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 !<?. Total Topeka-on-concrete maintenance charges,
by divisions
TABLE IT. Total asphaltic concrete maintenance charges,
by divisions
rage.
in
21
40
40
40
40
49
54
5G
Pag?.
TABLE 18. Detailed costs of maintenance and improve-
ment of 32.45 miles of oil macadam pave-
ment, distributed by items 58
TABLE 19. Costs of 32.45 miles of oil macadam pavement- 5S
TABLE 20. Showing the classified condition of concrete
pavement built each year by State highway
commission 62
TABLE 21. Showing all classified concrete pavement built
by the State (surfaced and unsurfaced com-
bined) 62
TABLE 22. Concrete pavement classes and underlying soil
types 62
TABLE 23. Showing all roads, constructed and under con-
struction, in the California State system, by
types and by years- completed 62
TABLE 24. Showing percentage of shrinkage, moisture
equivalent, and moisture content of subgrade
soils 78
TABLE 25. Showing percentage of coarse aggregate in con-
crete cores by planimeter measurement 87
TABLE 26. Showing average compression tests of concrete,
averaged by age, mix. and class of pave-
ment 87
TABLE 27. Showing average compression tests of concrete,
averaged by mix, route, and class of pave-
ment ;_ 87
TABLE 28. Showing comparative compression tests of con-
crete check cores 88
TABLE 29. Approximate total motor-vehicle registration
and revenues, by years 91
TABLE 3<>. 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
<VJ
ro
SSSSS^iES^EoO^T'MO
-SHVTIOQ
13
The routes selected by the commission in compliance
with this law totaled 3.082 miles and are shown in detail
in Appendix A and in the frontispiece and Plate III.
The second bond issue provided by the legislative act
of May 20. 1915, was emphatically approved by the
voters in November, 1916. The State highway commis-
sion by the end of that year had constructed approxi-
mately 835 miles of concrete pavement and graded 323
miles in addition, and it was obvious that the original
s 1 > .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
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16
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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
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100.0
100.0
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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
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do
Los Angeles
1.8
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6.4
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42
3.6
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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
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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 <M S5
U V * 4_1 jj
- b & S- 1 C.
4> 3 WH 0) .X
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if 2
a sf
1 I
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iifjj
I Ilg I
i
t
t 2, T
2 22
^ J i 2 i
il "I 1
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1
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Thickness
(inches).
i aj
Me
i i
*. . ,*,...
: : :
; *
1
* *
33* *
3
-
> ,
i~V~|j
!^ o-*
-
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Type of work.
j
d
<n
l i
n -o u
O ^'fe 1 ^ ttJ C
a > " o gT
ss.i-
CO CO .2
i i
o o o o j
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hi
f,
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iii
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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
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22
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to
o o oo
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o to oJ
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. Northerly bound-
ary.
do
Shippee Road
.. Valley Springs
...do....
San Andreas
: a
: : o
rt . ||
. Shingle Springs . . .
El Dorado
Placerville
^ c
Berlin
Arl)iickle
Colusa Junct
CJ^ 0> '
ilt f!i -
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oZ o :o
j'
.!?...& ^i
: S : ' ^
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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 '
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g^=5l il a *
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Wo coo >
White Rock
Shingle Springs
El Dorado
Southerly boundan
Countvline...
1
a
8
CO
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. Nevada Citv
X
o a \
ij i ^ i i i: iSJiiiiiiii^ i i i ii i i
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...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
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> -~f. m CQ o
Malltoca
Houston School . . .
HA A O O
M 3
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95 P5
a*;^ <: <: <! OQ Q
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08
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jO ....
g! i i i
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Direct construc-
tion payments, i
Itffill
1 j
#
i "i si s
o*
i :
<e~
S s
f
1 i is i
2 i IS is
$
10"
* : "
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ss <"
s -
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8888
888
8
1 '
Date of
S
e
o
o
!..
"f
a
^J ^J u> >.
o o< 5
S '.
22 i
3
Oi CT>
oT -T
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ao to o
5) os os
5t
a
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g" & | ft
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s? sf
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s i
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5
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Type of work.
Base. f f
1
c
I
a
^f
<D ! ' '
3 i :
o o
*t ' So
ii O a.' x & O 02 a
15-foot concrete 4-6
base.
Oil surfacine. ..
a;
I
>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
<Jffl CQpQ
X <X <!M pqpq o OQ QOW W W
,,
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, ,,
-
*
10 " '" '^
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CO
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= a :::;:;:::::: : :::::::::::::: :::::::::
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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 : : ::::. .::::::: : !
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88 8
s s
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S S S
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S S
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il 5
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i := s"
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t
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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;-<s-<:>H <>*
t- : : : a.
o : :
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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 : : ; :
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>ct- ^ *?^~r^. TJ as -
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o
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S" 5 Jg"*"'
8 S 888
os r. - r.
5" 1
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s^
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2 2
2 2
S" 2
< =
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t-5" -T 'pf^f r N" P" ?T" iM*
3 V4pitvi4M-llii
2%.
TT
T *"
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sllllj
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4
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w o a<o<
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as ^. _
-r I--
" -e ?
Q
28
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hH
CO
,0
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CO
Remarks.
Legal
and
general.
i ii! :: 81: i i F]
<e .
Direct construe- Pavmp
tion payments. '
lit!
llfllil
a N "
; a
C*
rf
2s
;;; jj ; $
; ; ; ; ; ; ; ?
S8S SS 2
eo t- *H oo o oo
. S8 |
S
31 ^
(-- c*i
co" M*
CO
8
3
H 8 i
3a
lii s
IS iisg ig
r~ -^ ep ! ac r-
r^. M d >o 'O
O OO -t^ iO
8
uf ?f
sfsf sf -
"
SSS 23 S
icTeT pTco"o 15
^J-H (- 5
s-s;
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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<Q -< Q Q^i
||| || |
S2 S'gfgfS
' 8-gl-
S S S" :s" 1
| j-2 c
I
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-f
*t5 <> 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 <j^"n u
x M C a - ^'2 ^
i 5 5 o :<t o
and lot.
Surveying, total...
Surveyed
Oil surfacing, 15-
foot concrete
base.
15-foot concrete
base.
ttj
Sj
S SS8 2S
Sfe 3
n
^^t? S2 ooS
Sfe S888 SS
S 2 K3
:SS S
a ''' : '.
3 ...
m
s
.- : :S :
:""* N
Location.
i
Wl
Oakland
Pinole
do
Richmond...
'&
S * S S
.S&o .S- |
t- S ^- "t- '5 oo"
Callinas Creek
San Rafael
Callinas Creek
Station 248 plu
Sausalito
...do...
Larkspur
Sausalito
Co .
J^ C
13
Woo
Stanley road..
Xapa
i
Overackers corner. . .
Valle Vista School...
Havward
S. P. R. R. under-
crossing.
1
i Ml l^ 3 ^ & ! ' ^
s is
.-,.;_; c.,
ej K>
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-<J WWM W*< W-o
Northerly boun
do
do
Station 247 plus
Larkspur
. .do...
Ross
At Coyote Cree
Larkspur
O J< O
e8 '- OS
a .u^j c
a>^ O r /J C^ o-Q
OJ
i
C/2
O GOO OO
,,,
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^
_ _ _ ^^^ _ -,
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a ': T :'^ ':' : T
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: : : : : : : : : : : : : : :5 : : : : : : : : :
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base.
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Maintenance
building.
Surveying...
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15-foot concrete
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base.
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3 |
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en S aS S3 1^ " "^ CO 26 j* S
r- ^< So eo c*
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8* m<o>e? "4o" o" fpf fw
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. it - *
i! I S 2 <
d costs Continued.
Continued.
O
9 .
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up T p *
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instruction ar
VISION VI.-<
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HiHWHitL-i;:-
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Surveving, total...
CrmliiiK
do
Concrete liridges. .
<;ni(liiiK
llriilires. .
j
s I
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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
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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
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3S3?3?i 3 a 3333 3 33
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Coucrctc bridge...
Abutments (or
subway.
Construct! Hi; lie
.- i
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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
|
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Dixie Land
Nnw River bridge. . .
I'avlnf at Brawlcy
(anal.
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107 Imperial
do' t
o-a T
38 |
a i
4
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;
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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
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Grading
15-foot concrete
base.
do
Surveying, total...
i
i 1^ ill! Ifli! 1 ft
1 j |{ |jj ^
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1 i i^-ft
pi iSIH
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Oiling graded road
Move pipe line
Surveyed . .
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fix.
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&
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Calabasas mainte-
nance station.
Russells ranch
Saugus
Castaic
Santa Clara
Newhall property. .
Station 320 (Sec. A)
Castaic
PH ' Si
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Approach to
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Kane Springs
Gravel Wash
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Topeka surmce
18-foot concrete 4 ...
base
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Station 3 plus 00.
Northerly bound
ary.
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was as S .3
l
g : :9 |g | SS :g 3 : : : :::::: :| p 3
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o
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0.
: :> w.^, ^ |j ' : : : : :::::: :d ^ >-^
id costs Cot
Continued.
s .
gS .0,2
3 8
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C4 P*
W ' N M C^ ' W ' W C< ' ' !*!! C4 CM M
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: : : :l : : : : : : : : ico :2 : : : : iw : :
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II ' 1
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.-I ^ ' !~4 * ^- c* e*5t"I cceo Vco w
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: : I
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: : a 5
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f
=3^8.
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oo
no oo aa
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3 i
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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<i>, 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 <XP~
342
514
521
189
342
$559
163
$276
Yuha 3 B
555 000
11 074
1 878
1 741
2 545
1 994
1,218
268
199
43
1,185
Madera *4 B
579 000
4*099
508
1 466
1 069
386
102
29
115
100
325
Total
1,715,700
33,679
3,370
15,043
4.459
4,228
1,930
856
1,807
16
181
1,786
Cents per square yard-year
1.96
.19
.88
.26
.25
.11
.05
.11
.01
.10
402 500
978
978
Eldorado 11 B
179 200
Yuba 3 B
555 000
12 961
4 016
6 914
456
500
212
790
58
15
Madera, 4, B
579,000
433
168
260
3
1
1
Total
1, 715, 700
14,372
4,184
8,152
<M
501
212
790
58
16
84
24
.48
.03
.03
.01
.05
Symbols: PB, pavement base; PS, pavement surface; S, shoulders; CD, culverts and drains; GR, guardrail; G, grading; RS, roadside; T, trees; GE, general expense;
Pat., patrolmen.
TABLE 19. Cost of 32.4!> 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, /></ types and by years, completed. 1
1913
1914
1915
1916
1917
1918
1919
1920
Total.
Laid by California State Highway Commission:
Miles.
20.46
Miles.
167.94
MilfJi.
318.06
Mild.
50.68
Milts.
9.07
Miles.
0.90
Miles.
0.04
Miles.
Miles.
567.15
32.73
245.00
50.10
124.09
165. 23
79.41
694.56
11 15
20 33
7.74
2.09
3.44
4.24
1.40
'50.39
6 99
.44
19.13
'26.56
2.70
23.50
26.20
Total ... .
31.61
188.27
361.23
328.26
62.61
129.23
165. 71
97.94
1,364.86
140. 05
19.04
7.64
8.22
7.36
8.27
4.91
< 55. 44
16 37
.31
.07
.91
17.66
Total paving of all kinds built by California Highway Commission
Graded but not paved . . .....
50.65
212.28
369.76
335.62
62.68
137.50
170.62
98. S5
1,578.01
377. 10
Grading under construction
319.40
Total mileage, State construction
2, 274. 51
Laid by counties and incorporated in State system:
Concrete, with f-inch oil top
22.81
Concrete, with IJ-inch bituminous surface. . ..
1.01
Concrete, unsurfaced
13.58
Oil macadam
171.15
16.54
Total mileage, county construction
225.09
2, 499. 60
1 Approximately as of Sept. 15, 1920.
' 17.75 miles of IJ-mch Topeka or concrete which was classed F is included, but appears elsewhere under concrete surface with |-inch oil top.
' This total includes 9.2ft miles of "double-decked" or second-story concrete.
1 15.22 miles resurfaced only; base built by county.
63
PLATE XVII.
'
CLASS A PAVEMENT. 1 SONOMA C.
CLASS A PAVEMENT. 17 PLACER A.
64
CLASS B PAVEMENT. 7 SOLANO D.
PLATE XVIII.
CLASS B PAVEMENT. 4 LOS ANGELES A.
65
PLATE XIX.
! "M'!|!| I.I I ii
CLASS C PAVEMENT. 7 SOLANO A.
L
CLASS C PAVEMENT. 5 ALAMEDA A. OIL TOP
7571222 5
66
PLATE XX.
CLASS D PAVEMENT. 8 SOLANO A.
CLASS D PAVEMENT. 4 LOS ANGELES A.
67
PLATE XXI.
CLASS E PAVEMENT. 7 SOLANO D.
CLASS E PAVEMENT. 4 KERN C.
68
PLATE XXII.
CLASS F PAVEMENT. 15 COLUSA A. OIL TOP.
CLASS F PAVEMENT. 2 VENTURA B. OIL TOP.
69
PHOTOGRAPHS.
Photographs at standard intervals of from one-tenth
to five-tenths of a mile were taken throughout the
inspection. Supplementary close-up pictures of spe-
cial features or defects were also taken.
The photographs supported the field classifications
and checked in general with the notes, but also tended to
indicate a higher class than existed, particularly where
oil surfacing was present. On the other hand, the pho-
tographs, by foreshortening, tended in exceptional
cases to indicate as class B some pavement that be-
longed to class A. All such cases were carefully
rechecked in the field but the oil-surface concrete is
still probably classed somewhat too high and conse-
quently the diagram of Plate XVI must be interpreted
samples of soil taken at those points on the different
routes where it was deemed desirable to take sample
cores of the pavement itself.
Such soil samples were taken to indicate the soil
and the subsoil to a depth of 6 feet, and these samples
were classified by experts of the Bureau of Soils;
results from the classification of these samples were
given precedence in any apparent conflict of soil
classification.
For those special portions of the pavement where in-
tensive study was found desirable to determine the
cause and nature of failure of pavement, additional
soil samples were taken in considerable numbers and
were examined in the laboratory of the University of
California for moisture content and moisture equiva-
:RACKS IN ADOBE SOIL. 3 BUTTE D.
with this in mind. The photographs arranged by lent, and the results are described in the reports on the
routes are filed in the Bureau of Public Roads. special defective sections below.
SUBGKADE SOIL.
Supplementing inspection of the pavement an inspec-
tion and classification of the underlying soil was simul-
taneously made and subsequently checked in the field
by soil experts from the Bureau of Soils and the divi-
sion of farm irrigation investigations of the Bureau of
Public Roads, all in the Department of Agriculture.
The soil classification was further checked by soil maps
and other published and unpublished information avail-
able in the Department of Agriculture or at the Uni-
versity of California. This soil classification also is
indicated symbolically on the condition diagrams in
accordance with the legends there shown.
In addition to the soil classification reported by the
engineers in the field, a supplementary determination
of the class of soil was made from several hundred
SOIL CLASSIFICATION.
The classifications of the subgrade soil used and
shown symbolically on the condition diagrams of Ap-
pendix II are as follows:
1. Clay and adobe soils (includes clay, -illy clay,
clay-loam and clay).
2. Marsh lands (includes salt marsh and peat lands).
3. Loams (includes loam, clay-loam, silt-loam, and
silty clay loam).
4. Sandy loam (includes coarse sandy loam and fine
sandy loam).
5. Sand, and sand and gravel.
In connection with the photographic exhibits accom-
panying this report are shown photographs of the lab-
oratory experimental tests for shrinkage of various
samples of soil of the above classes.
70
SPECIAL STUDIES OF DEFECTIVE PAVEMENT.
To investigate particular causes of failure on 12
sections of the State highway, where classification
showed a large percentage of classes D to F, special in-
tensive studies were made over periods of from 3 to 14
days by six senior highway engineers of the Bureau of
Public Roads.
In each case the interval of construction, the name
of the contractor and resident engineer, the nature and
source of materials, the available reports of State in-
spectors, weather and other details surrounding the
work were carefully determined. The test results of
materials used were also investigated together with the
reports of tests of concrete made by the laboratory of
the State Highway Commission, and the tests of con-
impact of heavy trucK traffic and combinations of two
or more of the above causes. The State repair trucks
overloaded with material have greatly contributed to
the completion of failure during repairs on parts of the
same or near-by sections.
A special effort was made to determine the nature of
the subgrade soil and its moisture content. All of these
investigations were carried on between the middle of
September and the first of November and the soil
studies were made largely in September and early in
October at the end of the dry season. It is to be noted
that the season of 1920 was unusually dry and that pre-
vious seasons also had been noticeably dry ones.
The soil investigations required borings to be made
at intervals across the entire section of the roadway and
ALKALI CRUST ON ADOBE SOIL. 7 GLENN A.
crete cores drilled from the pavement. Extensive in-
vestigations of drainage conditions on the ground and
in the vicinity were also made, local people were inter-
viewed, and a special effort was made to determine al-
kali conditions and the source of mixing and curing
water for all concrete.
As a result of these 12 special studies there are re-
ports in great detail on file in the Bureau of Public
Roads. These reports show varying primary and sec-
ondary causes of failure. Among these causes subsoil
and drainage conditions, particularly on new locations,
predominate and poor and thin concrete follows.
One failure is apparently due to construction of con-
crete pavement in the cool fall, winter, and early spring
seasons followed by the high temperature of July in
the interior valley. Several reports raise the question
of alkali in the mixing or ponding water or in the
moist subgrade and particularly in basin or flat valley
areas. Other contributory causes are dirty sand and
poor curing, lax inspection of mix, rough finish and
to a depth of about (5 feet. From six to eight such
borings were made in each instance on 35 sections.
They were made with a 2-inch soil auger in the center
of the pavement and at the edges and through the em-
bankment in fill and in the ditch line in certain in-
stances. The samples which were brought up from
the various depths were immediately placed in tightly
sealed tin cans and shipped to the soil laboratory of the
University of California. In all 1,207 such samples
were taken.
In the laboratory three principal tests were made on
the soils:
(a) Soil moisture determination.
(b) Moisture equivalent determination.
(e) Contraction or shrinkage measurement.
SOIL MOISTURE DETERMINATIONS.
The contents of each can were thoroughly mixed and
reduced by rolling about 10 times on a sheet of celluloid
and duplicate 100-gram samples weighed into aluminum
71
dishes 2 inches in diameter and one-half inch in depth.
Moister soils were kneaded to a round mass. The filled
dishes were weighed and placed in an electric oven for
five hours or more (and all night in case of heavy soils),
and all at a temperature of about 100 C. They were
then cooled in a calcium-chloride dessicntor and again
weighed. The percentage was then calculated as the
ratio (in hundredths) of the difference between the
first two weighings (of wet and dry soil and dish)
divided by the net weight of the dry soil. In all there
were 1,428 such moisture determinations.
MOISTURE EQUIVALENT DETERMINATIONS."
To develop a comparative basis for degree of satura-
tion of soils, moisture equivalent determinations were
made on 150 type samples. The method of Briggs and
Schauntz was used and consisted essentially in de-
termining the amount of moisture that a sample can
hold against a force of one thousand times gravity de-
veloped by centrifugal force. The contents of each can
were air-dried, reduced by rolling, and sifted. The
centrifuge used to drive off moisture held 16 sample
cups and 8 samples in duplicate were run simultane-
ously. Two wetted check samples were placed in cups
directly opposite in the machine, which was revolved
at a speed of 2,40(1 revolutions per minute for 30 min-
utes. Then the samples were quickly removed to tightly
covered cans and weighed at once. The can lids were
then removed and the sample dried over night at 100
C. The cans were then covered and when cooled were
again weighed. The percentage of moisture in the
sample was determined as the quotient of the loss by
drying after removal from the centrifuge and the
weight of the dry soil.
SHRINKAGE TESTS.
One hundred and forty shrinkage tests were run on
the soil samples in order to determine the per cent
of shrinkage under standard conditions. The soils
varied from light sand to heavy adobe, and conse-
quently contraction varied greatly. Typical samples
were dried and sifted and then wetted to about capil-
lary saturation and kneaded and placed in aluminum
cups to dry. The wet soil was struck level and allowed
to dry in room temperature four days. The volume of
each soil cake was then determined by mercury dis-
placement and compared with the volume of the cup.
The volume of the dried soil was expressed as a per-
centage of the wet volume or of the volume of the
cup.
Exact details of each process of all of the above tests
are on file in the Bureau of Public Roads. In the
shrinkage tests water was first tried instead of mercury,
but it was found necessary to waterproof the cakes with
10 See reprint from proceedings of American Society of Agronomy,
volume 2, 1920, " Moisture Equivalent Determinations and their Appli-
cation," by Lyman J. Briggs and J. W. McLanr.
sprayed shellac. The volume of this shellac coating
was negligible but the coating was not perfectly water-
proof and air clung to the inside of the cup and cakes
and prevented an accurate reading before water could
penetrate the shellac, consequently mercury was substi-
tuted. There was some difficulty with the mercury on
account of its tendency to accumulate dirt and oxidize
at the surface which required wiping the mercury sur-
face with chamois after each run.
Table 24 shows the percentage of shrinkage, moisture
equivalent and moisture content of typical subgrade
soils and Plates XXIII to XXVI, inclusive, are corre-
sponding pictures showing shrinkage.
SUBSOIL MOISTURE CROSS SECTIONS.
In Appendix D, plates LIX to LXIV, inclusive, are
given 9 cross sections of the State highway showing
lines of equal moisture content as determined by the
moisture content test described above. These sections
are selected as representative of the 35 reported and in-
dicate in a general way the loss of moisture in the dif-
ferent parts of the section. In some cases the nature of
the soil is shown on the section. The general nature
of the soil in each case is also indicated on the " Condi-
tion diagram" for the corresponding section (Plates
LXXIII to LXXXIV. inclusive, Appendix H).
These moisture content sections are presented as indica-
tive of a condition which probably operates to cause
unequal bearing power across the section of the pave-
ment. The samples were nearly all taken before any
rains fell in the fall of 1920 and after a very dry sum-
mer. The cross sections clearly show that, on heavy
soil, moisture remains directly below the center of the
pavement indefinitely and leaves the pavement at the
edges with resultant shrinkage and change in l>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
^^
<r
380
_
-, L .\
r-^'
cf
s/
s
&
, ,7,vr ,
$'&'
Jf
880
\^^
\cf
>
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
[
.> <i
r'
80
(S
o c
ft
ti
p-v
40
r o-oo<
.O-O---O
''
to
r
MO
STURE
*4\A-
%
o o
o o
O
U/xx
o-o-o-
o-o-oc
o
a o-^
80 40 60 80 100 180 140 160 180 200 820
PENETRATION IN .001 INCHES
MOISTURE EQUIVALENT NOT AVAILABLE
SAMPLE FROM COLUSA 7-C 8. MILES NORTH OF COLUSA JUNCTION
77
PLATE XXVIII.
CURVES SHOWING RELATION BETWEEN MOISTURE CONTENT
AND
BEARING POWER OF SOIL 17227
80 40 60 80 100 120 140 |60 180 200 220
PENETRATION IN .001 INCHES
SAMPLE FROM LOS ANGELES 8-B
MOISTURE EQUIVALENT = E4.0 <\ o
MOISTURE CONTENT OF ADJACENT SAMPLES IN PLACE ABOUT 21.5
78
TABLE 24. Showing percentage of shrinkage, moisture equivalent, and moisture content of subgrade soils.
Location and position.
Photo-
graph
No.
Shrink-
age per
centage
of origi-
nal wet
volume
after
drying.
Moisture
equiva-
lent (per
cent).
Moisture
content
(per
cent).
Location and position.
Photo-
graph
No.
Shrink-
age per
centage
of origi-
nal wet
volume;
after
drying.
Moisture
equiva-
lent (per
cent).
Moisture
content
(per
cent).
County.
Route,
section.
Mile or
station.
Depth of
sample
(feet).
County.
Route,
section.
Mile or
station.
Depth of
sample
(feet).
Kern
4-F
4-F
4-F
4-F
4-F
4-F
4-F
4-F
4-B
4-B
4-B
4-B
4-B
4-B
4-B
1-C
1-C
1-C
1-C
1-C
1-C
1-C
1-C
1-C
1-C
1-C
1-C
2-B
2-B
2-B
2-B
2-B
2-B
2-B
2-B
2-B
2-B
2-B
2-B
2-B
2-B
2-B
2-B
2-B
1-G
1-G
1-G
1-G
1-G
1-G
Mile.
3.7
3.7
4.0
4.0
4.6
4.6
5.1
5.1
2.3
2.3
2.7
2.7
1.7
3.2
3.2
Station.
238
238
238
238
284
2-84
284
284
319
319
319
319
Mile.
12.2
12.2
12.2
12.2
13.2
13.2
13.2
13.2
15.0
15.0
15.0
15.0
15.5
15.5
15.5
15.5
26.5
Station.
323
323
323
413
413
413
0- 1.5
1. 5- 3.
0- 1.5
1.5- 3.0
0-1.5
1.5-3.0
0- 1.5
1. 5- 3.
0-1.5
1. 5- 3.
0- 1.5
1.5- 3.0
3. 0- 4. 5
0- 1.5
1. 5- 3.
0-1.5
1. 5- 3.
3. 0- 4. 5
4.5-6.0
0- 1.5
1.5-3.0
3. 0- 4. 5
4. 5- 6.
0- 1.5
1.5-3.0
3. 0- 4. 5
4. 5- 6.
0- 1.5
1.5-3.0
3. 0- 4. 5
4. 5- 6.
0-1.5
1.5-3.0
3. 0- 4. 5
4. 5- 6.
0-1.5
1.5-3.0
3. 0- 4. 5
4. 5- 6.
0- 1.5
1. 5- 3.
3. 0- 4. 5
4. 5- 6.
0-1.5
0- 1.2
1. 5- 3.
3. 0- 4. 5
0-1.5
1. 5- 3.
3. 0- 4. 5
1
2
3
4
5
6
7
8
9
10
11
12
13
80.82
83.99
69.1
63. 25
74. 7N
80.51
75.96
76. 19
79.63
70.85
84.89
79.76
93.05
19. 95
19.55
22. 5
29.4
18.12
15.7
16.0
18.8
20.5
23. 15
14.92
18.67
12.22
5.35
5.78
40.6
42.7
25.3
21.9
41.2
43.3
32.3
32.0
33.7
33.3
28.2
31.25
27.7
28.89
30.47
31.67
27.63
33.1
30.91
29.19
24.21
28.52
27.99
26.81
26.3
24.4
23.95
20.5
23.7
25.8
24.7
30.0
29.4
29.4
29.8
14.0
13.57
13. 55
15.X
9.21
5.71
8.61
10.82
14.73
16.3
11.65
14.0
11.16
4.01
4.47
32. 15
50.7
24.9
24.2
36. 5
29.6
30.4
29.0
23.6
29.4
26.65
28.9
16.13
14.82
13.93
15.28
22.16
20.15
17.13
17.2
21.52
19. 35
18.52
16.46
19.2
18.4
18.75
14.95
17.2
22.9
25.1
28.8
29.47
30.67
32.05
Kings. .
10-A
10-4
10-A
10-A
10-A
10-A
10-A
10-A
10-A
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
5-B
14-B
14-B
14-B
14-B
14-B
14-B
14-B
14-B
14-B
14-B
14-B
7-B
7-B
7-B
7-B
7-B
Mile.
4.55
6.95
3.75
:i. 75
3.75
:i. 75
4.55
4.55
4.55
2.55
2.55
2.55
2.55
2.55
2.55
2.55
4.4
4.4
4.4
4.4
4.4
4.4
4.4
6.0
6.0
6.0
6.0
6.0
6.0
6.0
6.7
6.7
6.7
6.7
6.7
6.7
6.7
23.9
23.9
23.9
23.9
24.8
24.8
14
14
14
14
14
34.5
34.5
34.5
34.5
34.5
0- 1.5
1. 5- 5.
3.0- 4.5
3.0- 4.5
4. 5- 6.
4. 5- 6.
0- 1.5
0- 1.5
1.5- 2.0
0- 1.5
1.5- 3.0
3. 0- 4. 5
4. 5- 6.
6.0- 7.5
7. 5- 9.
9.0-10.0
0-1.5
1.5- 3.0
3. 0- 4. 5
4.5-6.0
6.0- 7.5
7.5-9.0
9.0-10.0
0- 1.5
1.5- 3.0
3.0- 4.5
4.5- 6.0
6.0- 7.5
7. 5- 9.
9. 0-10.
0-1.5
1.5-3.0
3.0-4.5
4. 5- 6.
6. 0- 7. 5
7.5- 9.0
9. 0-10.
0-1.5
1.5-3.0
3.0-4.5
4. 5- 6.
0- 1.5
1.5-3.0
0-1.5
1.5- 3.0
3.0- 4.5
4-5- 0.0
6.0-7.5
0- 1.5
1.5-3.0
3.0-4.5
4.5- 6.0
6.0-7.5
31
32
86.75
82.24
15.56
20.34
13. 72
21.9
19.05
13. 82
15. 15
15.39
18.06
17.7
17.7
22. 45
21.3
22.9
26.0
26.7
21.9
21.3
23. 5
24.4
21.30
19.67
21.89
27. 51
26. 08
37.02
33. 71
36.45
38.58
33.29
13.10
15.48
19.32
24.19
32.13
29.81
45.23
25.25
28.45
27.00
!.\. 94
19.72
19.39
29.39
30.73
30.92
18.86
30.51
21. 59
26.81
33.83
24.91
21.27
10.98
12. 25
11.35
14.25
17.63
12. 25
12.07
12,88
14.56
10.6
11.0
12.4
13.0
15.0
16.7
17.6
14. 8f.
12.4
11.9
12.2
8.75
8.12
9.52
13. 95
17.70
30.23
24.50
21.40
21.78
22.27
9.22
13.27
18.27
23.92
32.18
27.16
29.65
16.83
15.43
13.19
10.12
12.82
9.33
14.%
22.50
25.69
20.24
24.00
18.94
124.98
14.26
14.40
15.73
Do
Do
Do
Do
Do
Do ...
Do
Do
Do
Do
Do
Do .
Do
Do
Do
\lameda
Do .
Do
Do
39
40
41
42
43
44
45
46
47
48
49
50
1
2
3
4
5
6
S
9
10
14
15
16
17
18
19
1
2
3
71.35
73. Ofi
60.25
65.61
64.39
57.5
54. 97
62.04
59. 33
57.29
55. 23
59.11
68.46
65. 81
52. 21
52.18
42.75
42.85
36.22
Do
Do
Do ..
Do ....
Do
Do
Do
Do
Do
14
15
42.89
60.66
Do..
Do
Do
Do...
Do
Do
Do
16
17
IX
19
20
21
22
23
82.17
46.02
42.05
62.29
59.94
46.66
51.84
66.7
60.05
55.67
56.56
51.36
52.58
53.83
46.11
50.14
49.41
60.42
53.03
55.54
57.88
60.76
66. 03
63.01
70. 28
72.08
65.65
66.54
66.08
Do...
Do
Do
Do
Do .
Do ..
Do
Do ..
Do
Do...
Do .
Do
Do
Do ..
Do .
Do
Do
Los Angeles. . .
Do
19
20
21
22
23
24
25
26
27
28
29
30
34
35
36
37
38
24
25
33
Do
Do ..
39.78
84.29
82.67
72.47
62.22
49.47
51.54
39.77
57.95
55.73
57.64
Do
Do
Do
Do
Do
Do
Do
Do
Do
Do
Do
Do
Do
Do..
Contra Costa.
Do .
Do
Do
Do
Do
Do
Do
Do
4
75.16
Do
Do
Do
Do
5
6
7
10
11
13
14
15
16
17
59.09
57.11
57.53
78.40
52.78
61.15
51.33
49.83
62. 52
64.49
Do
Do
Do
Do .
Humboldt
Do
Do .
Do
So lano .
Do
Do .
Do
Do
Do
Do
Do
Do
CONCRETE SAMPLE CORES.
Six hundred and thirty-eight concrete test cylinders.
4^ inches in diameter, were drilled from various Port-
land cement concrete sections on State highway routes
numbered 1, 2, 3, 4, 5, 7, 14, and 15, and totaling 800
miles. These cores were drilled in pairs at designated
stations, and their locations are shown on the condition
diagrams of Appendix H. Each pair was drilled in
the pavement about 25 feet apart and on opposite sides
of the road and 4 feet from the edge. The designated
stations were selected in advance from the plotted con-
dition diagram to represent as well as possible all
classes of pavement on the chosen routes. Under each
core one or more soil samples were taken to a depth of
C feet. Two types of core drills mounted on trucks
were used the chilled steel shot drill and the diamond
drill (views of the diamond drill are shown in Plate
XXIX). The shot drill, loaned by the State, was first
tried, but after drilling cores on routes 3, 7, 14, and 15,
a total of 187 cores, the diamond drill was used, and it
produced not only cores of much better appearance, but
also was found to work much faster. The sides of the
shot-drilled cores were very rough ; the mortar fre-
quently was torn out in the process of drilling to a
depth of one-fourth incli or more. 1 - The sides of the
diamond cores, on the other hand, w T ere very smooth.
The photographs of both diamond and shot-drill cores,
shown in Plates XXX and XXXI. illustrate this point.
The average time of drilling the core 4 inches in depth
in 1 : 2^ : 5 concrete, with the shot drill was about 42
minutes with the diamond drill about 5 minutes.
A complete record was kept of the operations of each
drill and a copy forwarded with each shipment of cores.
Each clay the cores drilled were expressed to the United
States Bureau of Standards local office in the Ap-
praisers' Building. San Francisco, under an arrange-
u A more modern design of thj chilled shot drill is said to givi- better
results.
79
PLATE XXIX.
DIAMOND DRILL, SHOWING CUTTING EDGE OF BIT.
GENERAL VIEW OF DIAMOND DRILLING OUTFIT.
80
PLATE XXX.
D.IAMOND DRILL CORES FROM ROUTE 2.
The upper number on the label shows the route number as a whole number and the core number as a decimal following.
The lower number is an identification number. The cores are drilled in pairs for a check and so shown. The location of each
core is shown by a corresponding number on the "Condition Diagrams" of Appendix J. The white line on the scale shows
the 4-inch height.
81
PLATE XXXI.
7571222 6
SHOT DRILL CORES FROM ROUTES 7 AND 15 AND DIAMOND DRILL CORES FROM ROUTE H.
(See note under Plate XXX.)
82
ment for cooperation between the two bureaus to do the
testing. Thanks to the hearty cooperation on the part
of the local representatives of the Bureau of Standards
this arrangement worked perfectly.
The cores were subjected to the following tests :
(1) Visual inspection with a complete record of the
appearance, distribution, and grading of coarse aggre-
gate and sand, presence of voids, etc.
(2) Cores were photographed in sets of four from
opposite sides.
(3) Measurement of maximum diameter and maxi-
mum and minimum height.
(4) Planimeter measurements to determine the ap-
proximate percentage of coarse aggregate by tracing
the exposed areas of coarse aggregate in two 4-inch
squares on opposite sides of the core.
(5) Absorption test made by weighing the core in
air, immersing in water for 24 hours, surface drying,
and again weighing.
(6) Weight per cubic foot by weighing in air (dry),
and in air and water after 24 hours' absorption, to "de-
termine specific gravity, from which the weight per
cubic foot was obtained by multiplying by 62.37.
(7) Compression tests in a 100,000-pound Olsen ma-
chine with slow speed of one-tenth inch per minute on
cores, both ends of which had been capped with a thin
layer of neat Portland cement gaged with a 4 per cent
solution of calcium chloride. Previous to capping, the
lower surfaces of the cores in sets of about 50 were
ground to an approximate plane on a stone grinding
table, and after capping they were allowed to rest three
days. Cores were cemented temporarily in vertical
position during the grinding process by plaster of
Paris. The operation of grinding required about two
hours.
Of the cores drilled a few were sent to a commercial
laboratory and 95 to the division of tests in the Bureau
of Public Roads in Washington, D. C. Several irregu-
lar-shaped blocks of Portland cement concrete taken
from the pavements were also sent to the division of
tests.
RESULTS OF TESTS.
(1) A study of the remarks from the visual inspec-
tion shows that the cores vary considerably in appear-
ance, both as affecting (a) maximum size of the coarse
aggregate, (b) its distribution, (c) coarseness of sand,
etc. On the other hand, not very much variation in
density is observed. The presence of characteristic air
voids along the lower portion of pieces of exposed
coarse aggregate is frequently noted. As far as could
be noted from this inspection the maximum size of
coarse aggregate varied from slightly over 2 inches
down to three-fourths inch. The sand, as a rule, was
well graded and clean, the one outstanding exception
to this being on route 2, Los Angeles County, Section
C. In this section three out of six cores were broken
during the process of drilling, and examination showed
the presence of dirty sand. The three cores which came
out whole showed very low compression tests. The con-
crete after fracture indicated dirt in the mortar.
(2) The photographic record was of value in check-
ing notes of visual inspection particularly relative to
the size and distribution of coarse aggregate. Photo-
graphs of typical sets are shown in Plates XXX and
XXXI.
(3) Shot cores varied in diameter from 4.4 to 4.6
inches, as near as could be measured by calipering.
The diameter of the diamond cores on the other
hand was practically constant at 4.5 inches. The
height of the cores showed the thickness of pave-
ment, and where the nominal thickness was 4 inches
the cores varied all the way from 3 to 5 inches. As a
rule, however, the average variation in the depth of
core in any given contract is not more than 0.5 inch,
and was generally greater rather than less than the
nominal depth of the pavement.
(4) Planimeter measurements to ascertain the per-
centage of coarse aggregate were taken on 194 cores on
routes 4, 7, and 14 and part of route 2. The average
percentage of coarse aggregate as determined by this
method (assuming the volumes proportional to areas)
is shown in Table 25. It will be noted that the average
percentage in all cases is approximately 50, which is,
theoretically, about the average of solid stone in a given
volume of either 1 : 2 : 4 or 1 : 2^ : 5 concrete, assuming 45
per cent voids. Individual planimeter measurements
varied from less than 30 to more than 60 per cent. The
great majority, however, were within 5 per cent of the
general average of 50. Typical core tracings are shown
in Plates XXXII and XXXIII.
(5) Absorption tests showed a variation in percent-
age of absorption from somewhat less than 1 per cent
in rare cases to about 2| per cent, the average being
about \\ per cent. There appeared to be very little
relation between the percentage of absorption observed
and other physical characteristics of the cores.
(6) Weight per cubic foot determinations showed
results varying from 140 to 160 pounds per cubic foot.
Cores 2.66, 2.67, and 2.70, which have been noted above
in connection with the presence of dirty sand in the
mortar, showed a weight per cubic foot of 132 pounds.
With this single exception, however, all the cores tested
averaged very close to 150 pounds per cubic foot.
(7) Examination of the concrete specimens after the
compression test showed, as a rule, that the coarse ag-
gregate was sound and of good quality, composed of a
PLATE XXXII.
TYPE OF GRADING AND DISTRIBUTION OF COARSE AGGREGATE
A SERIAL -4.33
MILL 54.5
PERCENTAGE OF
COARSE AGGREGATE
63.00/0
A SERIAL 4.27 A
MILE 51.2
PERCENTAGE OF
COARSE AGGREGATE
84
PLATE XXXIII.
TYPE OF GRADING AND DISTRIBUTION OF COARSE AGGREGATE
B SERIAL 4.117
MILE 776
PERCENTAGE OF
COARSE AGGREGATE
47. 1 ft
i
5?O
B SERIAL 4.99
MILE 4.40
PERCENTAGE OF
COARSE AGGREGATE
3E.8fo
85
PLATE XXXIV.
DIAGRAM
SHOWING
RELATION BETWEEN AGE OF CONCRETE IN YEARS AND CRUSHING STRENGTH
NUMBER OF TESTS AVERAGED
YEAR |:a:4M!X i:8g:5MIX
I
3
4
5
6
7
5E
6
8
123
114
88
16
5000
4000
o
- ?
i 3000
ui 4
K 3
t- O
/> <O
10 \fl
"=> 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.
<n
K
LJ
I
(9
U-
z
o
b
tc
H
(5
cr
o
S310IH3A
94
PLATE XXXVII.
ODT1JXK MSP
CAUFORNIA
TRAFFI ^STATIONS
LOCATION AMD DESIGNATIONS
NOVEMBER
1920 *
V
95
From the traffic diagrams it is apparent that the duty
of the State highways is preponderantly to carry motor
vehicles horse-drawn traffic is actually only 2.7 per
cent of the average daily traffic at the 103 stations.
There is a uniformly large increase in total traffic on
Sundays. The ratio of the average 16-hour week-day
total count to the corresponding average 16-hour Sun-
day count is approximately 1 to 1.7.
The average distribution of Sunday traffic is shown
for 16 stations in the following table :
Table showing average 16-hour Sunday traffic at 16 stations.
Type.
Average
vehicles.
Percent
of total
traffic.
Percent
of total
trucks.
Light automobiles
833
36.8
Heavy automobiles
1,282
56.6
Busses
29
1.3
Trucks, class 1
62
2,7
50.5
Trucks, class 2 . . ..
18
.8
14.6
Trucks, class 3
10
.4
8.1
Trucks, class 4
12
.5
9.7
Horsfi-drawn vehiHefi
21
.9
17.1
Extraordinarily heavy
Total of all vehicles
2,267
100.0
100.0
Total of trucks only
123
The results are shown plotted in Plate XXXIX for
the two portions of the State designated. In this figure
is also indicated the interval within which traffic counts
occurred. From this diagram it is at once seen that the
motor-truck traffic counts were taken during such period
of the year that they probably represent more than the
average daily market hauling.
TRUCK QTTESTIONNAIBES.
A questionnaire was sent out during the month of
August to approximately 21,000 owners of trucks with
solid tires. From this questionnaire 4,707 replies were
received, of which 364 were blank and 1, 495 were oper-
ating more than 95 per cent within cities. An addi-
tional 1,078 could not be used because of defective data.
There remained 1,930 replies which could be identified 1
from owners using one or more of the State highways.
There follow tables showing answers to various ques-
tions in this questionnaire :
The daily motor-truck traffic throughout the State, as
determined by the actual count for equivalent 16-hour
days at the 103 official stations, was 12.48 per cent of
the total traffic. 19
The total daily motor-truck miles over the California
State highways was then computed separately from the
actual traffic count. This daily truck mileage is the
total of the areas below the motor-truck curve shown in
the traffic diagrams, or 286,375 truck-miles. The re-
sult does not apply throughout the year, because the
interval of the count, between August 7 and October 14,
fell within the limit of the " peak-load " interval on the
California highway system for hauling of agricultural
products.
This " peak-load " interval for agricultural products
was determined separately for a group of 30 counties
north of the Tehachapi Mountains and for a group of
8 counties of southern California, all traversed by the
State highways. The data were obtained from the re-
port of the State board of equalization for 1918 and
from field investigations. The field investigations were
made by an engineer and resulted in satisfactory de-
termination of the entire interval of market hauling
of 9 separate groups of crops and of the " peak in-
terval." With these separate crop-marketing intervals
and the total yields from the report of the board of
equalization and from comprehensive road maps for
each county it was possible to make a fairly satisfac-
tory estimate both of the " peak interval " and the
" peak load " in tons which it is the duty of the Cali-
fornia State highways to carry. It was found that
apparently about 23 per cent of all agricultural prod-
ucts is hauled for some distance over State highways.
Capacity
of trucks
in tons.
Average
distance
operated
daily.
Average
weight
cargo
(pounds').
Average
advan-
tageous
speed
(miles
per hour).
Average
mileage
per
gallon
of gas.
I
31.0
1,007
18.0
14.7
!
29.8
1,462
17.6
11.1
i
44.7
1,963 13.9
11.4
11
34.0
3,591
15.7
9.5
2
53.9
4,624
14.5
8.6
M
47.4
5,776
13.2
7.8
r
44.8
6,992
12.6
7.8
3J
47.7
8,353
9.9
5.9
14
56.6
9,800
11.8
5.1
5
60.8
10,950
11.1
4.9
5|
69.0
14,000
12.4
4.1
<6
59.8
14,222
12.8
4.7
'6i
42.5
12,500
12.5
5.5
r
38.0
13,888
9.6
5.2
1
1 From an average of 91 replies.
From an average of 130 replies.
From an average of 5 replies.
' From an average of 9 replies.
* From an average of 2 replies.
From an average of 7 replies.
The commodities reported as hauled by motor truck
in the available answers to the questionnaire are shown
in the table below :
What trucks haul From questionnaires.
FARM TO MARKET.
Class.
Number
Garden truck
312
1,444,885
Fruits of various kinds
438
1,763,225
Cereals, hay, feed
329
1,729,910
Cotton.'.. "
2
4 500
Meat and live stock
95
>- 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,
</
tf'
) 2 4 6 8 10
PERCENTAGES OF TOTAL FOR THE DAY
105
PLATE XLIV.
A.M. 6-7
7-8
8-9
9-10
10-11
M. ll-ia
RM.I2-I
2-3
-
^
^y
>
\
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
<A
^&
V ^
X^f
X
v>
(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 <O r~ co o
5 o> 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 <t.
1,631,875
1,180,000
1936 . .
4 446 625
1964 "%.
1 120 000
1937
4.353,750
1965
1,060,000
1938
4 260 875
1939
4 168 000
Total
160,690,807
1 Assumed completely sold.
1 Table assumes last installment, $2,000,000, of second issue sold, and interest
rate of 6 per cent for third issue, and assumes also the sales indicated in detailed
table showing interest and principal of third bond issue.
135
The list of highways laid out by the commission in
compliance with the highway act of 1909 and the ad-
joined list of highways described in the laws of 1915
and 1919 to be built under the respective bond issues
of those years are given below :
FIRST BOND ISSUE.
Route.
From
To- Mileage.
1
Crescent City 371- 2
2
do
SariDiego..! 481.8
3
Oregon fine 291. 3
4
do
Los Angeles 359.
5
Santa Cruz via Oakland 116.9
6
Woodland Junction 14.3
7
Benicia . 142. 7
g
Cordelia, via Napa 38.6
9
San Bernardino 53.5
10
Hanford 13.2
It
Placerville . 46.5
12
Fl Ontt> 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<roinr statement elicited the following:
CONTRACT JOBS.
No. 2 : The contractor abandoned this job during the winter
of 1912 and left it in a deplorable condition so that when the
Stute took over the work considerable extra expense was in-
curred in getting it back into shape and bringing it to comple-
tion. A gravel surfacing was also applied to the job which was
not contemplated in the preliminary estimate.
No. 215 : Upon this contract there were several slides aggre-
gating in the neighborhood of 6,000 cubic yards. The bid on
this contract was $24.760.24 over the preliminary estimate.
No. 235 : Several slides occurred on this job. which increased
the cost considerably. The contractor's bid on this job was
.'5.843.55 over the estimate.
No. 207: This contract was completed by State forces upon
the failure of the contractor. The excavation overran 7,425
cubic yards and the preliminary estimate appears to have been
somewhat too low. The cost of material overran the estimate
by .<4.0S4.35.
No. 227 : The original estimate was apparently too low for
the work at the time bids were received. Excess yardage exca-
vation. 7,516 cubic yards. Extra work. $10.715.33.
No. 16 : Work on this contract done by the contractor was
found to be very faulty and it was necessary for the State to
replace considerable quantities of work. This contract was
completed by State forces after the failure of the contractor, who
left the work in a deplorable condition. There was also an
increase in quantities of excavation and concrete put in on this
job. which tended to make the cost excessive. [Note low bid
and excess quantities of work done by contractor.]
No. 102: An increase of 49,900 cubic yards of excavation over
that shown in the preliminary estimate accounts for the in-
crease in cost of this job. This increase in yardage was due to
slides, damage by storms, line changes, grade changes, etc.,
which developed during the progress of the work.
No. 83 : An increase of 39,954 cubic yards of excavation over
that shown in the preliminary estimate accounts for the bulk of
the difference between the preliminary estimate and the final
cost. This increase in excavation quantities was due to line
and grade changes to save large redwoods and for other rea-
sons which developed during the course of construction.
No. 157 : Considerably more rock excavation was encoun-
tered than had been expected, although the total yardage (earth
and rock) excavated was practically the same as originally
estimated. [The original estimate for rock was $1 a cubic
yard and the contract price was $1.50 a cubic yard. The esti-
mate for earth excavation was 45 cents a cubic yard and the
contract price was 38 cents.]
No. 73: The original contract covered 3.58 miles in Section
F, with an optional extension of 1.47 miles, which, on account
of right-of-way difficulties, was not included in the contractor's
work. This 1.47 miles was, however, improved about the same
time contract No. 73 was in progress, but by State forces and
the charges carried under contract No. 73. This work amounted
to $10,329.38 for labor and probably about an equal amount
for materials, although there is no way of segregating the mate-
rial charges on this stretch.
DAY-LABOR JOBS.
Except D-2 and D-o. all day-labor jobs Misted above) were
not advertised for bids, and so no comparison can be made of
bids. There are no final estimates of quantities on these day-
labor jobs, so there is shown no comparison of quantities and
unit costs.
D-74: The engineer's preliminary estimate for this work
should be $23,325. The work originally contemplated, at an
estimated cost of $3.500 and covering 0.3 mile, was extended
to include 1.52 miles. With the coming of winter work was
(137)
138
shut down and the following spring was let under contract
No. 235.
D-2: The work contemplated originally was water-bound
macadam. The construction was oil macadam, which item alone
increased the cost of this work about $6,000. A much greater
amount of rock excavation was encountered than had been
estimated. A great number of shallow rock cuts required
drilling and blasting, the rock breaking into such large pieces
that it was impracticable to use them in the light fills. The
cost of rock excavation made the unit cost of excavation exceed-
ingly high as compared with the estimated unit costs.
The overrun of 10,000 yards of excavation was due to exca-
vating 6 inches below subgrade in rock and loose cuts to reach
the grade desired and to the necessary waste of large bowlders.
Figured at actual unit cost, the excess yardage increased the
cost of this work about $14,000.
An excess of 2,600 tons of crushed rock and screenings over
the preliminary estimate was necessary to complete the work,
at an additional cost of approximately $6,000. The final cost
also includes the purchase of considerable equipment, viz : Oil-
heating plant, tank wagons, camp outfits, and other incidentals
not included in the preliminary estimate.
D-5: The original estimate for this work contemplated a
water-bound macadam. The construction was a 12-foot concrete
base. In making the preliminary estimate for excavation due
consideration was not given the character of the material to
be excavated. The cost of drilling and shooting alone was
about one-half of the original estimated amount for excavation.
The final cost of this work includes the purchase of consid-
erable equipment, viz : Paving mixer, engine, pump, pipe line,
paving equipment, camp outfits, dump wagon, etc.
D-61 : The engineer's estimate is for placing concrete base
on 2.1 miles (approximately). The commission voted later to
extend this work from Saguinta to the easterly boundary, a
distance of 4.34 miles.
D-108 : Heavier rock excavation was encountered on this sec-
tion than had been contemplated from preliminary examination
of the route, which greatly increased the cost of the work. A
concrete culvert was built at China Gulch.
D-129: The engineer's preliminary estimate was for timber
bridges. Plans were later changed to make bridge floors of
concrete. Also one-half mile of grading was done under this
project.
D-ll : The original estimate was for oiling the pavement only
on these two sections. Additional work done, not included in
the original estimate, consisted in oiling the shoulders. The
shoulders were regraded and the. weeds cut. On steep grades
in cuts the shoulders were excavated to a depth of 4 inches,
beach gravel and a 'binder of loam applied and rolled. On
this the regular shoulder was built Due to storm damage
and failure of the water supply it was necessary to establish
a new oil pit at Oceanside, the cost of same being charged
to this project.
In addition to the above oiling work, the bridge over Loma
Alta Creek was back filled ; at two right-angle turns near Carl
the concrete base was widened, and concrete walls at both
abutments of the San Luis Rey Bridge were built.
D-80: The engineer's preliminary estimate was for placing
about 0.05 mile of concrete base in " exceptions." In addition, a
payment of $5,766.91 was made to the Atchison, Topeka & Santa
Fe Railroad as the State's share of the cost of an overhead
crossing. Also a cattle pass was constructed, but the cost of
same was not included in the preliminary estimate.
D-13 : The engineer's preliminary estimate was for oiling
the concrete base only. In addition to oiling the concrete base,
the shoulders were graded and oiled. Portions of the earth
shoulders were replaced with gravel. Storm- damage increased
the cost of the shoulder work. Defective concrete was replaced
before oiling, but the cost of same was not included in the
preliminary estimate.
D-120 : The engineer's preliminary estimate was for 1.42 miles
of grading only. The work was extended to cover 3.18 miles
and to include the construction of necessary concrete culverts,
placing of corrugated metal pipe, and drainage ditches.
APPENDIX C. MOTOR- VEHICLE LEGISLATION
The present motor vehicle law is known as the Cali-
fornia motor vehicle act and is a result of amendments
in 1919 to previous legislation. It contains 37 sections.
It is administered almost exclusively by the motor-
vehicle department with the aid of local police au-
thorities. The State highway department is charged,
as previously stated, with' the expenditure of one-half
the net registration fees, with the granting of special
permits to traffic, with the authority to decrease legal
load limits, and with the duty of preparing blanks for
county officers to report expenditures from the county
road funds with respect to the motor-vehicle money
returned thereto.
The present law is a development from the experi-
ence of preceding years and supersedes legislation of
1905, 1907, 1913. 1915. and 1917. It is understood that
plans are now under way through the California Auto-
mobile Association in particular to advise amendments
to the present law. The evolution of the main provi-
sions of the law is indicated below under the respective
headings. There are minute provisions in the law in
addition to those summarized below covering the rules
of the road and many details found necessary as the
automobile traffic has developed, as, for example, use
of a mirror when a load obstructs the driver's view
tn the rear, the passing of slow vehicles proceeding in
the same direction, etc. Many of these provisions are
obviously the result of experience and are necessary.
The provisions with respect to registration require
full data with respect to kind of vehicle and particu-
larly its horsepower, from which the fee is computed;
hut it would be advantageous to provide that a classi-
fication of vehicles registered should result from the
total annual registration, so that the numbers of
vehicles of all the various capacities and weights could
be immediately determined by the State highway de-
partment as an aid to future design. It is noteworthy
that motor trucks with pneumatic tires are not spe-
cifically segregated from other motor vehicles. Accord-
ingly the number of vehicles used in the State for com-
mercial hauling is subject to a corresponding error.
Tracks with pneumatic tires are also exempt from
restriction with respect to total load per inch width
of tire. It is noteworthy that the laws of 1917 and 1919
limit maximum width of loads of loose material to 10
feet.
REGISTRATION AND REVENUE.
The present law requires annual registration on
blanks furnished by the motor vehicle department call-
ing for a description of the vehicle. The fee for motor
cycles and trailers is $2 and for automobiles 40 cents
per horsepower or major fraction, as determined by the
formula of the Association of Licensed Automobile
Manufacturers. There is a surcharge for every motor
vehicle equipped with other than pneumatic tires and
used for commercial purposes, as follows: Unladen
and under 2 tons weight, $5; unladen and between 2
and 3 tons, $10; unladen and between 3 and 5 tons, $15 ;
unladen and over 5 tons, $20.
The registration fee for electric-motor vehicles is $5
straight, and the above surcharges apply to electric
vehicles. Chauffeur's licenses are $2. 'Of all fees
accrued to the motor-vehicle fund, one-half the net
revenue is paid to the respective county road funds
where originated and the balance is for the use of the
State Highway Commission for the repair and im-
provement of State highways.
The original fee for registration in the act of March
22, 1905, was $2 and annual registration was not re-
quired. Any net revenue accrued to the general fund
of the 'State. The amendment of 1907 made no change,
but the act of May 13, 1913, provided annual registra-
tion, with a graduated fee from $2 for motor cycles to
$30 for automobiles exceeding 60 horsepower, and cred-
ited to the motor vehicle fund. The act of May 11,
1913, revised the schedule of fees to the present horse-
power formula.
SPEEDS AND. WEIGHTS.
The present law permits a maximum speed of 35
miles per hour for automobiles outside of incorporated
cities and closely built-up sections when the driver has
uninterrupted view and nothing ahead for 400 feet,
etc., otherwise, 30 miles per hour. In closely built-up
sections the legal rate is 20 miles per hour, and where
approaching bridges, crossings, bad curves, and inter-
sections it is 10 miles per hour.
There has not been much change in the speed regula-
tions since 1905, except to raise the permissible maxi-
mum from 20 miles gradually to 35 miles, and the
minimum from 4 to 10 miles, and to redefine the con-
ditions under which the respective speeds are effective.
There is no mention of weight of vehicles until 1917.
The law of that year provides that except with special
permit in writing from the department of engineering
no four-wheel vehicles shall exceed 15 tons gross, and
no six-wheel, three-axle vehicle 20 tons, unless such
vehicles operate on fixed rails or tracks. In this law
also appears for the first time the limitation of 800
pounds per inch width of tire of material other than
metal, and of metal 600 pounds, or when the material
is part metal except with written permit or in the case
of movable trucks (caterpillar engines) as above de-
scribed. No more than two trailers are allowed.
In this law also, in section 22 (6), appears a regula-
tion regarding speed of trucks:
No motor or other vehicle carrying a weight in excess of
9,000 pounds, Including the vehicle, shall be operated, driven,
drawn, or otherwise moved on any public highway or bridge
at a rate of speed greater than 25 miles an hour; no motor
or other vehicle carrying a weight in excess of 12.000 pounds,
including the vehicle, shall be operated, driven, drawn, or
otherwise moved on any public highway or bridge at a rate
of speed greater than 15 miles an hour : no motor or other
vehicle carrying a weight in excess of 24.000 pounds, includ-
ing the vehicle, shall be operated, driven, drawn, or otherwise
moved on any public highway or bridge at a rate of speed
greater than 6 miles an hour : Provided further. That any such
motor vehicle or trailer, with tires made wholly or partly of
metal, may be operated, driven, drawn, or otherwise moved, 'sub-
ject to the other provisions of this act, up to 10 miles an hour, if
(139)
140
it lie equipped with springs and if the rear wheels be not less
than 46 inches in diameter, with bearing surface of not less than
18 inches ; and provided further, however, anything to the con-
trary herein notwithstanding, that no motor or other vehicle
constructed or otherwise adapted for carrying loads weighing
4 tons or more, exclusive of such vehicle, shall be operated,
driven, drawn, or otherwise moved upon the public highway,
whether laden or unladen, at a rate of speed exceeding 15 miles
an hour; and provided further, that nothing contained in this
subdivision shall apply to motor vehicles equipped with pneu-
matic tires.
The law of 1919 adds a new part to the correspond-
ing subsection as follows :
The supervisors of any county shall have power to require a
lighter load on county roads in their respective counties. Any
persons violating the provisions of this subsection shall be
guilty of a misdemeanor and be liable to a penalty of $20 for
each full ton in excess of the limitation herein imposed, and
any peace officer making the arrest of the owner or driver of
any vehicle violating the provisions of this subsection shall
keep said vehicle with its load in his custody until such time as
saiil penalty shall have been paid : Provided, That the owner or
driver of any such vehicle may give to said peace officer a bond
in favor of the State of California in case of State highways,
and in the name of the county in which the offense has occurred
in the case of county roads, conditioned to secure the payment
of said penalty within the time prescribed in said bond. Fur-
thermore, any peace officer may require the driver to drive any
such vehicle to the nearest public scale to be designated by such
peace officer for the purpose of establishing the weight and the
load of any such vehicle.
FLANGES AND CLEATS.
The present law prohibits protuberances of metal
or wood in excess of one-fourth inch beyond the trac-
tion surface of the tire, except on traction engines oper-
ating on unimproved roads.
The use of chains of reasonable proportions is per-
mitted when necessary. Traction engines or tractors
with movable tracks may operate even with transverse
corrugations under special written permits from the
department of engineering (State Highway Commis-
sion).
No mention of cleats or chains occurs in the laws
until 1913, when the present provisions were inserted,
except that they were not made applicable until 1917
to protuberances made of wood.
FOREIGN CARS.
The present law exempts nonresidents in the State of
California, when sojourning in the State, from State
registration for three months, provided, that the owner
applies on a special registration form, without charge,
within 24 hours for a distinctive number plate. This
was the law in 1917. Previous laws provided that State
registration should not be required if the owner dis-
played his own State number in compliance with the
State law. The law of 1913 required the display to be
in accordance with the California law and that the
plate should be clean and illuminated at night. The
law of 1915 provided that foreign corporations doing
business in California shall not be exempt from State
registration.
LOCAL AUTHORITIES.
The law of 1919 permits local authorities certain
jurisdiction with respect to street intersections, cross-
ings, vehicles for hire, processions, etc. ; with respect
to local cemeteries and with respect to vehicles exceed-
ing 1-ton capacity used exclusively to carry merchan-
dise, which vehicles may be required to use certain one-
way streets. The local authorities have otherwise no
power to enact ordinances with respect to speed limi-
tations in conflict with the State law. The preceding
laws granted local authorities certain jurisdiction with
respect to setting aside roads for speed tests and races.
PENALTIES.
The law of 1919 provides general penalties for vio-
lations of the provisions of the motor vehicle law with
a maximum fine not exceeding $500 or imprisonment
not exceeding six months, or both, or for the revocation
of the operator's license for a year in addition. The
penalties are greater than those of preceding laws. The
law of 1905 provided the maximum fine of $100 or im-
prisonment not exceeding 30 days, or both. The law
of 1913 provided for suspension or revocation of the
operators license under certain conditions. The law
of 1917 provided that the State highway department
should have power to hold hearings and to revoke or
suspend licenses of operators for certain violations
(through the motor vehicle department) and in certain
cases on its own initiative to revoke a license in case
of reckless driving or where the operator was con-
cerned in an accident. This provision with respect to
the State highway department was not retained in the
1919 law.
APPENDIX D
SELECTED TYPICAL CROSS SECTIONS
SHOWING
LINES OF EQUAL MOISTURE CONTENT
IN SUBGRADES
ONE UNIT EQUALS 5 FKET
LEGEND
The cross sections are plotted from levels. The straight
lines show borings and are crossed at sample points.
The figures on lines of equal moisture show moisture
content in per cent.
(141)
142
PLATE LJX.
143
PLATE LX.
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147
PLATE LXIV.
148
PLATE LXV.
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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.
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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
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SONOMA LINE
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ADDITIONAL COPIES
()FTHIS PUBLICATION MAY BE PROCURED FROM
THE SUPERINTENDENT OF DOCUMENTS
GOVERNMENT PRINTING OFFICE
WASHINGTON, D. C.
AT
30 CENTS PER COPY
V
reed circ. MAR 1 4 1983
UNIVERSITY OF CALIFORNIA LIBRARY