Orr, Lawrence F.

English

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PURDUE E NG IN EE RI NG E X T E N S I O N  SERVICESO M E P O IN T E R S  FO R  P U B L IC  O F FIC IA L S H A N D L IN G  H IG H W A Y  W O R KBy Lawrence F. O rr,State  E xam iner, Ind iana S ta te  B oard of A ccounts.T he  resu lts obtained by those w ho have services to perform  for the public in the construction  and m ain tenance of public h ighw ays are m ore d irectly  observable by the taxpayers th an  any o ther public service. T hose of you w ho have such du ties to perform  have an op po rtun ity  of p roducing som eth ing  th a t will be well appreciated  by the taxpayers, if you devote your energies and ab ility  tow ard  g e ttin g  the best resu lts w ith  the m oney ap ­propria ted  for th a t purpose.I t  can no t and will no t be expected of you to go beyond the lim its by w hich you are bound. If you con trac t beyond your m eans then you will be criticised for so doing, although  you m ay a tta in  good resu lts  thereby. You should keep w ith in the appropria tions provided and no t a ttem p t to exceed your au th o rity  a lthough  it m ay appear expedient to do so. Y our lim its have been prescribed bo th  by s ta tu te  and by those w ho have the au th o rity  to determ ine the m eans a llo tted  for the w ork you have to  do. Do no t perm it those w ho are to build or con­trac t under your ju risd ic tion  to  deviate from  the plans and specifications govern ing  the w ork in hand. O ur engineer ex­am iners com plain th a t they  frequently  find th a t plans and specifications are no t carefully  draw n and consequently  contain som e item s w hich are in conflict. T he engineer in p reparing  plans, profiles, and specifications, should exercise extrem e care and see to it th a t such specifications provide exactly  w h a t is desired for th a t particu lar project. Local conditions will be en­countered on m ost any road construction , requ iring  special tre a t­m ent. T he policy of tak in g  a set of general specifications and se ttin g  them  up to  govern all of your road projects is a dan ger­ous proceeding and will very  likely lead to  the m aking of changes after the con trac t has been aw arded and the w ork started . T he Suprem e C ourt has ruled th a t all specifications m ust be sufficiently plain to  describe th oroughly  the w ork to  be perform ed. If th is is not done the w hole pro ject m ay be set aside as an illegal proceeding. A g rea t deal of con troversy  will be avoided by deta iling  the w ork w ith  sufficient clearness to adm it of no m isin terp re ta tion  before the con trac t is let.Duties of Commissioners, Inspector and EngineerI t  is the du ty  of the Com m issioners to go over the plans, profiles and specifications w ith  the engineer before advertisingE L E V E N T H  A N N U A L  R OA D SCHOOL 75the w ork and elim inate all questionable or debatab le item s. All bidders should be com pelled to bid exactly  the sam e kind, quality  and qu an tity  of w ork and m aterial. T he legality  of sub stan tia l changes m ade afte r the le ttin g  of a con trac t is seriously ques­tioned, and in m ost cases will lead to trouble  for both the com ­m issioners and the con tracto r. C ourt ru lings set ou t in no un­certain  language th a t unless the w ork is done in substan tia l com ­pliance w ith  the plans and specifications, it is no t a fulfillm ent of the con tract, even though  the w ork as perform ed is b e tte r  and m ore costly than  th a t w hich is specified. Specify what you want and then see that you get it.T he inspector or superin tenden t appointed by the Board of C om m issioners to  supervise the construction  of a new road should be a m an of in telligence and experience. H is position is one of considerable responsibility . F req uen tly  he m ust decide w ith ou t delay upon a question of the in ten t of the specifications and he should be qualified to act w ith  firm ness and fairness. I t  is a m istake to clothe an irresponsible m an w ith  the au tho rity  th a t goes w ith  th is position.T he engineer should give close a tten tion  to the road under construction  as the proper perform ance of the con tract rests very largely on him. H e  should allow the con tracto r no estim ate for w ork in place un til he has satisfied him self th a t the w ork and m aterial are actually  on the job and th a t they are the kind specified. T he com m issioners should also satisfy  them selves th a t they  are no t m aking an allow ance in excess of the proper am ount, and under the provisions of the s ta tu te s  enough should be retained to  take care of any labor and m aterial claim s w hich m ay be filed against the contractor. A construction  bond should be draw n in such a m anner th a t it w ill p ro tect the county against defects in the road du ring  the gu aran teed  period.If it should be found to be abso lu tely  necessary to depart from  the orig inal plans and specifications or m ake som e changes after w ork has been started , the  sam e should be set ou t in detail on the record book of the com m issioners and w ritten  au tho rity  approved by the engineer should be given the con tracto r. A d­ditions or deductions m ust be agreed upon betw een the board and the con trac to r before sam e are au thorized and sam e should be m ade a m a tte r  of record. T he records concerning the con­struc tion  of a new road m ust be m ade full and com plete because if our exam iners are called upon to m ake an exam ination of the road, they m ust necessarily go in to every detail and repo rt con­ditions ju s t as they  find them . If the records are incom plete the exam ination m ay lead to  a s ituation  em barrassing  to those responsible for the om issions.76 PURDUE ENG IN EE RI NG E X T E N S I O N  SERVICELimitations of State Board of AccountsT he S tate  Board of A ccounts is authorized to m ake exam ina­tions and investigations of con trac ts for public w ork under the provisions of the A cts of 1923. Before such exam inations m ay be m ade, a petition  therefore m ust be filed w ith  the S ta te  E x ­am iner, alleging th a t the con trac to r has failed to com ply w ith  the plans and specifications and th a t local relief has no t and can no t be obtained. T he petition  m ust be signed by a t least tw enty-five taxpayers who are d irectly  in terested  in the im ­provem ent nam ed.N either the S ta te  E xam iner, D epu ty  E xam iners, nor the F ield E xam iners are given any au th o rity  w hatever to superv ise the construction  of such w ork or to prepare plans and specifica­tions therefor. W e are som etim es called upon to do th is kind of w ork, b u t we m ust necessarily  refuse, for reasons sta ted  and fu rth er for the reason th a t as an exam ining departm en t, we w ould be in an em barrassing  position w ere we called upon to exam ine our own work.Financing H ighw ay ConstructionIn the m atte r of h ighw ay construction , I desire a t this point to offer some inform ation as to the provisions of the s ta tu te s  perta in ing  to certain  financial phases of such con struc­tion.In the m a tte r of advancing from  county  fund per diem of engineer and his a ssis tan ts— if the im provem ent is under the C ounty U n it Road L aw , there  w ould be no need of refund to be m ade to  county revenue in case bonds do no t sell, as the expense perta ins to the w hole county  as a unit.If the bonds do no t sell for th ree  mile gravel road law con­struction , and m oneys have been advanced, sam e should be re ­paid to county revenue from  the proceeds of a tax  levy against the tow nship  or tow nships w herein  the im provem ent was p e ti­tioned for.In  case of h ighw ay im provem ent under the inspection of the S ta te  H ighw ay  Com m ission, no claim  can be legally allow ed except w ith  the approval of the inspector rep resen ting  said com ­m ission.C ounty Com m issioners are entitled  to  re inbursem en t for the ir actual expenses in and about the construction  of highw ays under the C ounty U n it Road L aw  and T hree Mile Gravel Road Law , b u t they  are not en titled  to paym ent for services in con­nection therew ith .T he surp lus in the several gravel road bond funds in the tow nship  shall be transferred  to  a “general gravel road by tax a ­tion fund ,” w hich fund shall be used to liqu idate the indebtednessE L E V E N T H  A N N U A L  R OA D SCHOOL 77of any free gravel road in such tow nship  for w hich the bond issue m ay have been insufficient. If a surp lus still rem ains in the fund, such surp lus should be applied to the paym ent of the gravel road bonds of the tow nship .Bonds shall be sold in sufficient am ount to pay all prelim in­ary  expenses and costs of construction , including the per diem of engineer and superin tenden t of construction .T he C ounty U n it Road L aw  provides th a t the bond issue shall provide for a sufficient sum  in addition  to o ther expenses to pay for any ex tras or changes no t con tem plated  in the original plans, specifications and contract, w hich the board shall deem necessary, no t to exceed th ree per cent of the con trac t price.No p a rt of the bond redem ption fund can be used to  pay a deficiency in the construction  fund.T here  are m any o ther points th a t could be b rou gh t ou t in relation  to road construction  w ork, b u t I feel th a t I should proceed now w ith  m atters  perta in ing  to h ighw ay repairs and m aintenance.Laws Pertaining to H ighw ay Financing and AccountingT here  are m any sta tu te s  re la ting  to m ain tenance and repair of highw ay. A t th is point, how ever, I w ish to explain som e of the essential provisions of the law in so far as they  perta in  to financial and accounting provisions.T he proceeds of the gasoline tax  d istribu tion  to counties under the provisions of the s ta tu te s :“Shall con stitu te  a special fund for construction ,m ain tenance or repair of any public h ighw ay in thecoun ty .”T he s ta tu te  is clear in the prov id ing for a “special fund” and therefore, the proceeds of such tax  should be so carried and no t placed in the free gravel road repair fund.T he gravel road repair fund can only be used for repair of free gravel roads w hile the special fund from  the gasoline tax  d istribu tion  m ay be used either for repair m ain tenance or con­struction .No debts m ay be created against the gravel road repair fund except the m oney is on hand, or the debts be con tracted  against an existing  levy in an ticipation  of its collection. In cu rrin g  of overdrafts in the gravel road repair fund as well as in any o ther fund, is illegal.Claim s against the gravel road repair fund m ust have the approval of the h ighw ay superin tenden t before the B oard of C ounty Com m issioners m ay allow such claims.PURDUE E NG IN EE RI NG E X T E N S I O N  SERVICE7 8P ub lication  of allow ances on reports  filed by ass is tan t su ­perin tenden ts should show the to ta l am ounts paid to each laborer therein  nam ed.Claim s of m aterial firms should be filed d irectly  w ith  the aud ito r, and allow ed to  the c laim ant and no t to the a ss is tan t superin tenden t.A ny repairs m ade by the C ounty  H ighw ay  S uperin tenden t upon a road, m ust be paid for from  the gravel road repair fund, if the road has been taken  over by the C ounty C om m issioners.R eceipts for paym ents m ade by ass is tan t superin tenden ts m ust be filed w ith  the county  auditor, to  show th a t paym ents have been properly  d istribu ted  by the ass is tan t superin tenden t.A side from  the requirem ents of the s ta tu te s  w hich I have sum m arized herein there  are m any other ideas w hich are p rom pted by a desire to  a tta in  the best resu lts  from  an econ­om ical and businesslike adm in istra tion  of your various offices. F o r exam ple, it is very  im p ortan t in road w ork  to  determ ine the actual cost of p lacing m ateria l on roads and keep th is data  on file for reference. If th is w ere done, I believe m any instances w ould be found in w hich the cost, if know n beforehand, would be considered prohibitive. S ta tistica l data  of th is kind w ould be of g rea t value in determ in ing  the cost of w ork to  be done and in a rran g in g  appropria tions and fixing levys. You should keep your m ateria l and labor costs on each p ro ject in such a w ay th a t they  will be serviceable in estim ating  fu tu re  w ork.O ur dep artm en t is also recom m ending th a t all officials w ho have charge of any public p rop erty  should keep a com plete in ­ven to ry  of same. T he to ta l expense of county  governm ent w hen considered m erely as an expense, oftentim es seem s large, b u t if som e th in g  tang ib le  can be show n for such expenditures, or a p art of it, in the w ay of m achinery, equipm ent, tools, supplies on hand  and buildings and land purchased we will then  have som eth ing to show  for the m oney so expended.T he keeping of such an inven tory  we regard  as good bu si­ness, and w e reg re t to s ta te  th a t such a m ethod has no t been pursued to any ex ten t in the sta te . T he  D ep artm en t of Con­servation, w here a com plete inven tory  is kept, is the one excep­tion and m ost su rp ris in g  resu lts  are evident.In  conclusion, I w an t to  say ju s t a few w ords concerning the S ta te  Board of A ccounts. Some erroneous im pressions have gone abroad concerning the activ ities of th is  departm en t, som e of w hich are no t only erroneous b u t unfair. L ike yourselves, we w ho have the adm inistering  of the Public  A ccoun ting  L aw  are governed by sta tu te , and we do no t go any fu rth er in our ex­am inations th an  the law requires of us. Som etim es our ex­am iners are com pelled to  rep o rt th ings w hich som e people doE L E V E N T H  A N N U A L  R OA D SCHOOL 79no t like. T his is no t a pleasure to  the exam iners, b u t the s ta tu te s  place responsib ilities upon us w hich we m ust m eet, and we do m eet them  fairly and squarely. R egardless of the consequences, our reports  m ust speak the tru th  and show the facts as they are found to exist.T he law places the sam e au th o rity  w ith  the dep artm en t as to exam inations of s ta te  offices and departm en ts th a t it does in the exam ination of county, tow nship  and o ther public offices.An office or dep artm en t in the S ta te  H ouse is no t entitled to  any m ore privileges in an exam ination of its  accounts and affairs th an  the sm allest tow n or tow nship  in the state.O ur exam inations will be m ade w ith ou t fear or favor and we will carry  out our duties as provided by law.D u ring  m y adm in istra tion  as S ta te  E xam iner I have en­deavored to  m ake the dep artm en t helpful to all public officials and I invite you to  send your problem s and questions to me. W e extend to  you our services in the sp irit of co-operation and assistance to the end th a t we m ay all serve to the best of our abilities in the in terest of efficient, econom ical and honest govern­m ent.T H E  R E SU R FA C IN G  OF B A D L Y  W O R N  CITY  P A V E M E N T SBy R. H . S impson, Chief Engineer,D ep t. of Public  Service, D ivision of E ng ineering  and C onstruction , Colum bus, Ohio.T he  resurfacing  of bad ly  w orn city pavem ents is a sub ject th a t is receiving considerable a tten tion  a t the p resen t time. T he large increase in m otor traffic has b rou gh t about a dem and for sm ooth roadw ays, and m any cities are a ttem p tin g  to transform  th e ir old pavem ents into boulevards by the use of som e type of bitum inous surface. M ost of our h ighw ay engineers have also recognized the econom y of salvag ing  w hatever value there is in their old roads, and are resu rfacing  gravel and m acadam  roads w ith  asph alt or o ther b itum inous m aterial. T he increase in the construction  of th is type of pavem ent is no doub t due to the fact th a t the financing of a pav ing program , in m ost com m unities, is becom ing a serious problem , and any sav ing  th a t can be m ade in construction  cost, w hich does no t low er the value of the se r­vice rendered by a pavem ent, is certa in ly  justified. In  som e cities th is w ork is being  done by the application of a th in  layer of asphalt, hav ing a th ickness of one-half or th ree-qu arters  of an inch, and frequently  th is is feathered  ou t to zero a t the curb and

Some Pointers for Public Officials Handling Highway Work

https://docs.lib.purdue.edu/cgi/viewcontent.cgi?article=1876&amp;context=roadschool

Some Pointers for Public Officials Handling Highway Work

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