consolidated of California (a corporation) for 500,000 tons of crushed cobbles at 45 cents per ton, f. o. b., and also contracts with the Eussian River Gravel Co. and the Grant Gravel Co. for 175,000 tons of screened gravel at 27 cents per ton, f . o. b. These were low figures for con- crete aggregates, and the commission states they ' tended to fix a low price which had its influence on other producers of concrete^ aggregates." : Effective on October 30, 1912, the commission secured from the Southern Pacific Railroad Co. a local freight tariff for commodities " consigned to and for use by the California Highway Commission " at substantially one- lialf the prevailing rates. These rates were extended by tariff No. 742-C one year later. In the purchase of cement the commission states : 2 * Under unwritten agreement the companies agreed with the commission that during the life of the work the price should not exceed $1.40 per barrel at the mills. This special price, far below the general market price, was made to encourage the use of cement in highway construction. The actual yearly purchases of cement to July 1, 1920, with net prices, are tabulated below: Year. Barrels pur- Average cost at mill, chased. mill base.' 1912 142,485.50 $1. 240 $176,683.24 1913 242,514.40 1.309 217,376.36 677,790.25 1.325 898,403.48 355,005.50 1.367 485,267.31 1916 110,090.00 1.371 150,958.28 1917 220,794.00 1.454 321,061.61 I91g 221,418.00 1.621 359,036.76 231,737.00 2.038 451,270.72 1920 (up to July 1 ) 43,048.00 2.158 89,699.56 2,244,862.75 1.443 3,249,780.32 , After the first bond issue of $18,000,000 was ex- hausted, the cement companies felt that their obliga- tion should end. When the railroads came under national jurisdiction during the war the preferential freight rates, were abolished. On account of difficulty of delivery due to war conditions, which resulted in (valid) claims by the contractor and required stock piling at times, and due to the general rise in prices the Commission has tempo- rarily discontinued to supply materials. They state that during the war the work progressed with increas- ing difficulty due to high costs, open-top car embargo, lack of bidders, restriction of the Capital Issues Com- mittee and the United States Highway Council, but did not stop. The totals of administration, engineering. and other overhead costs have been presented in the sec- tion "Data" under the item "Work done" and are very reasonable with the possible exception of the total overhead on maintenance. -' First biennial report, p. 39. STANDABD PAVEMENT DESIGN. The standard design adopted for surface was a con- crete "base" of 4 inches with a three-eighths-inch wearing surface of asphaltic oil and pebbles. The con- crete mix was 1 : 2 : 5 and the width was 15 feet, with 3-foot earth shoulders, as shown in Plate XLVIII and XLIX, type D. Although the concrete surface was doubtless origi- nally laid as a base, only about 43 per cent has been given the oil surface. The average price in the earlier years for the 4-inch, 1 : 2 : 5 concrete including grading and structures was $1.14 per square yard which was remarkably low. This price was equivalent to about $10,000 per mile of completed 15-foot road and com- pared very favorably with the similar price of $1.21 per square yard for oil macadam. Neither price in- cludes either indirect charges or overhead. The cor- responding average price for the 4-inch, 1:2:4 con- crete laid since 1917 has been $1.84, which is also low. The concrete pavement has probably produced a smoother and more satisfactory riding surface than any of the other types incidentally laid. This concrete pavement is the thinnest that has been extensively laid in any State, and would have been re- jected as too thin in any State subject to winter frosts. It is one foot narrower than the minimum width of con- crete roads built in most other States, and it is believed that under present conditions it is in general 3 feet too narrow. The original mix of 1 : 2 : 5 was leaner than that extensively used in other States and the present mix of 1 : 2 : 4 is not as rich as that used in several States, but it is believed to be adequate for the traffic. In this connection it is to be observed that California was the pioneer State in adopting concrete as the standard pave- ment for the State highway system. The function of the three-eighth inch asphaltic-oil wearing surface or " skin top " has not been completely determined. That it is not a necessary element of con- struction is evident from a comparison of the service and condition of bare and covered concrete which now exists. It was probably considered that the asphaltic- oil top would (a) take the wear of travel from the concrete, (Z>) protect the concrete base to some extent from impact, and (c) prevent the penetration of water through such cracks as occurred. It has not been ob- served that the bare concrete itself shows evidence of wear by rubber-tired traffic, which almost exclusively is now the only kind of traffic to be found throughout California. Trucks with solid tires, however, cause disintegration at open cracks. It is doubtful if a three- eighth-inch bituminous layer materially lessens impact. A comparison of the data presented in the 'tables of classification and in the summary class diagrams will show that the condition of the pavement covered with 112 PLATE XLVIII. 113 PLATE XLIX. -6" /0-6- 4- * / 5-0' PAVEMENT - SLOPE PER FT. -/2-O TYPICAL SECTION -5IDEHILL USE ON TANGENTS AND CURVES OVER 300 'RADIUS CURB TO BE USED WHERE MECESSARYTO PROTECTBANK\ FROM WASH. TYPICAL5ECTION PILL USE ON TANGENTS AND CURVES OVER 300' RADIUS 10-6- I 5-0" PAVEMENT AS PEP, TABLE -1 2-0" TYPICAL'SECTION USE ON CURVES UNDER 300'RADIUS CON CAVE TO CUT /2-0- -I5'-0~ PAVEMENT SLOPE A3 PER TABLE ;jfyg).'. CURB OH ALL CURVES HAV/NG SLOPEGREATER )>#ifimr>m/ipf> TYPICAL SECTION USE ON CURVES UNDER 300' RADIUS CONCAVE TO FILL ORWHEN FtE- OU/RED TO PRO- 'ECT5LOPE2. TABLE OF CROSS SLOPES RADIUS OF CURVE SO' TO 75' 75, - /OO' /OO, ISO', ISO' - 225, 22 J 30O SLOPE. fr'PERFT. '/a' TYPICAL ROAD SECTIONS 7571222- 114 asphaltic-oil top compares favorably with the bare concrete, but it is to be noted that because of the pres- ence of the asphaltic-oil top the classification of the concrete base beneath was made difficult and, in all probability, was higher than it would have been had the concrete base been uncovered throughout. To some extent the asphaltic top has sealed the concrete from water during the rainy periods and thus prevented softening of the subgrade, which is important. It has cost about 8 to 9 cents per square yard and requires considerable repair and renewal and, under nonabrasive, rubber-tired traffic, it is doubtful if it serves a purpose commensurate with its cost, but more study of the ex- tent of subgrade moisture protection is desirable. It is more slippery in wet weather than is bare concrete. The 4-inch plain concrete of lean mix has proved in places very durable. There are 580 (distributed) miles built prior to 1917 that are of classes A and B. Under adverse conditions, particularly of soil, it is evident, however, that a pavement of such thinness has a very low safety factor and is inadequate. Its use has now been abandoned and a minimum thickness of 5 inches of reinforced concrete is required. 25 The original con- struction produced considerable rough-surfaced con- crete, which, as traffic developed, doubtless materially increased impact. On the narrow 15-foot pavement, loads passing each other necessarily traveled close to the edge. The " crow foot " defects are doubtless due to such travel of trucks whenever the conditions were unfavorable. There is little, if any, decisive evidence that reinforcing introduced in the 4 or even in the 5- inch concrete (particularly of the triangular-mesh va- riety, see Plate LIII) has proved effective on adverse soils or under combinations of adverse subgrade and traffic. Nor will the widening of a 4-inch pavement to 20 feet eliminate the " crowfoot " cracks which are observed on such width concrete, even in instances on sandy soil. The original concrete pavement design, in short, now has little or no factor of safety and under unfavorable conditions has not withstood the internal stresses pro- duced by traffic flexure and variations in temperature and subsoil moisture. It is doubtful if such a safety factor can be introduced without considerably increas- ing the mass of concrete. It appears that under adverse soil condition there is considerable flexure with traffic. To introduce sufficient steel to prevent flexure of a 4- inch or even 5-inch pavement over a shrunken or wet subgrade, or even a loose, sandy subgrade, is probably a doubtful economy. The existing longitudinal cracks that are accompanied by any separation or by " fault- ing " along the crack, or by displacement, are evidences of subgrade displacement or settlement or uneven sub- grade shrinkage as a primary cause. Such defects are typical either with a single center crack or two longi- tudinal quarter cracks (see Plates XIX, XX, and LI) and the soil moisture sections in Appendix D appear to confirm this behavior. Some special treatment of adverse subgrade soils, particularly of class 1, will be necessary. Capillary action and high moisture retentiveness and pronounced shrinkage must be met. The amount of admixture or the thickness of protective layers of noncapillary and supporting soils is not yet known. A flat subgrade might help to a slight extent to counteract such defects by eliminating some transverse tension due to normal pressure. The crown of 2J inches (see Plate XLVIII) in the present 15-foot standard design may well be re- duced to If inches and with a flat subgrade and an added If inches maximum thickness there is an added factor against center longitudinal cracks. By January, 1917, the State Highway Commission hud constructed a total of 835 miles mostly of 4-inch by 15-foot concrete pavement. They continued to build the same type, except that the mix was increased to 1:2:4. In the light of the increase in thickness and the addition of reinforcing steel rods in 1920, it must now be inferred that the commission was again in 1917 governed in policy by the necessity for increased mile- age. They say, with reference to the second bond issue : The untoward condition accompanying the World War soon set at naught the expectation of completing the State highway system with the proceeds of the second bond issue; and the com- mission, for the second time confronting an iniposs ble task, is again forced to secure the greatest value receivable with the funds at its command. This bond issue was based -upon an estimate fur- nished from 191415 figures. It is to be noted that the standard plans do not pro- vide for widening the pavement on curves, although some widening of the " lime " type has been done subse- quent to construction. The cross sections are, in gen- eral, noticeably " shallow " or " tight " and require a minimum amount of excavation. 26 However, in the northern part of the State, particularly, the climate ap- pears to demand more pronounced drainage than has resulted from the present design. The sections do not provide for very pronounced superelevation, which is now frequently and successfully made one-half to 1 inch to the foot in many States. It is believed that the width of the main roads should be increased from the present width of 21 to 24 feet to a width of from 24 to 30 feet (see Plate LIII) except in heavy cuts. The crowns, as has been noted above, could well be reduced to 1J inches even on a wider pavement. -'Mifneral Orders 421 and 427, May 1 and Sept. 15, 1920, respectively. M Soe Plate L. 115 PLATE L. DISINTEGRATION AT EDGE AND TRAVELED SHOULDERS. 4 KERN C. CROW-FOOT CRACKING AND BREAKING. 4 KERN B. 116 PLATE LI. LONGITUDINAL CRACK WITH FAULTING. 7 SOLANO D. LONGITUDINAL CRACK WITH FAULTING. 7 SOLANO D. 117 PLATE Lll. PITTING OF CONCRETE. 1 SONOMA C. 'CHECKING" OF CONCRETE. 4 KERN B. 118 PLATE Llll. DEFECTIVE PLACEMENT OF MESH REINFORCING ON ADOBE. 2 SAN MATEO B. SHOULDER WEAR FROM INSUFFICIENT WIDTH. 5 ALAMEDA A. 119 DESIGN OF GBADE ALIGNMENT AND SECTIONS. Many miles of the California State highways lie on flat valley floors and have excellent alignment. There are scores of other miles of good location, including difficult mountain roads. It is disappointing in the valleys, therefore, to find location defects such as right- angle, section-corner turns and unnecessarily quick re- verse curves in passing around railroad station sites and in the mountains and on, steeper hills to encounter sharp blind curves and unnecessary rise and fall. Compensation of grade has not in all cases been suffi- cient to prevent exceeding the maximum grade if, in the future, the radii are lengthened. It appears that the defects in grade and alignment are due largely to a too strict adherence to a standard. That standard is not invariably economical. A bolder line with considerably increased grading between Eck- lev and Martinez, for example, would probably not have added much to the first cost and will possibly ultimately have to be built, as this is the main route from San Francisco to Sacramento and is now rather dangerous. Other locations on hill and mountain roads evidence minimum standards that are too low for trunk lines under present traffic conditions. There are numbers of curves of 50 and 60 foot radii and grades of 7 per cent that might have been eliminated or reduced at slight additional cost. In a few cases a radical change in line, though doubtless involving added right-of-way > -ii>t>. would have been a great improvement. It appears that valuable land has often been avoided and that a location that follows the topography closely has been the rule. These elements have at intervals im- paired the alignment and grade. Although the first report of the commission states that travel can proceed at 30 miles per hour over the State highway pavement, it is not safe to travel at that speed at many points, partly because of the narrow pavement and lack of superelevation, but largely be- cause radii are too short. It would appear that where the method of cutting the inside bank to improve sight has been adopted, longer radii should have Iwen selected in the first design. In the effort to economize in con- struction, it appears that at times (for example, on route '2. between King City and Santa Barbara) too many sharp, vertical curves have been used in order to fit the ground. SPECIFICATIONS. The State Highway Commission has until recently adhered to the 1912 specifications with few changes. These specifications appear to have been rigidly en- forced. The grading has been neatly finished and the subgrade evidently well prepared. The original lean concrete mix of 1 : 2J : 5 for a pavement should have been abandoned sooner, and the permission of 6 per cent of the fine aggregate, passing a standard No. 100 sieve allows a possible excessive clay content. The re- quirements for coarse aggregate, with respect to size, grading, quality, and cleanliness are. in the light of recent developments, somewhat inadequate. It is be- lieved the specifications should also exclude the use of alkaline or salt water and permit larger aggre- gate than 24 inches. The originally required rough finish has been abandoned, but the finish now ob- tained can be improved. This rough finish was evi- dently for a pavement base, but it shows through a three-eighths-inch top and. where not covered, has doubtlessly tended to increase impact. The old speci- fication for mixing until texture and color were uni- form were evidently unsatisfactory and have been abandoned in favor of a ten-turn or one-minute mix. The requirements for curing by ponding or wet earth are excellent, but some checking (see Plate LII) due either to lax enforcement of this provision for curing or a too wet mix has occurred. The omission of trans- verse joints appears to have been a justifiable innova- tion, particularly in a frostless country, but it is be- lieved there should be exceptions to this practice. The present requirement for concrete mixture of 1:2:4 if laid dry, it is believed, should produce a good pavement for traffic preponderantly rubber tired, but it is re- marked that several States use a richer mix. Rein- forcement has not been required until 1920, but the present specifications for about 42 pounds of one-half and three-eighths inch steel rods in the center plane per 100 square feet, it is believed, is excellent. The trian- gular mesh reinforcement used on Federal-aid project No. 1 was a failure, due possibly to improper placement. (See Plate LIII.) With reference to Topeka specifications it is believed that an asphaltic oil of penetration not exceeding 70 should be specified, especially where the temperature exceeds 100" F.. and where traffic is also unusually heavy. With reference to oil macadam, eastern experience indicates that a surface treatment with the largest quantity of oil specified (If gallons) will work into ridges and lumps under traffic. It may be inferred also that with oil paid for by the barrel there will be a corre- sponding tendency to use the maximum amount. Nu- merous cases of " viscosity waves " are observable throughout the State, although there are many miles of excellent oil macadam roads. It is to be remarked that in general the specifications for concrete have, as shown by the tested samples, pro- duced good quality, and that they have permitted an economic use of local material with a minimum of failures. 120 FURTHER DISCUSSION OF POLICY OF EXTENSION OF MILEAGE. It is necessary in a critical analysis of the standard design to which the State Highway Commission has ad- hered for eight years to make full allowance for the advantage in extension of service made possible by its use. That this concrete construction was begun as a base, however, must not be overemphasized since it was continued for 694 additional miles, notwithstanding that supplementary surfacing for financial or other rea- sons was omitted. The design must be judged as above indicated with reference to the necessity to extend serv- ice and with respect to its continuance under the second bond issue, and, in addition, with reference to its upkeep and its adaptability to supplementary construc- tion in those cases where it fails, owing to increase in volume or intensity of traffic or other causes. It is to be remarked that the total motor-vehicle reg- istration in 1920 is about six times that of 1912 and the total truck registration is approximately six times the 1915 figure. The State Highway Commission has as yet taken no State-wide traffic census. That the thin, narrow pavement and close grading enabled the rapid extension of very serviceable miles of road is without question, and that the implied order in the legislative act of 1909 demanded extension is equally evident. Because the second bond issue was voted in 1915 and the third in 1919 may, in a sense, indicate such a capacity for road financing by the State as to deny the assumption that the State of California, at any time, was obliged to take chances with thin pavement in order to produce mileage, but it is undeniable that the very extension of the pavement developed sufficient sentiment to provide additional money in 1915 and again in 1919. So it can not be said in 1920 in the light of the fact that the great usefulness of the highway sys- tem is now proved, that the State would have -realized its usefulness and provided funds in equal volume had not the system been extended as rapidly as it was and at some sacrifice of either temporary or ultimate dura- bility to increased mileage. There appears, however, to be a serious question in the light of the fact that 70 per cent of the defective pavement of classes D, E, and F occur on clay and adobe soils, as to the wisdom of a policy which con- tinued the risk of a thin slab on such soils. It is un- deniable, however, that a large mileage of the same thin pavement and on adverse soil still remains of classes A, B, and C. We find, however, no conclusive final demonstration of the best construction on the adverse soils, and, in that respect, failure to vary the design on such soils in the past has postponed the solution of this problem. The concrete itself is shown by the tests of the sample cores and other samples to be uniformly good, its weight per cubic foot and absorption are practically constant, and the amount of coarse aggregate also. The crushing strength averages well above 3,000 pounds to the square inch. There is raised by the diagram of crushing strength by years (see Plate XXXIV) a ques- tion as to whether or not the concrete may be slowly deteriorating, but this condition has not been conclu- sively proved. More study of this phenomenon is re- quired before any conclusion can be reached. Certainly the slight indicated decrease in strength would not ac- count for any of the adverse conditions found in the pavement. The question of initial extension vs. durability of design is further discussed under the topic of eco- nomics with reference to the indicated operating in- come. There seems grave question, however, as to the decision in 1917 to continue with the construction of pavement of a low factor of safety. By that time it would seem from a study of the summary tables of class condition that the behavior of the design on ad- verse soils should have been known. Still the change to a mix of 1:2:4 appears to be reflected in the class condition, since only 48 miles of the construction, be- ginning with 1917, has gone into classes D to F, inclu- sive, while 109 miles of construction prior to that time are in these classes. The adaptability of the pavement laid to supple- mentary construction when it fails is indicated by about 37 miles of this work already done with 30-inch concrete shoulders and l|-inch Topeka or other bitumi- nous concrete surfacing and with second-story concrete. None of this work is sufficiently old to prove its ultimate durability. At present it appears to be carrying traffic with success. The expense of extensive repairing of certain sections prior to such reconstruction has been necessarily heavy. Much of the work so far done has been on roads in such sections that the cross section has not been a serious item, but in many places the road- bed will have to be widened before such supplementary construction of shoulders and surface top can be done. PRESENT CONDITIONS. With reference to the classification adopted for de- termining the present condition of concrete pavement, it is to be noted that for 4-inch concrete pavement class A is a rather abnormally high type. Pavement of class B, in the light of the present stage of develop- ment of concrete roads, appears to be a very normal type of concrete pavement that is to say, transverse cracks at intervals of approximately 25 feet in a 4-inch pavement, without joints, may be considered charac- teristic. Pavement of class C, where no separation or faulting follows or accompanies the longitudinal cracks in a 4-inch slab, is not unexpected. But where faulting occurs along the longitudinal cracks or where there is 121 PLATE LIV. I OIL MACADAM PAVEMENT. LOS ANGELES COUNTY. i IL MACADAM PAVEMENT. SACRAMENTO COUNTY. 122 PLATE LV. SUPPLEMENTARY CONSTRUCTION SHOWING NEW 30-INCH SHOULDERS BEFORE LAYING OF TOPEKA SURFACING. 4 TULARE D. FEDERAL-AID PROJECT NO. 24. SUPPLEMENTARY CONSTRUCTION WITH 30-INCH CONCRETE SHOULDERS AND TOPEKA SURFACING. 2 ORANGE B. 123 PLATE LVI. SUPPLEM TARY CONSTRUCTION. NEW LAYER OF 4-INCH CONCRETE ON TOP OF OLD OILED CONCRETE. ROUTE 2. LOS ANGELES COUNTY. HEAVY PATCH REPAIRING. 7 COLUSA C. 124 a distinct separation of the two edges of the crack, an unusual condition is present, and the pavement must be regarded as considerably impaired as a structure. Such cases are not infrequent. Pavement of this class C may, however, and usually does, carry traffic without inconvenience. " Crowfoot " cracks at the edge of the pavement in any considerable number are distinct de- fects; they are not normal, and, when followed by settlement or disintegration, impair the service of the road. Pavement of class D, so cracked transversely and longitudinally as to form many areas of con- crete of about 50 square feet, is decidedly defective, and when accompanied by settlement the service of the road is slightly impaired. Pavement ,of class E is a failure, and pavement of class F usually indicates that the concrete itself was bad or that the design of the pavement was inadequate. Travel on this class is in some instances quite difficult. The State laid 1,365 miles of concrete and 1,262 miles were classified. Of that classified, 157 miles, or 12.5 per cent, was found in classes D, E, and F, but the degree of impairment is somewhat greater than the percentage, since the defective pavement is distributed throughout the State. The pavement in class F was largely concentrated, and less than 6 miles remains un- restored. The pavement in classes E and D will require reconstruction or heavy repairs and supplementary con- struction in the immediate future; there are about 114 miles of these two classes. CONSTRUCTION AND MAINTENANCE. An analysis of construction done and the costs thereof shows a rapid building of the important trunk high- ways to approximate completion and at a very reason- able cost. The total average percentage of construc- tion costs on both day labor and contract work, charge- able to administration, engineering, and overhead, is 15.86 per cent, and is reasonable. The total overruns above the engineer's estimates, amounting to 6.24 per cent of the final total payment on construction, is low in view of the recent rise in prices. On day-labor jobs this corresponding percentage is higher, as expected, but is not excessive. The analysis in Appendix B of the 20 jobs, both contract and day labor, which pre- sented the greatest apparent percentage of overruns, shows adequate reasons in practically every instance for such overruns of the estimate. The accounts in the headquarters office on all work were found very complete and without discrepancies, and the cost figures here presented are accurate and official. The direct charges for maintenance and improvement are found not to be excessive; the overhead and indi- rect charges, however, are apparently 19.2 per cent, overhead alone 12.5 per cent, which seems rather ex- cessive. The direct control of maintenance of State highways by the State and the application of the net automobile revenues to this work is believed to be an excellent arrangement. The organization of mainte- nance under a headquarters maintenance engineer oper- ating through the seven division offices appears ade- quate, though in some instances rather important job work appears to require more competent direct super- vision. x There are at present under maintenance a total of 3,293 miles of State-controlled roads. These include 1,524 miles of earth and gravel roads, including special State roads built prior to 1912, and about 150 miles of oiled county pavement which the State has acquired from the counties. The expenditure for maintenance and improvement of earth and gravel roads is nearly one-third of the entire expenditure. Since the law now allows the automobile money ac- cruing to the State highway commission to be used for " improvement," it is found that considerable gravel and other surfacing has been done from this fund. The complete analysis or tabulation of distributed mainte- nance and improvement costs for each original project built by types and by years was not attempted, but the data for such analysis, while sometimes confusing, ex- ists in the headquarters records. Sufficient investiga- tion of the maintenance books was made to determine accurately the unit costs and the summary costs here given. It appears that up to 1920 the commission has thought of necessary travel more in direct relation to the increasing maintenance costs rather than in respect to its influence on design of new construction. In this connection it is to be observed that in 1912 the increase of traffic could not be foreseen, but it would appear that by the end of 1915, when 1912 registrations had nearly doubled, that the 1918 registrations should have been foreseen. ADMINISTRATIVE AND ENGINEERING ORGANIZA- TION. The organization was highly developed. It has con- tinued with little change since 1911. During the war, in common with other State highway departments, it was impaired by loss of personnel and its work was hampered by bad industrial conditions. It is not un- wieldly and in form is unusually well adapted for the large-scale operation it has conducted. The salary scale is good. The details of the engineering standards are carefully thought out and unusually complete. The standard plans and drawings are excellent, and the clear-cut pre- cision of all engineering operation makes for speed and efficiency. The cost of all overhead and admin- 125 istrative and engineering items on contract jobs has averaged, as mentioned, 15.86 per cent, which, in view of the average low cost of construction per mile is very reasonable, as is similarly 15.88 per cent on day-labor jobs. There is some evidence of a cramped condition in the functioning of the organization. It appears that headquarters control is so complete that it may in- hibit those reciprocal actions necessary for healthy growth. There is a good opportunity with such an organisation to develop this reaction function and initiative of the engineering employees who are in first- hand contact with the job. With the extraordinarily efficient directive functioning in all details, a corre- sponding return functioning of the organization through the division engineers to headquarters is de- sirable to develop new ideas with the extension of con- tart with the job. More initiative and authority would increase efficiency; thus the significance of the adobe reaction might have developed sooner and better align- ment could have been produced by changes authorized during construction from reports by resident engineers. The procedure in advertising and letting of contracts appears to be satisfactory. Some of the early contrac- tors were inexperienced in road work and lost money. This condition has frequently occurred in other States. There is some apparent delay in the completion of final payments due to the routing of the paper. CONVICT LABOR. The State highway department officials report favor- ably regarding convict work. They bring out these points: The inaccessible, difficult, inspiring, and remote re- gions selected proved of advantage as environment and eliminated any criticism of competition with free labor or contact with undesirable " free " citizens. The kind of work selected heavy grading and clear- ing and grubbing has been well adapted for success. Unguarded, honor, and long-term convicts work best. Good camps and food pay, and the outdoor life is wholesome. There was difficulty at the start due to dual adminis- trative control by the State prison authority and the State Highway Commission authority. This conflict was eliminated, and. with reward for good behavior and punishment for misbehavior, the work of the con- victs has proved economical, especially during the war. ECONOMIC AND OTHER STUDIES. The one-day traffic at 103 stations on the State high- ways is an index of the use of the roads. This traffic day was distributed between August 7 and October 14 and throughout the State and the assumed daily aver- age total of 2,500,000 vehicle miles should be repre- sentative for the summer interval, or, say, from June 1 to November 1. The resulting total vehicle miles of 375,000,000 is 70 per cent on the State-paved highways alone. These results 262,500,000 vehicle miles indi- cated service by such paved highway. The operating income at 5 cents a vehicle mile is $13,125.000. To this amount must be added an operating income for the service interval November 1 to June 1. This latter amount can not be based on a traffic figure, but a minimum figure would indicate a total annual operat- ing income of $20,000,000 for 1920. For preceding years, when there were fewer miles of State pavement and fewer vehicles, the operating revenue can not be placed at a figure greater than the corresponding percentage of this total. Thus, in 1919, with an average of, say 450,000 motor vehicles in use, or 90 per cent of the 1920 average, and 93 per cent as much paved highway, there could not have been more than 83 per cent as much corresponding operating in- come. If the figure is placed at $15,000,000 there re- sults an indicated gross operating revenue in the last two years of $35,000,000. The element of assumption in the above reasoning is regarded as conservative. It is unnecessary to extend the computation to make immediately evident that the operating income from the State-paved highway sys- tem alone since 1913 has more than equaled the total expenditure for construction and for repair, improve- ment and maintenance of the entire mileage paved and graded by the State. The operating income from the graded portion and the portion built by the counties and acquired and maintained by the State has been disregarded. A corresponding decrease in operating revenue to the community would have occurred had the mileage been shortened by constructing a more durable type. It is observed that during the decade 1910 to 1920 the estimated value of agricultural products has increased over 300 per cent ; the population of the entire State, 4-J per cent; and the population on the highways, exclu sive of the two largest cities, 63 per cent. These facts are evidence that the policy of extension of mileage of serviceable pavement was justified in the initial period. Highways, like the railroads, build up business, and a period of supplementary construction follows without financial strain because of increased operating revenue. The advertising value of the high- way system has, without question, added to the popula- tion and to the tourist attraction. Although for the most part the service rendered by the roads built is still uniformly good, it is very evi- dent that the State can now well afford to raise the standard of construction. This standard must satisfy all motor-vehicle operators. The increase in the use of the trucks will doubtless for a time be increasingly rapid. It has been over 500 per cent in seven years 126 and 250 per cent during the past three years, and will demand a greatly increased factor of safety in the pavement. But the increase in motor registration figures can not he the only index of the future duty of the roads. Ad- ditional information useful for the State Highway Com- mission can be secured by elaborating the form used for registration, hut the necessity of a comprehensive traffic census at frequent intervals -is great. Only a traffic count will determine the distribution of high- way operations and yield corresponding control, both of design and maintenance allotments. The maintenance and repair operation in the past period has involved excessive patching in certain sec- tions due to the thin 4-inch pavement and the increase in traffic volume, weight, and speed. In the future, however, the demand for better quality of pavement service will become more exacting, and the increased traffic will require maintenance for various items on any type or standard of pavement, so that as the system develops the aggregate, maintenance charge may be ex- pected to increase. There is evidence that relatively few vehicles have excessive total loads, but field weighings showed a large percentage of overload of trucks per inch width of solid tire. Unfortunately the exact record of this item was lost. It must be inferred that the infrequent and incidental heavy load is very destructive. Defects of the crowfoot type in the pavement are regarded as due solely to traffic impact on the thin slab with ad- verse subgrade condition. Crowfoot defects developed largely since September, 1920, on Federal-aid project No. 11, 10 Fresno *D, between Coalinga and Oil King School, show by actual count 54 on the incoming or unloaded edge, against 283 on the outgoing or loaded edge. This is G-inch pavement 18 feet wide on adobe. Not only heavy soils but also sandy soils underlie de- fects of this type, nor is a 4-inrh pavement of greater width exempt from such defects. Excessive transverse cracks are also inevitable in a thin slab with any com- bination of adverse traffic and subgrade conditions. Whatever design is adopted and whatever the legal speed and loading, there is evidence that better enforce- ment of the law is required. CONCLUSION The State highway system has in general been well selected and laid out. The mileage prescribed by law has far exceeded the funds and this discrepancy dis- torted the policy. The mileage remaining to be built is far in excess of the combined capacity of the third bond issue and all available Federal aid. The deferred serial type of highway bond adopted is good, but the longest terms of every issue (44-45 yours) are e\<-es>ive. and the long terms will require millions of needless interest. The amounts of money were sufficient to permit planning of comprehensive i -i instruction programs and economy of large opera- tions. The legal restrictions on the bonds were seri- ously embarrassing. 27 The order of selection and construction of roads from year to year lias been largely controlled by necessary policy. The policy of permitting unpaved exceptions in small incorporated towns is uneconomical and impairs the efficiency of service of the State highways. The linancial administration has been scrupulously honest and careful, and the administrative and engi- neering costs have not been excessive, nor have final costs much exceeded the engineer's estimates. Convict work has been successful, especially during the war. and from both aspects the road work and reflex effect on the convict it has been found necessary for success largely to eliminate any dual control of con- victs on the job. The State prison funds clearly should bear some expense. There has been a conspicuous growth of motor ve- hicle registration in California during the past con- >t ruction period and a corresponding increase in vol- ume and intensity of traffic. The commission evidently did not anticipate this increase and did not provide for it in their original design, nor did they count the traffic throughout the State. A very careful traffic census should be taken at intervals. It is not believed that modern rubber-tired traffic on a smooth concrete road is abrasive, although solid-tired vehicles doubtless produce some breaking down of edges of separated cracks. Xo definite correlation was found between the total of vehicles and the condition of the concrete pavement itself, but the total traffic does largely determine the wear of shoulders and in many places does indicate a too-narrow width of pavement. It is believed that the impact of excessively heavily loaded trucks, particularly at high speeds, is very de- structive to a thin, narrow pavement on adverse soils, '-' Such restrictions were removed by the vote of Nov. 2, 1920. but it is evident from the data that such trucks are in a small minority in California. Truck traffic is in- creasing ; the size and number of commercial passenger busses is very noticeable and there may be expected a parallel increase in the development of commercial freight motor-truck traffic. Passenger busses are already operating on the 15-foot pavement to the dis- advantage of other traffic, and the law allows a total width of farm load of 10 feet which is excessive for such pavement. State authorities can not control the volume nor the distribution of traffic on the State highways, but com- plete and effective cooperation between the State high- way commission and the motor vehicle department con- trolling the character of traffic is necessary. The cre- ation of special State police exclusively to enforce the vehicle laws may be required. There is a very large annual operating revenue to the community from the State highways. The total of this revenue has probably paid for all construction costs to date and would have been correspondingly decreased with less mileage. A sum equal to the total net motor-vehicle fees at the present average rate will probably always be re- quired for the absolute maintenance and improvement of State highways as construction of the 5,560 miles progresses. The original theory of a license to operate a motor vehicle is obsolete in a community where 97 per cent of traffic is by motor and the registration fee becomes a charge for use of the road. Systematic financing of the upkeep will ultimately adjust the aver- age fee to the requirement of upkeep and also adjust the fee to the vehicle type to conform more closely to the impairment produced. An immediate increase of the State's share of the net automobile revenue would be good economy, as a large mileage of defective con- crete road must be at once repaired and resurfaced. The tables and the diagrams of condition and the -tatistics of sample core and soil tests clearly indicate: (a) A correlation between defective pavements of classes D, E, and F. and adverse soil conditions; about 110 miles or TO cent of 1~>~ miles total of these three classes occur on soils of class 1, which includes all adobe soils. (b) That since the average corrected testing strength of concrete cores is above 3,000 pounds to the square inch, the concrete itself is not generally defective in strength, nor does it show any wear by traffic. (c) The class condition of all concrete pavement in- dicates a slow progressive deterioration and that type (127) 128 built tends to reach its approximate stage of classifica- There are sufficient typical failures to show that in the tion comparatively soon and thereafter to change more future only designs of increased strength and adapted slowly. to resist such failure should be used. There will be (d) The diagram showing average strength as de- necessary every possible precaution to prevent failure termined by cores tested from concrete laid during the on adverse subsoils of adobe, clay adobe, or similar soils, various years indicates that there may be a slow, pro- On such soils, in the absence of any proved successful gressive deterioration of the concrete itself, or design, short sections only of tentative design should " fatigue " in a thin slab subject to excessive flexure. be attempted, or there should be first developed frank (e) There is no conclusive indication, so far, that the experimental construction to determine a workable and previous reinforcement in a 4 -inch or 5-inch slab has produced a measurable in- crease in the quality or dura- bility of the pavement. (/) There is shown by the diagram of comparison be- tween class condition of oil- surfaced concrete and the class condition of bare con- crete a slight superiority in the average condition of the pavement surfaced with the three - eighths - inch oil top, but in view of obscured classification there is no demonstrated marked superi- ority of oil-surfaced pave- ment. (g) Typical longitudinal (and other) cracking found on adverse subgrade soils, and shown by many of the 7,500 photographs now on file in the Bureau of Public Roads, indicates a distortion of the subgrade due to vary- ing moisture content and shrinkage. The diagrams showing lines of equal mois- ture content clearly indicate the influence of the concrete pavement in preventing eva- poration. The high capil- DUNSMUIR BRIDGE OVER SACRAMENTO RIVER. economical design. Such a design will require the reinforcement now pro- vided by the commission and a more massive -type of con- crete not less than 6 inches in average depth, and some adequate corrective treatment, of subgrade, and possibly a form of "mulching" of shoulders to prevent evapora- tion. A flat subgrade is de- sirable and less crown. It is believed that on the main roads more satisfactory results will follow a con- siderably bolder standard of location on hill and moun- tain grades, and that an in- crease in width of pavement to a minimum of 18 feet is now desirable, with more sys- tematic widening and super- elevation on curves. Under modern traffic con- ditions there is an increasing demand for unimpaired align- ment and fast travel between centers. To this end designs of highways must produce in general a road that can be traversed at a speed of 30 miles per hour throughout and without excessive operat- larity of adobe soils and the great shrinkage in the long ing costs due to changing speeds, etc. Therefore, first hot summers thus produce very unfavorable conditions economy in grading becomes a rapidly decreasing ad- for a thin pavement under increasing traffic. vantage and must give way to the increased safety and All unrepaired pavement of classes D to F, inclusive, comfort of travel. which totals 120 miles and much of which is on adobe There would be advantage in some exceptions to the soils, is doubtless deteriorating and demands immediate present standard of no transverse joints. In the hot repair and supplementary construction. It is doubtful valleys considerable buckling of the 4-inch slab occurs, if much of the pavement of these classes, especially on with attendant disintegration in infrequent instances, adobe, will ultimately prove an adequate base for a This tendency to buckle would doubtless be reduced l|-inch Topeka top. An adequate " second-story " con- by a thicker slab. Experiment with transverse joints at crete construction, if extended to a total width of 20 varying intervals is desirable on adverse or adobe soils. feet to thus include two new concrete shoulders of full The future pavement will require a much larger factor depth, is to be preferred. of safety. 129 The policy of construction of grading and drainage structures and gravel surface only on certain roads in Districts 1, 2, and 3, in particular, was economically sound and deferring of paving up to the present doubt- less justified. Through roads with a minimum of un- improved gaps resulted from such policy and with ade- quate standard for most interstate travel. The standard of design and workmanship of struc- tures is high and the costs have been very reasonable. Many bridges exhibit attractive designs of unusual ele- gance. In many places the side-hill type of inlets is not functioning. The prevailing type of guard rail is a reflection of the original purpose to protect horse- drawn traffic and might be modified to advantage in maintenance cost. Railroad grade crossing elimination, where undertaken, has been well done and will require constantly more attention and investment of State funds. The standard of finish on concrete pavement has im- proved, but it is believed that still greater refinements will constantly be demanded and will probably pay in reduction of impact and resulting injury to and by traffic. It is not believed that the continued use of the three-eighths inch oil top is justified by past experience. The concrete should be laid not as a base but as a wear- ing surface. There is nothing presented by the entire California study that indicates that concrete is not a successful pavement. One of the clearest results is the emphasis on the need of better subgrade protection. Highway grading is more exacting than railroad grading. There should be further studies in respect to : (a) Traffic, with a new traffic census before June 1, 1921. and periodically thereafter. (b) The indicated slow deterioration of the existing concrete, with continuing core tests. 7571222 9 (c) Soils, with considerable elaboration of the mois- ture-content study in pavement-protected sub- grades, and the thickness of necessary protec- tive soil layers on adobe, and of the required percentage of admixtures to lessen shrinkage and to increase the bearing power, also with respect to capillarity and critical moisture content, (d) Alkali and its effect when present in the sub- grade or in the mixing or ponding water. It is believed that the motor vehicle registration law should provide separate records of the numbers of (a) all commercial trucks, including rubber-tired trucks; (b) all public freight trucks of certain important classes; (c) all foreign cars; and (d) all public passen- ger-carrying busses, and should contain strict provi- sions regarding tire conditions on all solid-tired trucks with respect to the minimum rubber cushions and flat tires, or projections, etc. The work of the State Highway Commission and the highway engineer shows a continuous and intelligent devotion to public duty. Their construction opera- tions have been widely extended under greatly varying conditions. A high degree of standardization was doubtless necessary and is evident. The failures (12.5 per cent of D, E, and F pavement) are not extensive, and some were inevitable on large-scale work. The 4-inch, 15-foot concrete pavement was continued be- yond the point of success on adverse soils, and more time will be needed to develop a type of construction certain of success on such soils. The operations have produced a large mileage of very serviceable road and from an economic standpoint are conspicuously success- ful and of continuing benefit to the State. The oper- ating income from the highways is now sufficiently large to insure the economic success of a considerably increased standard of construction. 130 PLATE LVII. ROUTE 9, LOS ANGELES COUNTY. SECTION A. 'COAST ROUTE." 2 SANTA BARBARA K. 131 PLATE LVIII. ROUTE 7. SOLANO A. ROUTE 9. LOS ANGELES A. APPENDIX A. DETAILS OF STATE HIGHWAY BONDS AND HIGH- WAY SYSTEMS PROPOSED FIRST BOND ISSUE, 1909 $18,000,000. The nominal rate of interest is 4 per cent and the maximum terms 45 years. As the law provided that the bonds must not be sold below par the issue was hard to market and only $4,280,000 was sold publicly ; the remainder, $13,720,000, was taken by the counties. 28 Had this procedure not been adopted the work could probably not have continued. The State highway act of 1909 states relative to the first bond issue : "A system of State highways in and for the State of California shall be constructed and ac- quired as and in the manner provided by law by the department of engineering of said State, at a cost not to exceed eighteen million dollars. * * * The first four hundred of said bonds shall be due and payable on the third day of July, 1917, and four hundred of said bonds in consecutive numerical order shall be due. and payable on the third day of July in each and every year thereafter until and including the third day of July, 1961. The interest accruing on all of said bonds that shall be sold shall be payable at the office of the treasurer of the State on the third day of January and the third day of July of each and every year after the sale of the same. * * * There is hereby created in and for the State treasury a fund to be known and designated as the ' State highway fund ' and imme- diately after such sale of bonds the treasurer of the State shall pay into the State treasury and cause to be placed in such State highway fund the total amount received for said bonds, etc. The moneys placed in the State highway fund * * * shall be used ex- clusively for the acquisition of rights of way for and the acquisition and construction of said system of State highways." SECOND BOND ISSUE, 1915 $15,000,000. The nominal rate of interest on these bonds is 4J per cent and the maximum term 40 years. These bonds found a ready market, except when the Federal Capital Issues Committee was in operation. The " State high- way act of 1915 " states relative to this second issue : "The fund created for the construction and acquisi- tion of a system of State highways by the ' State high- ways act' of 1909, being inadequate to fully carry out 23 Act of Mar. 22, 1909, provided in section 8 that counties in which bond money was spent should pay the corresponding interest charges, and the act of Mar. 10, 1911, ch. 165, p. 339, provided amended and detailed procedure. Act of Apr. 23, 1913, authorizes counties to pur- cliase State highway honds. the objects of said act, the uncompleted portions of said system prescribed by said ' State highways act ' and cer- tain extensions therefrom hereinafter specified shall be constructed, improved, and acquired as and in the manner provided by law by the department of engi- neering of said State at a cost not to exceed fifteen million dollars." The usual provisions follow for the sale of bonds and " The said bonds shall be payable * * * the first three hundred seventy-five of said bonds * * * on the third day of July, 1923, and three hundred seventy-five * * * on the third day of July in each and every year thereafter until and including the third day of July, 1962. The interest accruing * * * shall be payable on the third day of January and the third day of July of each and every year after the sale of the same." This act creates the " Second State highway fund " and directs that pro- ceeds of the sale of the second bond issue be paid into it and used " exclusively for the acquisition of rights of way for and the acquisition, construction, and im- provement of the uncompleted portions of the system of State highways prescribed by said ' State highway act.' And of said moneys so placed in said second State highway fund, the sum of three million dollars, or so much thereof as may be necessary, is hereby made available and shall be used exclusively for the acquisition of rights of way for and the acquisition, construction, and improvement of certain extensions," etc., extensions specified in the act. THIRD BOND ISSUE, 1919, $40,000,000. The nominal rate of interest provided in the law is 4| per cent, and the maximum term 40 years, and the bonds are required to be sold at not less than par. The act for the third bond issue specified that the " interest shall be payable on the third day of January and the third day of July of each and every year after the sale of said bonds, and said bonds to become due and payable in annual parcels of one thousand bonds, com- mencing July 3, 1926, and ending July 3, 1965." The act established the "third State highway fund," into which the proceeds of sale of the third issue of bonds shall be paid and " the moneys in said ' third State highway fund ' shall be used by the State department of engineering for the acquisition of rights of way and for the acquisition, construction, and improvement of uncompleted portions of the system of State high- ways prescribed by previous State highway acts and (132) 133 certain additional highways named in the act provid- ing for the third bond issue." Under the market con- ditions of 1919 and 1920, with these restrictions, the bonds were unsalable and the "board of control" ar- ranged March 3, 1920, to sell $3,000,000 of the bonds for $92.59 plus and pay the discount, amounting to Si'>,160.50. with accrued Federal aid. 2 * This action was decided legal by the State appellate court, hut the decision was appealed September 14 to the Supreme Court of the State of California. At the date of rendering this report the supreme court had not rendered a decision. 30 For the purpose of authorizing the issue of bonds more readily saleable petition was made to cancel the unsold highway bonds of the third issue and authorize other bonds to the same amount to be issued at an in- terest rate not exceeding 6 per cent. This initiative measure was submitted to the people for vote at the general election November 2, 1920, and carried de- cisively. This measure also relieved the counties of the payment of interest on all State highway bonds in the future. =>The following is a memorandum from the State Highway Commis- sion, dated September 25, 1920: rRiM-Ent'RE VBGAKniNG SALE OF $3,000,000 THIRD HIGHWAY BOND ISSt F. Tho State board of control consists of three members appointed by tin 1 governor and holding offlee at his pleasure. This board examines and audits claims against State funrls and has general powers of super- vision over all matters concerning the financial business policies of the State. The State board of control, together with the State treasurer, are authorized to designate as a " surplus fund " any money in the State treasury not necessary for immediate use. The State board of control is further authorized to invest the same in the purchase of certain classes of bonds, including bonds of the State of California. The only limitation on the authority of the State board of control is that no sale or exchange of bonds so purchased by the State board of control shall be made at a price which will result in a net loss to the State. Tho advisory board of the State department of engineering is em- powered hy law to designate the fund or funds to which the State controller shall credit moneys received by the State treasurer from the rnitcd States Government under project agreements relating to Fed- eral-aid work. In the sale of State highway bonds the State treasurer must obtain therefor the par value of the bonds plus accrued Interest. In February, 1920, the State highway bonds were below par in the general market. The State treasurer had received certain monevs from the t'nited States Government under project agreements relating to Federal-aid road work. Unless State highway bonds could be sold, State hiahway work would be vitally affected. All State officials concerned therein concurred in the following plan of financing : Out of the surplus fund the board of control first paid to the State treasurer the par value of $3,000,000 worth of State high- way bonds with accrued interest to the date of delivery and took tie bonds into its own physical possession, custody, and control. Thereafter the board of control sold and delivered such bonds to a syndicate of bond buyers at a price less than par. Upon the consum- mation of such sale and the receipt of moneys arising therefrom the hoard of control, by proper direction to the State controller and State treasurer, caused all such moneys to be paid into the surplus fund. Simultaneously therewith the advisory board of the State department of engineering directed the treasurer to cash certain Federal-aid road money i ln'rks and from the proceeds thereof to pay the sum of $222.- 160.60 into the surplus fund in such manner that the sum so paid into the surplus fund was exactly equivalent to the sum which would other- wise have been obtained from the sale of the bonds had the latter been sold in the open market for par and accrued interest to date of delivery. The Appellate Court of the State of California has upheld the valid- ity of the above plan and has decided that such transaction was not in violation of the provision of the surplus fund act to the effect that any sale or exchange of bonds purchased by the State board of control out of the surplus fund shall not be made at a price which will result in a net loss to the State. The appellate court further held that the advisory board of the State department of engineering was within its powers in directing the credit- ing of Federal-aid road moneys to the surplus fund. A petition for a rehearing of the matter is now pending in the State supreme court. A decision was rendered May 20, 1921, reversing the decision of the lower court. Tables 32 to 36, inclusive, which follow, show the annual payments which will be required to pay interest and principal on the various bond issues until all are completely amortized. TABLE 32. Schedule of interest and principal first bond issue $18,000,000. Year. Principal outstanding. Interest for the year (4 percent). Principal repaid. Total pay- ments.* 1911.. $400.000 1.731.000 5.225,000 11,715.000 16,400.000 18.000.000 17,600.000 17,200,000 16,800.000 16.400.000 16,000,000 15,600.000 1912 $16,000 114,800 311,100 514,300 688,000 720,000 704.000 672.000 656.000 640.000 624.000 592,000 576.000 560.000 544.000 528,000 512,000 496.000 480,000 464,000 448,000 432,000 416,000 400,000 381.000 352.000 336,000 320,000 .. ., tu 272.000 256.000 240.000 224.000 108,000 192,000 176.000 160,000 144,000 128.000 112,000 96,000 80.000 64,000 48,000 32,000 16,000 $16.000 114,800 311.100 514.300 6SS.OOO .120,000 .104,000 ,088.000 .072,000 ,056,000 ,040.000 ,024,000 ,008,000 992.000 976,000 960,000 944,000 928,000 912,000 ... ., 864,000 MS, 000 so, ... 816,000 XI .: QO 784,000 768,000 752,000 736,000 720,000 704.000 672.000 656,000 6 SO. 000 624,000 608.000 592,000 576,000 560.000 544,000 528.000 512.000 496.000 464.000 448.000 432.000 416.000 1913... . 1914.. . .... 1915 . 1916 1917 $400.000 400.000 400.000 400.000 400.000 400.000 400.000 400.000 400.000 400,000 400,000 HO, 00 400,000 400.000 400.000 400.000 400,000 400,000 400.000 400.000 400,000 100,000 400.000 400,000 400,000 400.000 400.000 400.000 400,000 400.000 400.000 400.000 400,000 400,000 400,000 KJ ... 400.000 400,000 400,000 400,000 400,000 400.000 400,000 400,000 400,000 1918 1919 1920 1921 1922 1923 15,200,000 14,800.000 14,400.000 14,000,000 13,600.000 13,200.000 12,800,000 12,400,000 12,000,000 11.600,000 11,200,000 10,800,000 10,400,000 10,000.000 9,600,000 9,200,000 8,800,100 8,400,000 8,000,000 7 600 000 1924 1925 1926 1927 1928 1929 1930... . 1931. . . 1932. 1933. 1934. 1935 1936 1937 1938 1939 1940 1941 1942 1943 7,200.000 6,800,000 6,400.000 6,000.000 5,600.000 5,200.000 4,800.000 4,400,000 4,000.000 3,600.000 3,200.000 2,800,000 2,400,000 2,000,000 1,600,000 1,200,000 400,000 1944 1945 1946 1947 1948 1949 1950 1951 1952 1953 1954 1955 . 1956 . 1957 . . . 1958 1959 . . . 1960 1961 Total 18,204,200 18,000,000 36,201,200 TABLE 33. Schedule of interest and principal second bond issue f 15,000,000. Year. Principal outstanding. Interest for the year (4} per cent). Principal repaid. Total pay- ments. 1917 $5,000,000 1918 . . . 7,116,000 J225 247 $225 247 1919 12,500,000 385 110 385 110 1920 13,000 000 573 75(1 573 750 1921 15 000 000 5fg .... 585 000 1922 15 000 000 675 000 57; OQ 1923 14 625 000 675 000 $375 000 i oso'ooo 1924 14 250 000 658 125 375 000 1 033 125 1925 13 875 000 641 250 375 000 1 016 250 1926 13 500 000 624 375 --, ... r f : -' 1927 13 125 000 607 500 -- ,. . 1928 12 750 000 - ' 7- . . * - . ' 1929 12 375 000 573 750 ; ". > i Mg Tfifl 1930 12 000 000 --. UTJ 375 000 931 875 1931 11,625,000 - ., .. 375 000 915 000 1932 .'. 11,250,000 523,125 375 000 .. 1933 10,875.000 506,250 375 000 -- 1934 . 10,500,000 HO K 375 000 864 375 1985 . . 10,125,000 472,500 375 000 :; '. . 1936 . . . 9,750,000 455,625 375 000 X . . - 1937 9,375,000 OS ISO ITS ,. 813 750 1938 9,000,000 421,875 375 000 7 |7| 1939 .. KB mo 375 000 -. mo... 8.250.000 88. UK 75 00 763.125 134 TABLE 33. Schedule of interest and principal second bond issue $15,000,000 Continued. Year. Principal outstanding. Interest for the year (4J per cent). Principal repaid. Total pay- ments. 1941 $7.875.000 $371,250 $375,000 $746,250 1942 7,500.000 354,375 375,000 729,375 1943 7,125.000 337,500 375,000 712,500 1944 6,750,000 320,625 375,000 695,625 1945 6,375,000 303,750 375,000 678,750 1946 6,000,000 286,875 375,000 661,875 1947 5,625,000 270,000 375,000 645,000 1948 . ... 5,250,000 253,125 375,000 628,125 1949 4,875,000 236,250 375,000 611,250 1950 4,500,000 219,375 375,000 594,375 1951 4,125,000 202,500 375,000 577,500 1952 3,750,000 186,625 375,000 560,625 1953 3,375,000 168,750 375,000 543, 750 1954 3,000,000 151,875 375,000 526,875 1955 2,625,000 135,000 375,000 510,000 1956 2,250,000 118,125 375,000 493,125 1957 1,875,000 101,250 375,000 476,250 1958 1,500,000 84,375 375,000 459,375 1959 1,125,000 67,500 375,000 442,500 I960 750,000 50,625 375,000 425,625 1961 . 375,000 33,750 375,000 408,750 1962 16,875 375,000 391,875 Total 16,281,607 15,000,000 31,281,607 TABLE 35. Schedule of interest and principal, third bond issue $40,000,000. [Interest assumed 6 per cent.] Tor. Total first- issue pay- ment. Total second- issue pay- ment.i Total for both issue. 1912 $16,000 $16 000 1913 114 800 114 800 1914 311,100 311 100 191J 514,300 514 300 1916 688 000 OSS 000 1917 .120,000 1,120*000 1918 ,104,000 $225,247 1,329 247 1919 ,088,000 385,110 1,473 no 1920 . 072,000* 573,750 1,645 750 1921 ,056,000 585,000 1,641 000 1922 ,040,000 675 000 1 715 000 1923 ,024,000 1 050,000 2,074 000 1924 008.000 1 033,125 2 041 125 1925 992 000 1 016,250 2 008 250 1926 970 000 999 375 1 975 375 1927 !K>0 000 982 500 1 942 500 1928 944 000 965 625 1 909 625 1929 928,000 948 750 1 876 750 1930 012 000 931, 875 1 843 875 1931 i 8% 000 915 000 i 811*000 1932 A RSO 000 898 125 1 778 125 1933 1 864 000 881 250 1 745' 250 1934 B, 848,000 864 375 1 712* 375 1935 -.-.J 832 000 847 500 1 679 500 1936 SIC 000 830 625 1 646 625 1937 ROO 000 813 750 1*613* 750 1938 784 000 796 875 l' 580* 875 1939 I 768 000 780 000 1* 548' 000 1940 752 000 763 125 l'515' 125 1941 736 000 746 250 l' 482* 250 1942 720 000 729 375 l' 449* 375 1943 704 000 712 500 1* 416* 500 1944 688 000 695 625 1 3S3 625 1945 672 000 678 750 1*350* 750 1946 656 000 661 875 l' 317* 875 1947 640 000 645 000 1*285* 000 1948 624 000 628 125 1* 252* 125 1949 608 000 611 250 1* 219* 250 1950 592 000 594 375 1* 186*375 1951 576 000 577 500 1* 153* 500 1952 560 000 560 625 1* 120* 625 1953 544 000 543 750 1* 087* 750 1954 528 000 526 875 1* 054* 875 1955 512 000 510 000 1*022*000 1956 496 000 493 125 9S9 125 1957 480 000 476 250 956 250 1958 464 000 459 375 923 375 1959 448 000 442 500 890*500 1960 432 000 425 625 857* 625 1961 416 000 408 750 824*750 1962 391 875 391* 875 Total 36 204 200 31 281 607 67 485 807 Actual amount sold is $13,000,000 only. TABLE 34. Showing approximate total bond requirements, first and second issues. I All totals include both principal retired and interest from 1912 to 1962, inclusive, by years.] Year. Principal outstanding. Interest for the year. Principal repaid. Total pay- ments. 1920... '$3,000,000 1921 *6 000 000 1 1135 000 $135 000 1922 J 12 000 000 315 000 315 000 1923 21 000 000 675 000 675 000 1924 '30 000 000 1 215 000 1,215,000 1925 40 000 000 1 755 000 1,755 000 1928 39 000 000 2 355 000 $1 000 000 3,355,000 1927 . 38 000 000 2 310 000 1 000 000 3,310 000 1928 37 000 000 2 265 000 1 000 000 3,265,000 1929 36 000 000 2 220 000 1 000 000 3,220 000 1930.. 35 000 000 2 160 000 1 000 000 3, 160, 000 1931 34,000 000 2 100 000 1 000 000 3,100,000 1932. ... 33,000 000 2,040 000 1 000 000 3,040,000 1933 32,000 000 1,980,000 1,000,000 2,980,000 1934 31,000 000 1,920 000 1.000,000 2,920,000 1935 -. 30,000 000 1,860 000 1,000,000 2, 860, 000 1936 29 000 000 1,800,000 1,000,000 2,800,000 1937 28,000,000 1,740,000 1,000,000 2.740,000 1938 27,000,000 1,680,000 1,000,000 2,680,000 1939 26,000,000 1,620,000 1,000,000 2,620,000 1940 25,000,000 1,560,000 1,000,000 2,560,000 1941 24 000 000 1 500 000 1 000 000 2 500 000 1942 23 000 000 1 440 000 1 000 000 2 440 000 1943 22 000 000 1 380 000 1 000 000 2 380 000 1944 21 000 000 1 320 000 1 000 000 2 320 000 1945 20 000 000 1 260 000 1 000 000 2 260 000 1946 19 000 000 1 200 000 1 000 000 2 200 000 1947 18 000 000 1 140 000 1 000 000 2,140 000 1948 17,000,000 1,080,000 1,000,000 2,080,000 1949 16 000 000 1 020 000 1 000 000 2 020 000 1950 15 000 000 960 000 1 000 000 1 960,000 1951 14 000 000 900 000 1 000 000 1 900,000 1952 13,000,000 840,00(1 1,000,000 1,840,000 1953 12 000 000 780 000 1 000 000 1 780,000 1954. .. . 11 000 000 720 000 1 000 000 1,720,000 1955 10 000 000 660 000 1 000 000 1,660,000 1956 9 000 000 600 000 1 000 000 1,600,000 1957 8,000 000 .no ODD 1 000,000 1,540 000 1958 7,000 000 4SO 000 1 000,000 1 480,000 1959 6,000 000 420 000 1,000,000 1,420,000 1960 5 000 000 360,000 1,000,000 1,360,000 1961 ... 4,000 000 300,000 1,000,000 1,300,000 1962 3,000,000 240,000 1,000,000 1,240,000 1963 2,000,000 180,000 1,000,000 1,180,000 1964 1,000,000 120,000 1,000 000 1,120,000 1965. .. . 60,000 1,000,000 1,060,000 Total 53,205 000 40, 000, 000 93 205,000 1 $3,000,000 sold Mar. 2, 1920, at discount of $221,160.50, at 4j per cent nominal rate. ' Amounts sold are assumed. TABLE 36. Shouting approximate total highway bond require- ments, first, second, and third issues. 1 I All totals include both principal retired and interest from 1912 to 1965, inclusive, by years.) Year. Total for three issues. Year. Total for three issues. 1912 $16,000 1940 $4 075,125 1913 114 800 1941.. 3 982 250 1914 311 100 1942.. 3 889 375 1915.. . . . . 514 300 1943.. 3 796 500 1916.. 688 000 1944 . 3 703 625 1917 1 120 000 1945.. 3 610 750 1918.. 1 329 247 1946 . 3 517 875 1919.. . . . 1 473 110 1947 . . 3 425 000 1920 1 645 750 1948 3 332 125 1921 . 1 776 000 1949 3 239 250 1922 2,030,000 1950 3,146,375 1923 2,749,000 1951 3,053,500 1924 3,256 125 1952 2,960,625 1925 3,763,250 1953 2, 867, 750 1926 5,330,375 1954 2,774,875 1927 5,252 500 1955 2 682,000 1928 ,. . . 5 174 625 1956 2 589,125 1929 5 096 750 1957 2 496 250 1930 5 003 875 1958.. 2 403 375 1931 4 911 000 1959 . . 2 310 500 1932 4 818 125 I960.. 2 217 625 1933.. 4 725 250' 1961 . . 2 124 750 1934 1935 4,632,375 4.539,500 1962 1963 127- 5 13 Salid* Sonora 49.2 14 Albany Martinex 20.6 15 Colusa 8.7 16 Hopland Lakeport 19.3 17 Nevada City... . 33.4 IS Merced Mariposa 39. 2 19 Riverside 17.7 20 Redding Weavervflle 50. 21 Orovffle . ; 7.0 22 TIoHistpr 7. 1 23 Bridgeport 337. 5 24 San Andreas 36. 6 25 Nevada City Downievilie. . . 47.0 28 Alturas 151. 1 29 Red Bluff Susanville. . . . 100.0 30 34 Jackson 34. 4 Total . 3,082.3 SECOND BOND ISSUE. 10 Hanford San Lucas 98.25 .... ElPortaL 32.60 2Q Douglas CHv .. Route 1, Arcata 102.00 Yuma, via El Centre.. . . | V, 31 do Barstow 76.33 32 Route 4 near Califs Gilroy. 83.45 33 Rout* 4 near Bakersfield Paso Robles .... 91.22 Total 679.71 "| THIRD BOND ISSUE. 58 60 57 55 53 37 15 38 1 51 63 Ml 21 Ml 49 64 50 62 61 59 48 56 46 29 22 10 43 47 52 54 Mojave N'efltllfis. via Barstnw-.. 255 86 202 67 24 95 } 212 40 24 40 10 27 20 32 100 35 10 10 40 47 97 177 53 8 36 14 20 5 12 Freemans, via Bakersfield Ranta Cmr Rio Vista FairfiM Auburn . . Verdi Ukiah Emigrant Gap TahoeCity Oregon line Crescent City Santa Rosa " Shefiville Big Pin? Oasis ...... 1 PlacerviUe , . . Sportsman's Hall ..... ... ' OrovUle Omncv General Grant National Park.. Calistoga Kings "River Canyon Lower Lake '. Mecca Blrthe Lower Lake . Pine Flats in San Gabriel Canyon. Mount Wilson Road, via Ar- royo Seco. Bailevs La Canada Lancaster McDonalds Mouth of Navarro River. San Simeon Klamath River bridge, route 3. Route 1, near mouth of Kla- math River. Vpvad* State line , Pacheco Pass Road into HoULster. Sequoia National Park P*>ep Ofipk . Metcalf Creek Orland . Chico Alto Drytown TotaL 1,798 1 Route 30 has been abandoned, and route 21 extended to cover approximately the same mileage. ! Ninety-five miles maintained under special appropriation roads. ' Fifteen miles maintained under special appropriation roads. * Ten miles maintained under special appropriation roads. Fourteen miles maintained under special appropriation roads. Tabulation of State special appropriation roads tnkcn over from department of engineering. Division I: None in this division. Division II: Miles. Lassen County, route 28, Lassen State highway 29. Sierra County (a), route 36, Sierra State highway__ 2.9 Trinity County, route 35, Trinity-Humboldt State road 33. Total for Division II_ _ 64.9 Division III: Alpine County Route 34, Carson Pass branch 14. 1 Route 23, trunk line, El Dorado County line to Picketts 2.3 Route 23, Picketts to Woodfords 6.3 Route 23, Woodfords to Loop 12. 5 Route 24, Calaveras branch, junction of Al- pine trunk to Calaveras County 31. 8 Route 13, Sonora-Mono Road, Sonora Pass to Brightmans Flat 12. 5 Total ___________________________________________ Arnador County, route 34, Alpine Road, Carson Pass Basin __________________________________________ Butte County, route 45, Westerly County, line to Biggs ------------------------------------------ Calaveras County, route 24, Big Trees to Alpine County line _____________________________________ Eldorado County Route 11, Placerville to State line ________ 65. Route 38, Myers-McKinnaTs ______________ 24. Route 23, Osgoods to Alpine County line 10. 7 79. 5 57. 8 9. 3 22. 6 Total ___________________________________________ Glenn County, route 45, Willows to east county line __ Mariposa County, route 40, Tioga Road _____________ Nevada County Route 37, Emigrant Gap _________________ 21. 1 Route 38, McKinneys-Donner Lake _______ 5. 6 99. 7 22. 4 2. 2 Total 26. 7 Placer County Route 37, Auburn-Emigrant Gap 43. 85 Route 37, Emigrant Gap 14.7 Route 38, McKinneys-Donner Lake 2L 8 Route 38, Myers-McKinneys 1. 25 Route 39, Tahoe City-Crystal Bay 11. 2 Total __________________________________________ Sierra County, route 37, Nevada County line to State line 92. 8 12. 5 Tuolumne County Route 13, Sonora-Mono __________________ 31. 5 Route 40, Tioga Road (exclusive of Yo- semite Park) _________________________ 50. 8 Total ___________________________________________ 82. 3 Total for Division III_. _ 527. 3 Division IV: Santa Cruz County, route 42, California Redwood Park .. 16. Division V: None in this division. Tabulation of Htate special appropriation roads taken over from department of engineering Continued. Division VI : Miles. Fresno County, route 41, Kings River Canyon (built) _ 14. 5 Mono County Routes 13 and 23, Sonora Pass to Bridge- port : 34.0 Route 40, Mono Lake Basin__ 12. 3 Route 4,0, Tioga Pass to Mono Lake Basin River 1. Route 23, Alpine County line to Little An- telope Valley 9.4 Route 23, Little Antelope Valley to junc- tion, Sonora-Mono Road 17.0 Total 73.7 Total for Division VI__ 88. 2 Tabulation of State special appropriation roads taken over from department of engineering Continued. Division VII : San Bernardino County Miles. Route 43, end of county pavement to most east- erly point Great Bear Lake, say 60 miles 60.0 Division Division Division Division Division Division Division RECAPITULATION. Miles. I - 0. II 64. 9 III 527.3 IV 16.0 V 0. VI 88. 2 VII _. 60.0 Total _" 756. 4 APPENDIX B There follows a table showing a comparison of the engineers estimate and final cost on 20 selected jobs which showed the greatest overruns of final costs. Following the table is a discussion of these jobs. Comparison of engineer's estimate and final cost of SO selected jobs. CONTRACT JOBS. Con- tract No. Divi- sion. Route. County. Section. Cost of labor and materials. Class of work. Engineer's prelimi- nary. Final paid. Overrun (per cent). 2 215 235 207 227 HI 102 S3 1.57 73 1 1 2 3 3 4 4 4 fi 7 1 1 3 3 21 1 5 1* 2 Mendocino ' A .. . Grading. $70 508 $93,019 128,878 24,237 107,469 143.778 m : 104,555 86,772 72,342 71,091 32 36 58 38 34 52 31 35 35 30 do. F do M >. .. SisWvou. A . . do 15 273 Butte . .... da do. 100 933 Sonoma o da 129 4$2 Santa Clara Grading 79' 725 Santa Crui j^ do" 63*996 Mariposa A.. da . . 53* 596 Ventura F,G .. 15-foot concrete base. 54* 819 Totals . 741 132 1,029,120 39 DAY-LABOR JOBS. n-74 2 3 Siskiyou. A.. Grading S3 500 S9 418 170 D-2 3 11 Eldorado B... 12-foot oil macadam 25 619 97*392 280 D-5 3 11 do C til 291 IfiO 37^ 160 1) hi 5 2 Monterey A 21 352 51 192 140 D~10S 6 IS Mariposa B .... 51 195 141 06 160 D-129 6 23 Mono c Bridges 2 "US 7 158 210 D-ll . San Diego B.r... Oil surfacing 11.006 32 240 190 2 .. . do n 1 13" 7 679 570 7 2 Ventura A 5 005 16 725 230 12 San Diego C Grading 6 000 26*542 340 Totals 187 503 549 527 193 Inquiry at the office of the State Highway Commis- sion relative to the reasons for the overruns shown in the fore iu R: \ V 145 PLATE LXII. 7571222 10 146 PLATE LXIII. 147 PLATE LXIV. 148 PLATE LXV. o UJ z O o Q o: o o u a: or h- 1 . O 3 o ul Sc O z z g I o o z u IP i2 H ul SP tf) u CD O h I m < I (O KZ FSJt I* N HI i u . C/)U(O" u 1 Q UJ (0 O o I APPENDIX F. MOTOR TRUCK FREIGHT LINES The motor freight transportation business is well systematized. The membership of the California State Draymen's Association, organized April 19, 1919, in November. 1920, included 80 per cent of the commercial hauling concerns operating under State railroad com- mission license, and representing 90 per cent of the vehicles used for this purpose. An outgrowth of this State organization was a national organization of simi- lar interests perfected in June. 1920, at Chicago, with one of the California association officers as general manager. The California organization has 30 affiliated and sub- sidiary county and district associations through which it operates. Its purpose is the promotion and protec- tion of the motor trucking business through propa- ganda and suitable legislation. To this end it is study- ing the use of the motor-truck transportation for raw juid finished products, the production and distribution of which it is now investigating. It is also preparing to fipht any adverse legislation at the coming session of the State legislature. The rates of licensed truck companies are subject to approval by the State railroad commission. Few companies operate on a flat charge per ton-mile. Their tariffs are based on commodity classes somewhat similar to those of the railroads, and. the charge is ad- justed on the basis of hundredweight-miles. Many fix a minimum charge for handling parcels. Both local and through tariffs are used. Local tariffs frequently apply to a territory and are not computed strictly on a mile- age basis. In many instances the service includes house- door collection and delivery, but a number of com- panies transport only between their several storage places. Some of the latter make local delivery for a fee, while others require the consignee to arrange for such service. Commercial hauling under supervision of the rail- road commission is only a small part of that done. To avoid the restrictions imposed by the commission for common carrier's and to obviate the delays of public hearings in regard to extensions of route, changes of schedule, etc.. many operators organize their business as a contract haul. Agreements require delivery along certain routes or between fixed termini, either for fixed or indeterminate periods. In this way not only inter- urban trucking but transportation of fruits, vegetables, dairy products, and grain from farm to canneries, depots, creameries, etc., is done. In the southern part of the State quite a number of routes are established to haul to market all agricultural products grown on certain farms and to deliver merchandise, feed, etc. The fruit and grain crops of the north are handled almost entirely by outside trucks, which move from section to section with the ripening of crops. (The standard charge for handling this season's rice crop was 25 cents per ton-mile.) It is estimated that not less than 4.000 trucks are used in California for contract hauling for entire or part time throughout the year. In order to arrived at a weighted approximate aver- age through rate per ton-mile, the estimated gross re- ceipts per week from 48 lines were divided by the ton- miles involved in the estimated tonnage handled be- tween termini. There were 122,765 ton-miles of serv- ice rendered at a total charge of $25,535.85, making the cost 20.8 cents per ton-mile. These lines traverse practically all the paved State highways, as well as lateral roads, both State and county. 31 " Some of the extreme average rates found by this method of calcula- tion but regarded as not very reliable are the following : PART PAVED STATE HIGHWAY, PART ONPAVKO. Mile haul. Per ton-mile. High 17 $1.54 . 95 20_ 15- 38- .80 .69 ENTIRELY PAVED. Low 126 JO. 03 130 . 06 126 . OT 27 . 15 (149) APPENDIX G TRAFFIC DIAGRAMS INDICATING 16-HOUR-DAY TRAFFIC ON CALIFORNIA STATE HIGHWAYS LEGEND The curves show the total of all vehicles, the total of going and of coming vehicles, the total of automobiles and the total trucks all plotted to a vertical scale of 500 vehicles to the unit and a horizontal scale of 20 miles to the unit. (151) 152 PLATE LXVI. VSOH V1KIVS I1VTCO 153 PLATE LXVII. 154 PLATE LXVIII. ROUTE NO 21 OROVILLE-LATERAU ROUTE NO. 17 NEVADA CITY LATERAL N.ANDE. S7ANO W. TRUCKS NO.3. 5ACRAMENTO TO THE OREGON LINE 155 PLATE LXIX. 156 PLATE LXX. HAYWARD SAN LCANDRO ROUTE NO. 5 STOCKTON TO SANTA CRUZ VIA OAKLAND 157 PLATE LXXI. 158 PLATE LXXII. ROUTE NOS. 12 AND 26 ROUTE NO. 12 SAN DIEGO EL CENTRO 1500 LU RQUTE NO. Z6 SAN BERNARDINO TO EL CENTRO TOTAL VEHICLES a AUTOMOBILES 5 NORTH AND EAST SOUTH AND WEST TRUCKS 40 SAN BERNARDINO EL CENTRO APPENDIX H DIAGRAMS SHOWING CLASS CONDITION OF CONCRETE PAVEMENT CALIFORNIA STATE HIGHWAYS BY ROUTES, COUNTIES, AND SECTIONS LEGEND HORIZONTAL SCALE: 1 UNIT = 2 MILES CLASS CONDITION OF PAVEMENTS SOIL SYMBOLS ABOBE AND CLAYS Y//////////7J LOAM SANDY LOAM SAND LOCATION 5 NUMBERS OF CONCRETE CORES n-i8 (159) 160 PLATE LXXIII. West City Limits SAUSAL.nO MARIN COUNTY SONOMA LINE o m GorfeMadera Ross San Rafael o 33 z en i 1 C/> c D 161 PLATE LXXIV. a D I z DC O 1^22 11 162 PLATE LXXV. o L- O LJ < o: *_ 03 vavaavg "oJsiaQ sm-]NV9 SOLUBJY 50"]' 163 PLATE LXXVI. 03 01N1WVHDVS >- Q 1 z. a: u- o 00 & 600^ O o 1) oiiiwravs y u Q_ f l 164 PLATE LXXVM. a x. z o - < I Jl O UJ *- ^ vj PLATE LXXVIII. o a: o I ! I 1 I I I M i 1= 166 PLATE LXXIX. C3 I z: X vj 030NVT05' o 3 t- cO I z DC O u. ^ 0) UJ SIABQ 167 PLATE LXXX. 168 PLATE LXXXI. 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