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Establishing Nebraska's Highway System, 1915-1934

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Establishing Nebraska's Highway System, 1915-1934 Nebraska History posts materials online for your personal use. Please remember that the contents of Nebraska History are copyrighted by the Nebraska State Historical Society (except for materials credited to other institutions). The NSHS retains its copyrights even to materials it posts on the web. For permission to re-use materials or for photo ordering information, please see: http://www.nebraskahistory.org/magazine/permission.htm Nebraska State Historical Society members receive four issues of Nebraska History and four issues of Nebraska History News annually. For membership information, see: http://nebraskahistory.org/admin/members/index.htm Article Title: Establishing Nebraska's Highway System, 1915-1934 Full Citation: Mary Cochran Grimes, "Establishing Nebraska's Highway System, 1915-1934," Nebraska History 73 (1992): 160-172. URL of article: http://www.nebraskahistory.org/publish/publicat/history/full-text/NH1992NE_Hwy_Sys.pdf Date: 4/15/2013 Article Summary: In 1916, Congress passed the Federal Aid Road Act to provide matching funds to help the states develop standardized state highway systems. After World War I, Nebraska automobile registration exceeded 200,000, and Nebraska had to address how to finance its sprawling highway system without going into debt. Cataloging Information: Names: George E Johnson, Robert L (Roy) Cochran, John H Morehead, Keith Neville, David F Meeker, Burt A George, Charles H Roper, Mont C Noble, A A Jones, Adam McMullen, Frank C Zehrung, Samuel McKelvie, Charles E Bryan, Jim Auten, George G Koster, William E Hardy, Will Owen Jones, Tom Dennison, Clifford Shoemaker, Arthur J Weaver, Arthur Bowring, W H Mengel, Leslie Harrop Keywords: Federal Aid Road Act; State Board of Irrigation; State Board of Irrigation, Highways, and Drainage; US Bureau of Public Roads; HR 722; Lincoln Highway Association; Good Roads Movement; 1919 Civil Administrative Code; Department of Public Works; Nebraska State Journal; HR 114; Nebraska Highways; Financial Post (Toronto, Canada); Farmers Union Educational and Co-operative Association; Bowring Bill; Civil Works Administration; Federal Emergency Relief Administration; Hayden-Cartwright Act Photographs / Images: June 5, 1926, the installation of the first highway marker: David F Meeker, Burt A George, Charles H Roper, Mont Noble, A A Jones, Robert L Cochran, Adam McMullen, Frank C Zehrung; the laying of the State Capitol cornerstone November 11, 1922, with George Johnson and Samuel R McKelvie and other dignitaries; Robert L Cochran as state engineer, 1924; workmen setting forms on the Lincoln Highway in Douglas County; concrete mixer on Greenwood to Ashland Project; highway flooding north of Lexington, 1929; Highway in Seward County, 1921; Governor Charles Bryan and Leslie Harrop, UP reporter; Arthur Bowring, 1931; Omaha World Herald cartoon, April 2, 1929; road grading, 1929 ESTABLISHING NEBRASKA'S HIGHWAY SYSTEM, 1915-1934 By Mary Cochran Grimes Early Nebraska roads were often largest single item in state budgets dur­ in 1915, when the legislature approp­ little more than trails, following section ing the 1920s and 1930s. riated $35,000 to pay half the cost of pav­ lines or striking out across country. Nebraska's first road law in 1856 ing roads adjoining the university's Their construction and maintenance made county commissioners or agricultural school in Lincoln. Gover­ was a local responsibility. Only after township supervisors responsible for nor John H. Morehead approved the World War I, when Nebraska designating and maintaining roads. use of six inmates from the state automobile registration exceeded Road districts were to be established penitentiary as laborers on the 200,000, did the state and federal and overseers appointed. An annual project.4 governments begin responding to the poll tax of two days labor from each Modern state highway administra­ need for a coordinated state-wide able-bodied male between the ages of tion dates from the passage of the highway system. twenty-one and sixty was sufficient to Federal Aid Road Act of 1916. The act In 1916 Congress passed the Federal build and maintain the primitive roads required states to h'ave highway Aid Road Act to provide matching of the day and taxation was rarely departments and meet minimum stan­ funds to help the states develop stand­ necessary. By the early twentieth cen­ dards for highway construction. In ardized state highway systems. Most tury poll taxes, local property taxes, order to qualify for federal funds each states responded by raising taxes or inheritance taxes, and motor vehicle state highway department was passing bond issues to fund their share registration fees all were potential required to submit route selections and of the highway program. In Nebraska, sources of revenue for road construc­ construction plans for approval by the relying on property taxes to pay for tion and maintenance.2 Because the U.S. Bureau of Public Roads.' highway construction became increas­ quality of roads remained primarily a The 1917 Nebraska legislature ingly unpopular as the state experi­ local concern, expenditures were passed H.R. 722, which accepted the enced agricultural depression in the governed by a desire to keep taxes as requirements for the Federal Aid Road 1920s. Moreover, the state constitution low as possible. Act and levied a state property tax to prohibited bonded indebtedness In 1911 the legislature changed the raise the required matching funds. The exceeding $100,000. How the state name of the State Board of Irrigation, bill authorized the state highway would finance its sprawling highway created in 1895, to the State Board of bureau to cooperate with the counties system without going into debt, who Irrigation, Highways, and Drainage. and the federal government in would control the administration of The board, consisting of the governor, designating a state highway system.~ highway funds, and how the funds attorney general, and land com­ The Lincoln Highway Association and would be allocated became major missioner, chose a secretary who was the Good Roads Movement, composed issues in Nebraska politics and govern­ required to be a civil engineer and who ofautomobile owners and civic leaders, ment between the two world wars. would have the title of state engineer. were among the groups that lobbied the Under the direction of state engineers The 1911 legislature also authorized an legislature on behalf of better roads. George Johnson (1915-23), and Robert annual state property tax levy of one­ In developing its highway system L. (Roy) Cochran (1923-34), I expend­ fifth mill to be administered by the Nebraska had the advantage of itures for highways became the board as aid to counties in building relatively flat terrain, but it had the dis­ bridges spanning streams more than advantages of a great area (420 miles 100 feet wide.) The levy marked the from east to west and 208 miles from first time that the state assumed a north to south), and a small population Mary Cochran Grimes of New Haven, Con­ necticut, is the daughter of former Nebraska financial obligation to improve Ne­ (ranked thirty-first with 1,343,756 per­ governor and state engineer Robert L. (Roy) braska roads. The first direct state sons in 1924). Many miles of roads had Cochran. involvement in road construction came to be built to serve sparsely populated 160 Nebraska's Highway System Attending the installation ofthe first highway markers in Nebraska on June 5, 1926: David F. Meeker, secretary to governor; Burt A. George, legislative representative ofNebraska Good Roads Association; Charles H. Roper, president, D-L-D [Detroit-Lincoln-Denver} Association; Mont C. Noble, chief, Bureau of Roads and Bridges; A. A. Jones, manager, Outdoor Advertising Company; Robert L. Cochran, state engineer; AdamMcMullen, governor ofNebraska; Frank C. Zehrung, mayor ofLincoln. Courtesy Nebraska Department of Roads. regions and link rural communities. deputy engineer post went to a close in 1915, realized that politics would Weather extremes made maintenance friend of one of the board members. play an important role in developing difficult. Learning "the unreliability of politics the state highway system. Most Ne­ In 1914 George E. Johnson, a civil and political promises," Cochran braska legislators were from rural areas and electrical engineer, sought accepted the position of state bridge and were more interested in farm-to­ appointment· as state engineer. He inspector.7 Two years later when his market roads than in a statewide sys­ enlisted the help of Roy Cochran of friend Keith Neville was elected gover­ tem of highways. When Johnson North Platte, a civil engineer and nor on the Democratic ticket, CQchran learned that nearly seventy-five per­ graduate ofthe University ofNebraska, urged Neville to reappoint Johnson cent of Nebraska house members who had been urged to seek the job and expressed his continuing interest opposed federal aid for road building in himself. Johnson proposed that in in becoming Johnson's deputy. When 1917, he began an "educational return for Cochran's support, he Johnson was retained in office Cochran program."9 "would see" that Cochran was appoint­ got the deputy engineer post, which he Johnson explained that state ed assistant state engineer. Cochran filled until entering military service in highways would pass through each lined up support for Johnson, whom August 1917. 8 county seat and extend to the county the Board of Irrigation, Highways, and Johnson, who had found only twenty­ lines, connecting with highways from Drainage appointed. However, the nine employees in the highway bureau adjoining counties. He argued that the 161 Nebraska History - Winter 1992 proposed system would connect from army service In France, to received proportionally more federal federal grant-in-aid roads with those of Washington to increase Nebraska's aid than eastern states. The 1924 adjoining states and provide farm-to­ prospects for receiving equipment.17 report of the Department of Public market roads centering on the county Nebraska received fifty large Holt Works indicated that Nebraska seats. IO His arguments must have been caterpillar tractors, over 400 trucks, 74 received $4.15 in federal aid for each persuasive because H.R.
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