Overview:
The 1917-1918 biennial report of the Oregon State Highway Commission details the significant progress made in developing Oregon’s road system, despite the challenges of World War I. The Commission focused on completing two crucial trunk line highways, the Columbia River Highway and the Pacific Highway, prioritizing projects under construction and implementing temporary surfacing to maintain essential routes.
The report highlights a significant increase in the number of automobiles and the importance of expanding the highway system to accommodate this growth. It also delves into the Commission’s efforts to secure Federal aid through the Post Road and Forest Road Acts, and the challenges faced in complying with the strict regulations. The report emphasizes the importance of the Commission’s role in providing engineering services to counties, highlighting the shortage of skilled labor and the need for additional funding.
Key Findings:
- Construction was significantly impacted by World War I due to material shortages, labor scarcity, and rising costs.
- The Commission prioritized completing the Columbia River Highway and the Pacific Highway, focusing on essential projects and temporary surfacing.
- The Commission faced challenges in securing Federal aid for many projects due to strict regulations and the interpretation of the Federal Aid Road Law.
- The Commission played a significant role in providing engineering services to counties, contributing to their road construction efforts.
- Despite the wartime constraints, the Commission achieved considerable progress in developing Oregon’s road system.
Learning:
- Highway Construction during Wartime: The report reveals how wartime significantly affected highway construction, impacting projects, funding, and material availability.
- This illustrates the challenges of balancing infrastructure development with national priorities during a conflict.
- Federal Aid and Regulations: The report highlights the complexities of securing Federal aid, outlining the specific regulations and interpretations that shaped the Commission’s actions.
- This demonstrates how federal policies can influence state and local infrastructure projects.
- Importance of State-County Collaboration: The report emphasizes the close working relationship between the State Highway Commission and county governments.
- This underlines the importance of collaboration between different levels of government to achieve infrastructure goals.
Historical Context:
The report was written during World War I, a time of great national and international upheaval. The United States entered the war in 1917, leading to unprecedented demands on resources and labor. These factors significantly impacted highway construction in Oregon, leading to delays and adjustments in the Commission’s plans.
Facts:
- The Pacific Highway: It was considered the most important through highway in Oregon, passing through nine of the state’s largest cities.
- The Columbia River Highway: It was the only year-round link between Eastern and Western Oregon, serving as a vital commercial route and a world-famous scenic destination.
- The John Day River Highway: It was an essential route for the transportation of agricultural products from Eastern Oregon.
- The Old Oregon Trail: It was a historic route connecting Oregon to the east, still serving as an important highway.
- Federal Aid Road Act: It allocated $85 million for road improvements in collaboration with states, with $75 million designated for Post Roads and $10 million for Forest Roads.
- Post Road Projects: These were roads where rural or star post routes were operated, requiring approval from the Secretary of Agriculture.
- Forest Road Projects: These were roads located within or partly within National Forests, with planning and supervision overseen by the Federal Office of Public Roads and Rural Engineering.
- Oregon State Highway System: It comprised 4,317 miles of roads divided into 36 designated highways.
- Oregon’s Automobile Growth: By 1918, the state had 63,318 registered motor vehicles, reflecting the rapid adoption of automobiles.
- The Salem Bridge: It was a 2,220-foot bridge spanning the Willamette River at Salem, serving as a major intercounty connection.
- World War I Impact on Construction: The war significantly impacted road building activities in Oregon, leading to labor shortages, rising costs, and delays in projects.
- State-Owned Equipment: The Commission acquired significant construction equipment to handle projects, saving costs and ensuring availability during periods of scarcity.
- Cost Plus Contracts: The Commission used cost plus contracts for certain projects, sometimes taking over the work themselves when satisfactory bids were not received.
- Force Account Work: The Commission performed some construction directly with its own forces, finding it cost-effective in certain cases.
Statistics:
- Total funds available: $4,271,515.16
- Total funds expended: $3,597,982.47
- Miles of pavement completed: 50 miles
- Miles of macadamized roads: 111.8 miles
- Miles of graded roadbeds: 134.5 miles
- Number of bridges built: 40
- Federal aid available to Oregon for Post Roads (July 1, 1916 – July 1, 1921): $1,180,310
- Federal aid available to Oregon for Forest Roads (July 1, 1916 – July 1, 1921): $638,970
- Total estimated cost of Post Road projects: $1,409,993.24
- Total estimated cost of Forest Road projects: $1,246,204.65
- Total County funds expended under State supervision: $709,724.79
- Total motor vehicles registered in Oregon (1918): 63,318
- Total County bonds issued for road projects: $4,017,000
- Cost of the Salem Bridge: $250,000
- The largest single-county expenditure: $488,302.15 (Columbia County)
- Average cost of cinder macadam (Bend to LaPine): $1,600 per mile
- Average cost of broken stone macadam (Svensen to Westport): $3.86 per cubic yard
- Average cost of gravel surfacing (Hood River to Cascade Locks): $2.88 per cubic yard
- Average cost of concrete pavement (Ashland Hill): $1.84 per square yard
- Number of stars on the Department’s Service Flag: 60
Terms:
- Bitulithic Pavement: A type of bituminous pavement characterized by its durability and use in heavy traffic areas.
- Waterbound Macadam: A type of road surfacing made from crushed stone bound together by water and compacted with rollers.
- Forest Road: A road built primarily for use within or partly within National Forests.
- Post Road: A road designated for mail delivery service, either rural or star routes.
- Force Account: Construction work performed directly by a governmental entity, using its own labor and equipment.
- Cost Plus Contract: A contract where the contractor is reimbursed for their costs plus a predetermined percentage.
- Elastite: A type of preformed expansion joint used in concrete pavement.
- Overhaul: The cost of transporting excavated material to a fill location beyond a specified distance.
- Cinder Macadam: A type of road surfacing made from volcanic cinder, a lightweight and durable material.
Examples:
- Canyonville-Galesville Forest Road Project: This project involved grading a challenging 9.7-mile section through Canyon Creek Pass on the Pacific Highway, eliminating one of the worst stretches between Portland and the California line.
- The Salem Bridge: This 2,220-foot bridge over the Willamette River at Salem was a significant intercounty project, involving a complex design and construction process.
- Clackamas County’s New Era Hill Grading: This project involved heavy rock excavation and the use of a state-owned rock crusher, demonstrating the Commission’s ability to handle large-scale construction.
- The Prescott Hill Section (Columbia County): This section of the Columbia River Highway was constructed with numerous retaining walls, half viaducts, and guard fences to address the challenging terrain and prevent landslides.
- Wild Horse Paving (Umatilla County): This project involved widening the roadbed, re-ditching, and placing crushed rock to create a base for the bitulithic pavement.
- The Hood River Bridge: This impressive concrete arch bridge was the largest bridge built by the Commission in Oregon at the time.
- The Hood River-Mosier Surveys: These thorough surveys involved evaluating multiple routes and considering various factors like accessibility, construction challenges, and scenic views.
- The Butte Creek Summit Section (Wheeler County): This section involved extensive grading, rock excavation, and the installation of culverts, illustrating the challenges of building roads in mountainous terrain.
- The Grande Ronde Section (Yamhill County): This project involved a significant road improvement, demonstrating the importance of connecting the Willamette Valley with the coast.
- Sheridan Paving (Yamhill County): This project involved using state-owned equipment, a stock pile for materials, and innovative construction techniques, highlighting the Commission’s commitment to efficiency and innovation.
Conclusion:
The Third Biennial Report of the Oregon State Highway Commission provides a comprehensive account of the state’s road building efforts between 1916 and 1918, a period marked by significant challenges due to World War I. Despite these difficulties, the Commission made remarkable progress in expanding and improving Oregon’s highway system, focusing on crucial trunk routes and collaborating with county governments. The report reveals the evolving role of the Commission, its commitment to securing Federal aid, its innovative approaches to construction, and its dedication to providing vital infrastructure for the state’s growing transportation needs.