Historic Highways of America/Volume 15/Chapter 2
CHAPTER II
GOVERNMENT COÖPERATION IN OBJECT-LESSON ROAD WORK[1]
IN a government having a composite nature like that of the United States it is not always easy to determine just what share the General Government, the state government, and the local government should respectively take in carrying out highway work, though it is generally admitted that there should be coöperation among them all.
In the early history of the Republic the National Government itself laid out and partially completed a great national system of highways connecting the East with the West, and the capital of the nation with its then most distant possessions. Fourteen million dollars in all was appropriated by acts of Congress to be devoted to this purpose, an amount almost equal to that paid for the Louisiana Purchase. In other words, it cost the government substantially as much to make that territory accessible as to purchase it; and what is true of that territory in its larger sense is also true in a small way of nearly every tract of land that is opened up and used for the purposes of civilization; that is to say, it will cost as much to build up, improve, and maintain the roads of any given section of the country as the land in its primitive condition is worth; and the same rule will apply in most cases after the land value has advanced considerably beyond that of its primitive condition. It is a general rule that the suitable improvement of a highway within reasonable limitations will double the value of the land adjacent to it. Seven million dollars, half of the total sum appropriated by acts of Congress for the national road system, was devoted to building the Cumberland Road from Cumberland, Maryland, to St. Louis, Missouri, the most central point in the great Louisiana Purchase, and seven hundred miles west of Cumberland. The total cost of this great road was wholly paid out of the United States Treasury, and though never fully completed on the western end, it is the longest straight road ever built by any government. It passes through the capitals of Ohio, Indiana, and Illinois, and the cost per mile was, approximately, ten thousand dollars. It furnishes the only important instance the country has ever had of the General Government providing a highway at its own expense. The plan, however, was never carried to completion, and since its abandonment two generations ago, the people of the different states have provided their own highways. For the most part they have delegated their powers either to individuals, companies, or corporations to build toll roads, or to the minor political subdivisions and municipalities to build free roads.
With the passing of the toll-road system, the withdrawal of the General Government from the field of actual road construction, and the various state governments doing little or nothing, the only remaining active agent occupying the entire great field is the local government in each community; and while these various local governments have done and are still doing the best they can under the circumstances, there is great need that their efforts should be supplemented, their revenues enlarged, and their skill in the art of road construction increased.
The skill of the local supervisor was sufficient in primitive times, so long as his principal duties consisted in clearing the way of trees, logs, stumps, and other obstructions, and shaping the earth of which the roadbed was composed into a little better form than nature had left it; and the resources at his command were sufficient so long as he was authorized to call on every able-bodied male citizen between twenty-one and forty-five years of age to do ten days' labor annually on the road, especially when the only labor expected was that of dealing with the material found on the spot. But with the changed conditions brought about by the more advanced state of civilization, after the rights of way have been cleared of their obstructions and the earth roads graded into the form of turnpikes, it became necessary to harden their surfaces with material which often must be brought from distant places. In order to accomplish this, expert skill is required in the selection of materials, money instead of labor is required to pay for the cost of transportation, and machinery must be substituted for the hand processes and primitive methods heretofore employed in order to crush the rock and distribute it in the most economical manner on the roadbed. Skill and machinery are also required to roll and consolidate the material so as to form a smooth, hard surface and a homogeneous mass impervious to water.
The local road officer now not only finds himself deficient in skill and the proper kind of resources, but he discovers in many cases that the number of persons subject to his call for road work has greatly diminished. The great cities of the North have absorbed half of the population in all the states north of the Ohio and east of the Mississippi, and those living in these great cities are not subject to the former duties of working the roads, nor do they pay any compensation in money in lieu thereof. So the statute labor has not only become unsuitable for the service to be performed, but it is, as stated, greatly diminished. In the former generations substantially all the people contributed to the construction of the highways under the statute labor system, but at the present time not more than half the population is subject to this service, and this, too, at a time when the need for highway improvement is greatest.
While the former ways and means are inadequate or inapplicable to present needs and conditions, there are other means more suitable for the service, and existing in ample proportion for every need. The tollgate-keeper cannot be called upon to restore the ancient system of turnpikes and plank roads to be maintained by a tax upon vehicles passing over them, but there can be provided a general fund in each county sufficient to build up free roads better than the toll roads and with a smaller burden of cost upon the people. The statute labor in the rural districts cannot be depended upon, because it is unsuitable to the service now required and spasmodic in its application, when it should be perennial; but this statute labor can be commuted to a money tax, with no hardships upon the citizens and with great benefit to the highway system.
Former inhabitants of the abandoned farms or the deserted villages cannot be followed to the great cities and the road tax which they formerly paid be collected from them again to improve the country roads; but it can be provided that all the property owners in every city, as well as in every county, shall pay a money tax into a general fund, which shall be devoted exclusively to the improvement of highways in the rural districts. The state itself can maintain a general fund out of which a portion of the cost of every principal highway in the state shall be paid, and by so doing all the people of the state will contribute to improving the highways, as they once did in the early history of the nation, when substantially all the wealth and population was distributed almost equally throughout the settled portions of the country.
Having a general fund of money instead of statute labor, it would be possible to introduce more scientific and more economical methods of construction with coöperation. This coöperation, formerly applied with good results to the primitive conditions, but which has been partially lost by the diminution in the number and skill of the co-workers, would be restored again in a great measure by drawing the money with which to improve the roads out of a general fund to which all had contributed.
In many countries the army has been used to advantage in time of peace in building up and maintaining the highways. There is no army in this country for such a purpose, but there is an army of prisoners in every state, whose labor is so directed, and has been so directed for generations past, that it adds little or nothing to the common wealth. The labor of these prisoners, properly applied and directed, would be of great benefit and improvement to the highways, and would add greatly to the national wealth, while at the same time it would lighten the pressure of competition with free labor by withdrawing the prison labor from the manufacture of commercial articles and applying it to work not now performed, that is, the building of highways or preparing material to be used therefor.
The General Government, having withdrawn from the field of road construction in 1832, has since done little in that line until very recently. Eight years ago Congress appropriated a small sum of money for the purpose of instituting a sort of inquiry into the prevailing condition of things pertaining to road matters. This appropriation has been continued from year to year and increased during the last two years with a view of coöperating to a limited extent with other efforts in road construction.
The General Government can perform certain duties pertaining to scientific road improvement better than any other agency. Scientific facts ascertained at one time by the General Government will serve for the enlightenment of the people of all the states, and with no more cost than would be required for each single state to make the investigation and ascertain the facts for itself.
With a view to securing scientific facts in reference to the value of road-building materials, the Secretary of Agriculture has established at Washington, D. C., a mechanical and chemical laboratory for testing such material from all parts of the country. Professor L. W. Page, late of Harvard University, is in charge of this laboratory, and has tested many samples of rock without charge to those having the test made. There is, however, no test equal to the actual application of the material to the road itself.
With a view to making more extensive tests than could be done by laboratory work alone, the Director of the Office of Public Road Inquiries has, during the past two years, coöperated with the local authorities in many different states in building short sections of object-lesson roads. In this work it is intended not only to contribute something by way of coöperation on the part of the General Government, but also to secure coöperation on the part of as many different interests connected with the road question as possible. The local community having the road built is most largely interested, and is expected to furnish the common labor and domestic material. The railroad companies generally coöperate, because they are interested in having better roads to and from their railroad stations. They therefore contribute by transporting free or at very low rates the machinery and such foreign material as is needed in the construction of the road. The manufacturers of earth-handling and road-building machinery coöperate by furnishing all needed machinery for the most economical construction of the road, and in many cases prison labor is used in preparing material which finally goes into the completed roadbed. The contribution which the General Government makes in this scheme of coöperation is both actually and relatively small, but it is by means of this limited coöperation that it has been possible to produce a large number of object-lesson roads in different states. These have proved very beneficial, not only in showing the scientific side of the question, but the economical side as well.
In the year 1900 object-lesson roads were built under the direction of the Office of Public Road Inquiries near Port Huron, Saginaw, and Traverse City, Michigan; Springfield, Illinois; and Topeka, Kansas. Since that time the object-lesson roads so built have been extended and duplicated by the local authorities without further aid from the government. The people are so well pleased with the results of these experiments that they are making preparations for additional extensions, aggregating many miles.
During the year 1901 sample object-lesson roads were built on a larger scale in coöperation with the Illinois Central, Lake Shore, and Southern railroad companies, and the National Association for Good Roads in the states of Louisiana, Mississippi, Tennessee, Kentucky, Illinois, New York, North Carolina, South Carolina, Alabama, and Georgia. In all of these cases the coöperation has been very hearty on the part of the state, the county, and the municipality in which the work has been done, and the results have been very satisfactory and beneficial.
Hon. A. H. Longino, governor of Mississippi, in his speech made at the International Good Roads Congress at Buffalo, September 17, 1901, said:
"My friends, the importance of good roads seems to me to be so apparent, so self-evident, that the discussion thereof is but a discussion of truisms. Much as we appreciate railroads, rivers, and canals as means for transportation of the commerce of the country, they are, in my judgment, of less importance to mankind, to the masses of the people, and to all classes of people, than are good country roads.
"I live in a section of the country where that important subject has found at the hands of the people apparently less appreciation and less effort toward improvement than in many others. In behalf of the Good Roads Association, headed by Colonel Moore and Mr. Richardson, which recently met in the state of Mississippi, I want to say that more interest has been aroused by their efforts concerning this important subject among the people there than perhaps ever existed before in the history of the state. By their work, demonstrating what could be done by the methods which they employed, and by their agitation of the question, the people have become aroused as they never were before; and since their departure from the state a large number of counties which were not already working under the contract system have provided for public highways, worked by contract, requiring the contractor to give a good and sufficient bond, a bond broad enough in its provisions and large enough in amount to compel faithful service; and Mississippi is today starting out on a higher plane than ever before."
- ↑ By Hon. Martin Dodge, Director of the Office of Public Road Inquiries.