As an example of this work, San Joaquin County, Cal., may be mentioned. At the request of the proper authorities an engineer was detailed to make a comprehensive study of all conditions affecting the highways of that county. About three months were required for this work, during which time his salary was paid by the Government and his local expenses by the community. The final report, besides containing a full and detailed description of the existing conditions, embodied also detailed recommendations for a system of improvements in road administration, construction, and maintenance within the reach of the people and which they have since adopted. A bond issue of about $1,800,000 was voted to provide the necessary revenues, and a system of roads is now under construction which will place San Joaquin County among the foremost counties of the State in the matter of transportation facilities.[1]
The “model systems” program was an instant success. By assigning as many engineers as he could spare from other work, Page in 10 years was able to assist 144 counties in 28 States to reorganize and modernize their road operations. Most of these counties sold bonds to finance a start on the programs recommended by the OPR advisers.
County patrolmen in New York were responsible for 2 to 8 miles of road and were paid $3 per day in 1914.
Bennington County, Vermont, carried the model system idea one step further. In 1912, 69 of the 74 road officials of the county, with the approval of the State Highway Commissioner, petitioned the OPR to detail an engineer for 1 year to supervise all road work in the county and its townships. Page assigned an engineer in 1913, who was in effect the County Engineer, in direct charge of all road work carried on in the county. This arrangement, one of the most extraordinary in U.S. highway history, lasted until December 1913. “The officials of Bennington County were so pleased with the results of this object-lesson supervision that they have since employed an engineer to take charge of the road work of the county.”[2]
The Shortage of Highway Engineers
The Bennington County experience pointed up one of the most serious problems of this period—the general lack of engineering expertise at the county level. Some critics asserted that, because of this lack, from one-quarter to one-third of all the money spent on the country roads was wasted. Most of this waste came about because the roads were originally poorly located or poorly drained, and these errors were perpetuated when the roads were later upgraded. Repeatedly, in its bulletins and expert advice, the OPR urged that the old locations be revised to reduce grades and unnecessary curvature, and to improve drainage before expensive bond-financed surfacing was undertaken. Such improvement required engineering study and advice.
Many, perhaps most, counties thought they were too poor to afford an engineer. Others didn’t really want one for fear he might lead them into expensive road schemes that would raise taxes. Still others clung to the ancient tradition of amateur supervision of in-
74
