for the program—both essential to the continuous program that has endured to the present.
During the time period in which congressional action on the basic highway legislation was evolving, first Logan Waller Page (1905–1918) and then Thomas H. MacDonald (1919–1953) were appointed to be Director of Public Roads and ably developed the Bureau of Public Roads (as it is known to most Americans). Under these two men, the Bureau procedures implemented the basic concept of equal Federal-State partnership roles in carrying out the congressional mandate for Federal assistance in constructing a highway system in the United States. The State had the responsibility to locate and design the proposed highways, to secure the necessary rights-of-way, to advertise and award the proposed construction contracts, and to supervise the construction activity under the contract which followed. The role of the Bureau of Public Roads was that of consultation, advice, review and approval at each of the successive steps as the project developed from its initial proposal to its final contract completion. The State owned and agreed to maintain the highways on which Federal-aid moneys were spent.
While the size of the program has increased dramatically—from an authorization level of $75 million in 1922 to a program level in excess of $5 billion in 1974—the same basic procedures initiated in the beginning years of the program are still followed. This stability of program operation has resulted in widespread confidence in and acceptance of the highway program at local, State and Federal levels, both in and out of the highway program.
The success of the Federal-aid highway program is unquestioned, and the reasons are many. The Congress consistently provided advance authorizations and timely appropriations so that the States, from the beginning, could move with confidence knowing in advance the level of authorization at which they could operate and knowing that appropriated funds would be adequate to provide cash reimbursement for their expenditures. The Congress increased the level of financing as public needs required, and expansion of the scope of program activities has been authorized as special needs for highway transportation became evident. The sage action of Congress in highway legislation has been a most important factor in the success of the Federal-aid highway program. A second and equally important factor has been the development of strong, competent individual State highway organizations and their interaction with members of the construction industry in implementing the program made possible by the congressional authorizations. The States have developed organizations with the technical and administrative ability to meet the changing program demands, and the construction industry nationwide has kept pace through advancing construction technology and integrity of purpose to meet the growing needs in highway construction procedures.
Recognizing the contributions of Congress, the States, and the construction industry toward the development of highway transportation in the United States, the Bureau of Public Roads, for its part, has implemented and administered the legislation since 1916 and has fostered the successful Federal-State partnership.
In the formative years, the Bureau held a tight rein in guiding development of the program. All approval authority was administered from the central office in Washington, with assistance provided through 10 field district offices to which routine operating responsibility and authority was delegated, and a Regional Office which served as an extension of the Washington Office covering operations of the program in 11 western States in which most of the direct Federal construction work was performed. Strong central office control prevailed over all system approvals, program actions, and project plans and specifications. Construction contract administration was a more local responsibility with review at the field level.
This initial strong central control accomplished a major objective of uniformity in the administration of emerging regulations and procedures among the States, thus establishing Federal-aid programs in each State on a common basis.
Mr. MacDonald developed within the Bureau a spirit of organizational pride in professional excellence of performance combined with a dedication to public service and unquestioned integrity. The ability of the Bureau to attract competent and dedicated personnel through the years stemmed in a large part from the early organizational image. The well ordered, fully professional program was attractive to young engineers who sensed the opportunity to participate in a rewarding program and who normally remained in that service throughout their professional careers.
In the 1940’s a major organizational change established BPR offices in each State, with geographical regional offices designated to serve as intermediary between these State level organizational units and the central office in Washington. The reorganization resulted in closer operating coordination at the State level and the development of staff capability at the regional level, both of which were to be of immense value in the decentralization of program control and delegation of authority which were to follow a few years later.
The increase in the size of the Federal-aid program funding in the postwar years, the expanding Federal interest in urban transportation problems, and the anticipated legislation for separate funding for construction of the Interstate System resulted in major delegation of operating authority in 1953, and in the following 2 years, authority for all program and project approval action was delegated. The submission of project plans to Washington was discontinued as a general requirement. The Washington Office role became that of consultant and arbitrator on project matters and one of leadership in establishing program policy consistent with the total transportation program objectives of the Administration and of Congress. The result was that the Bureau effectively administered a vastly increased program with very little increase in the number of personnel.
Changes in the program have been many, and their impact has been dramatic. The program started as a rural post road improvement program. With the growth of the Nation and of its urban population, the
543
