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L .313 smut-a ”to thc ruuw at 11031941: sun com 3: K \ if b" ; E II! J; ROIEGER! Candid-.150 for Don» of 01711 haunt. Jun. 10, 1987. . “: 31-12ch _1_ STUDY 9; m TOWNSHIP ROAD SITUATIOR _IJ; HICHIGAI WIE SUGGESTED REVISIONS. 0mm 9;; max. I. Introduction. (u) Import-no. and. soap. at the Iownehip Road Problem. 0) Purpose of Iriting one! application of this thesis. II. township Bighorn Legislative Provisions, Extracts of 1m “foetus roundup Bond matters ma referred to in bulnnoo or thosil. III. Application at romohip Highwq Ian moi the ir operation. 1. discussion or those application- on: the present practice: and» these lat. IV. Suggested Reunions. . Such revision: of statutes mo. praotioea which make for a more sound and conservative Township Highway Policy, stimulate activity and insure progress. (Tomahip nape eyotmetioellyleid out and program to be adopted toward their completion). 1!. Suggested Btsndsrds: 11133035 srsdes, upping, oro ss-seetions, snrtsees, uintensnee prutiees, (Reed puns; pictures end drssincs). VI. Assistmoe to townships. ' i work a asste, Counties end college to sssist in )roilen. VII. rinsnee. ‘ i i __ nae tension pron- sfleeting Iosnship rosds. Suggested remedies. ' CHAPTER I. INTRODUCTION. (a) “Honest labor coupled with the fruits of honest thought make mouth the pathway to oontentment.‘ Whether “contentment" be our peace of mind, or any city, town, ballet-or tiniest community, the truth of the quotation is evident. With the township road system of llichigan where matters of both finance and highway practice are local considerations, the value of fundamental soundness is especially significant. In the mind of the general public the township highway situation has seemed of such minor importance as to approach the insignificant. in analysis of a few facts and figures will show that this inpression is far from the actual. Over the state as a whole the representative mileages are classified roughly as follows: State Trunk. Linc Beads 2; 000 County Roads /; 300 township Roads if, 000 an... figures show that the mileage of rownship roads is 2.7 times that of the State Trunk Line and county Roads combined. his preponderance of mileage seems certainly to lend a great measure of importance. On this mileage of Township roads there is spent each year for repair and improvement work from twelve millions to fifteen millions of dollars. The expenditure of this sum of public moneys would indicate again that this is no small undertaking. from the economic standpoint the importance of the secondary highways is becoming more and more evident each year. the development of the automobile is largely responsihle for this. In.ths first place, the number of automobiles owned in rural and small town.oommunities compared with pepulation shows a rapidly increasing percentage per capita each year. Secondly, the economical marketing of products and the general business of the community is dasanding the speed and.adaptability of the truck haul. this is especially true in.the sections of the state having specialised products such as dairy products, beets, fruit, etc. this traffic makes necessary a higher type of highway than was needed for the horse drawn vehicles and one which is passable for more months of the year. Considerable‘areas of agricultural lands previously next to valueless because of transportation difficulties will be made to pay a profit by making markets economically accessible. third, a great portion of the states area which has been unproductive of returns since the close of lumbering operations is once more coming into its own. The extensive improvements on.the primary highways has brought the sportsman, the lover of nature, and the pleasure bent, to enjoy their 63‘ J leisure in the great out-doors. Each year they are travelling further and visiting new sections, until few sections having anything to offer in the line of natural baa-111;! hut-”- ‘ have now their constantly growing sumer caravan of tourists. rho primary highways are bringing these tourists 33 or 93g the sections having to offer than these natural beauties, but it ruains for the secondary roads to take these folks thru and into these sections and to make every last point of interest aocessable to thee. It may seem as though to humor the tourist and case his path is a very minor considerationbut economically he is a force to be reckoned with. For the past two years the moneys brought to the State by the tourist from outside our boundaries -ounted to eonsiderably more than the value of any crop produced in those years. The 92 results are preponderously greater because our God-given beauties required little in the way of cash outlv to make than acceptable to the tourist. The foregoing points, coupled with the recognised fact of the natural it's-ease in land values as a result of increased accessability and availability of markets, establish beyond a doubt the fact that the township road problem is one of incense and increasing importance. (h) In a casual reading of the material in this thesis it may appear that some of the thoughts expressed may seem somewhat visionary and even perhaps overdone. It is not the intent of the writer to appear over-sealous or to create illusions but to offer conscientious opinion and honest thought in these matters, with the hope that the material will serve as a sound basis for later discussion of this important subject. OHAP‘EER II. TOWNSHIP HIGHWAY LEGISLATIVE PROVISIONS. The following pages of this section will contain a nmeber of extracts of constitutional and legislative provisions. in analysis will show that many of these provisions are in themselves the basis of sale of the existing conditions and make way for lmsound practices. However, iii most cases, the intent of these provisions is good, the thought is plain, and it is firmly believed that with some measure of centralised control in their enforoanent, and me means of a check on results obtained, that a good measure of progress might be possible. It was felt that, even the this compilation of extracts interupts the continuity of reading this work, they are better collected under a single chapter than arranged as a series of footnotes. Reference will be made by paragraph number. TOWNSHIP OFFICERS. I. Constitutional Provisions. there shall be elected annually on the first llonday of April in each organised township one supervisor, one township clerk, one oomissioner of highways, one township treasurer, not to exceed four constables and one overseer of highways for each highway district, whose powers and duties shall be prescribed by law. Oonst. Art. VIII, Sec. 18. 2. there shall be elected in each orgmised township not to exceed four Justices of the peace, each of whom shall held the office for four years and mtil his successor is elected and Qualified. At the first election in any township they shall be classified as shall be prescribed by law. A Justice elected to £111 a vacancy shall hold the office for the residue of the unexpired term. Oonst. 'Art. VII, Sec. 16. 3. lownship Officers _t_o_ pg Elected. At theennual township meeting there shall be an election for the following officers: One supervisor, one township clerk, one treasurer, one cmisaioner of highways, as many overseers of highways as shall be provided for by law, so many Justices of the peace as there are by law to be elected in the township, and so many constables as are to be elected, not exceeding four in number. 3.8. of me, ch. 16, Sec. 8, paragraph 8054. 4, Officers: the regulation of township affairs legally concerns none but the people of the tomship and cannot be lawfully vested in any officers imposed upon the township from without. An appointment of a supervisor for the remainder of the term of his predecessor is a valid temporary appoint- ment, though it may not prevent an election. A township temporarily represented by an appointed supervisor has the same voice upon the board of supervisors that it had while represented by the supervisor elected to such office. 5'. mmetien 33.; Township Officers. The follcwing township officers shall be entitled to compensation at the following rates for each day of ten hours actually and necessarily devoted by them to the service of the township in the duties of their respective offices, to be verified by affidavit, dishever required by the township boards: L. the officers composing the township boards, board of registration, board of health, inspectors of election, clerks of the poll and commissioners of highways, five dollars per day and at the same rate for parts of days. SUPERVISOE. 7. 22111.39. 29. 3.9. magnum 2:. Load... .n. '29, 3;; Demos El Supervisor. In a township which has returned to the system of statute labor, in case of dispute between the ccuissioner of hifiways and any person interested in, improvement of roads as to the manner of making the same, or the value of the work, the matter in dispute shall be submitted to the supervisor of the township, and his decision shall be final. 8. W _t_g 1:!!! Taxes for Highway . A certified copy of the record of the proceedings of the township meeting or township board, fixing and determining the aeount of highway improvements and road repair taxes, shall be transmitted by the township clerk to the Supervisor of his tomship on or before the first day of October in each year, and such taxes shall be levied and collected in the sen. manner as moneys for general township purposes are levied and collected. The taxes so levied shall be carried out in two separate colmns in the tax roll, one as the road repair tax and the other as highway improvement tax, and the township treasurer shall keep separate accounts of the same. lot 283, of 1909, ch. II, Sec. 6. 10mm? mm. 7, agents from Township M lands. llo moneys shall be disbursed from any township highway fund, except upon an order drawn by the township clerk in the manner provided by law for the drawing of orders upon other funds of townships. Let see, 1919, See. l. he township highway oomissiencr shall draw under his hand an order directed to the township clerk for all disbursements of township highway funds. Upon the receipt of orders from the township highway commissioner as herein provided for, the township domes. clerk shall drew his order upon the township treasurer in the same manner and form as is provided by law for the disbursement of other township funds. OOMSSIONER 91‘. EIGBWLY . 10. Heated Annual 1. here shall be elected annually on the first llcndsy of April in each organised township one supervisor, one township clerk, one oomissioner of highways, one township treasurer, not to exceed four constables and one overseer of highways for each highway district, whose powers and duties shall be prescribed by law. //, m g; Legislature. The legislature may by general law provide for the laying out, construction, improvement and maintenance of highways, bridges and culverts by the State and by the counties and townships thereof and by road districts; and may authorise counties or districts to take charge and control of any highway within their limits for such purposes. The legislature may also by general law prescribe the powers and duties of boards of supervisors in relation to highways, bridges and culverts; may provide for county and district road commissioners to be appointed or elected, with such powers and duties as may be prescribed by law; and may change and abolish the powers and duties of township commissioners and oversoers of highways. the legislature may provide by law for Asubnitting the question'of adopting the county road system to the electors of the counties and such road system shall not go into operation in any county until approved by a majority of the electors thereof voting thereon. The tax raised for road purposes by counties shall not exceed in any one year five dollars upon each one thousand dollars of assessed valuation for the preceding year. const. Art. VIII. Ice. 86. 12.. Authority for. Building, Egg" Highways, Brigg", Culverts, 22.9232, m. Public highways and private roads may be established, opened, improved and maintained within this state under the provisions of this act, and the counties, townships, cities, villages and districts of this state shall possess the authority herein prescribed for the building, repairing and preservation of bridges and culverts; the drain- ing cf highways, cutting of weeds and brush in the improvement of highways and the duties of state, county, township, city, village and district highway officials shall be as defined in this act. (3 . m, .33.! £9.43; gut, Altered gr Discontinued. rablic highways shall not be less than four rods in width, except when laid out and established in the manner hereinafter prescribed, and they may be laid out, altered or discontinued under the provisions of this chapter. lirst, By the cmissioner of highways of any town- ship, within his township, upon the written application of seven or more freeholders of such township; Second, By the Joint action of the cmissioners of - \ highways of adjoining townships, on the line between such townships, on the written application of seven or more freeholders of each township, addressed to the ecmissioncr of either township; third, By the comment action of. the commissioner of highways of am township and the municipal authority of any adJeining city or village having by law, Jurisdiction in laying out streets or highways, on the line between such township and such city or village, on the written application of seven or more freeholders of each township, city, or village; Fourth, Omissioners of highways shall also have power to lay out and establish highways on section lines, through uninslosed and unimproved lands, without the application required by the first subdivision of this section. I4. m _e_f_ m. Paragraph 543, Sec. 16. Ihemever a highway shall be laid out or altered, the commissioner, mayor or president of any city or village shall cause an accurate survey to be made of the center line thereof describing the commencing and terminating points of the use frm some established corner ef a regular subdivision of a sectien, er other determinable point. Bearing trees or monuments shall also be noted at such ccmenee'ment and termination and at each angle along the line of the road when practicable. Whenever a road not on a section, quarter section, or some other regular subdivision line of a section, HI: 3 crosses a section line, the distance frm the last preceding angle in such road to such section line shall be noted; also the distance from the point of intersection to the nearest section corner poet, quarter post, or meander pest on one side of such peint, if there be one within one mile, and the premises belonging to any highway shall be a parcel of land not less than two rods wide on each side of the line of survey. lhen the survey is made, permanent monuments shall be established by the surveyor every eighty rods along the line of such highway. 15‘. $3.9m Defined. Paragraph d307, Sec. 20. All highways regularly established in pursuance of existing laws, all roads that shall have been used as such for ten years or more, whether any record or other proof exists that they were ever established as highways or not, and all roads which have been or which may hereafter be laid out and not recorded, and which shall have been used eight years or more, shall be deemed public highways, subject to be altered or discontinued according to the provisions of this set. All highways that are or that may become such by time and use, shall be four rods in width, and where they are situated on section or quarter section lines, such lines shall be the center of such roads, and the land belonging to such reads shall be twe rods in width on each side of such lines. Onissioner _tg gags; M 33 b_e_ Recorded. .Paragraph died, Sec. 81. the comissioner of highways of each township shall cause all roads in his township coming within the purview of the last preceding section, the records of H5, which may be defective, and all others, the records of which are defective, to be ascertained, described and entered of record in the township clerk's office. /4. Egg; _R_eg_o;i_r_ and Highway _lmprovmscnt _fax__c_a. Paragraph lea. See. 1. The highways in every organised town- ship in this State shall be laid out, improved and maintained by two money taxes; one tax shall be known as the road repair tax, and shall be assessed on all property in the township outside of the limits of incorporated villages, which tax shall not exceed fifty cents on each one hundred dollars valuation according to the assessment roll of the last preceding year, except in townships with an assessed valuation of less than five hundred thousand dollars where the tax shall not exceed one dollar on each one hundred dollars valuation, according to the asses-sent roll of the last preceding year; and the other tax shall be known as the highway improvement tax and shall be assessed on all taxable property in the tomship, including that within the limits of incorporated villages, which tax shall not exceed fifty cents on each one hundred dollars valuation, according to the assesuent roll for the last preceding year, except in townships with an assessed valuation of less thm five hundred thousand dollars where the tax shall not exceed one dollar on each one hundred dollars valuation, according to the assessment roll of the last preceding year. - l7. Omission“! m Account. Paragraph one. See. a. the cmissioncr of highways in each township shall t L“: render to the township board at the annual meeting thereof in each year on account in writing, stating: lirst, the amount of road repair tax received by him during the preceding year, a smumary of the expenditures from that fund, the amount of outstanding liabilities, if any, and the mount of such road repair fund, if say, over and above such expenditures and liabilities; Second, l'he amount of highway improvement tax received by him during the preceding year, a emery of the expenditures from that fund, a statement of the permanent im- provements made on roads and bridges and of the condition of of the roads and bridges so improved, the amount of outstanding liabilities, if any, and the amount of the highway improvement fund, if any, over and above such expenditures and liabilities; fhird, The amount of all other moneys received for highway purposes with a statement of the application thereof; fourth, An estimate of the amount of road repair tax union, in his judgment, should be assessed for the ensuing year, not exceeding the amount named in section one of this ohspter;’ lifth, The permanent improvements which, in his Judgment, should be made on the roads and bridges during the next ensuing year and the amount of highway improvement tax which should be levied for that purpose, not to exceed the amount named in section one of this chapter. )3, §tatomont 2 )3 Presented at M Nesta. Paragraph £820, See. 3. The township board shall cause such statement to be presented at the next annual township meeting, but a failure to render such statement or to present the same to the township meeting shall not affect the right of the electors of the township to vote at such meeting the amount of road repair tax and road improvement tax to be assessed, or of the township board to fix and determine the same as provided elsewhere in this act. [9. 2w 2; M 1:; _b_g_ Determined at M nesting. Paragraph d381, Boo. d. At the annual tomship meeting held in each organised township the electors shall, by a majority of those present and voting, who do not reside in any incorporated village, determine the amount of road repair tax to be raised for the ensuing year, and at the said meeting the electors shall also, by a majority of all those present and voting, including residents of incorporated villages in such organised township, determine the amount of highway inprovemcnt tax to be raised for the ensuing year. 7.0. Eponditure 95 M m gag. Paragraph “86. Sec. 9. as‘omended by Act 9? of 19.3. The commissioner, acting with the township board, may divide the township into one or more road districts in each surveyed township, in each of which districts on overseer of highways shall be elected: Provided, That the repair tax shall be expanded or worked in the road district where assessed. l'hc comissicner and town- ship board cf any township in which may be located an unin- corporated village, or in the event that such unincorporated village is located in more than one township, the co-issioncrs and township board of the townships to be affected thereby, may crests of the territory embraced by such unincorporated village a separate road district, for which read district there shall be elected on overseer in the some manner as oversecrs are elected in the township. +And in case such unincorporated village is located in more than one town- ship, the overseer of each township shall have supervision of that territory msbraced in such unincorporated village as may be located in his township. Such oversecrs shall from time to time report to the commissioner any defects in the highways within their respective districts, and shall, when required by the emissicner, supervise the working and repairing of roads and the building and repairing of roads, and the building and repairing of bridges therein. the overseer or ovorseers of any road district couprieing an unincorporated village, as provided in this section, upon the written application of a majority of the taxpayers residing therein, may authorise such additional part of the road repair tax assessed in said district as may not be necessary for the repairs of highways therein, but not less than one-fourth thereof, used for the construction, repair and improvement of sidewalks within the limits of said district. lhe taxpayers of any unincorporated village which is or may be fenced into separate road districts, may raise such a sum or some of money in the repair fund of such district, but not in excess of fifty cents per hundred dollars, as f) provided in this section, as they may deem necessary for the construction and maintenance of sidewalks and streets in such unincorporated village and in addition to the money raised for the whole township. Such additional tax shall not be raised except on an affirmative, viva vooo vote of a majority of the taxpayers in such unincorporated village, taken either at the annual township meeting or at a special meeting held in and for said village. Such special meeting shall be called either by the township board or boards, if such village is in more than one tomship, and at the request of five taxpayers in said village, but in all other respects as provided by the general law for calling township meetings, or it may be called by five or more taxpayers in said village posting a notice, signed by thus, in three or more public places in said village, stating the time, place and purpose of such meeting. The money raised thereby shall be expended for sidewalks and streets in said village, under the direction and supervision of the township board and highway comiesioner of the tomship or townships in which such unincorporated village is located. fhc overseer or overseers, when such unincorporated village may be located in more than one county, may also from time to time, by writing signed by him or them and filed with the clerk of such township or townships, authorise such' additional portion of the repair tax of such village as in his or their judgment is not needed for the annual repairs of the highways therein, to be anticipated for one or more years, not exceeding three, and thereupon any m; {‘0 person or corporation, resident or owning property within such village, and assessed for highway repair tax in the district within mich such district is situated, may, in the year so designated in such order, anticipate his, her or its assessment for road repair tax for such time as he, she or it may see fit within the limits so prescribed by the overseer of that part of the road district in which such repairs shall be made, and it shall be the duty of such overseer to give to such person or corporation a certificate signed by him, showing the amount of road repair tax paid by such person or corporation; and in each succeeding year, upon presentation of such certificate, such person or corporation shall be allowed and credited by the overseer of highways of that part. of the district in which such repairs or the construction of sidewalks shall have been made, with the payment of the road repair tax so assessed to him, her or it for such year, until such credit shall equal the amount of the road repair tax so stated in said certificate to have been anticipated, and such overseer shall endorse thereon a statement signed by him showing such credit or allowance. the supervision of road work and the repair of highways and bridges shall be under the charge of the overseers, subject to such directory control of the tomehip board and highway commissioner as is herein prescribed: Provided further, i'hat upon complaint in writing to the township board by any ten or more residdnt taxpayers that the road repair fund is being unequally and unjustly applied, or work improperly performed, the township board may direct the expenditures of such road repair fund or the manner of performing such work: Provided further, i'hat not to exceed twenty-five dollars shall be expended by the highway commissioners in any one year for tools or machinery, without the consent of the township board: Provided further, That not exceeding one hundred dollars shall be expended frcn the road repair fund on any one mile of higlmay, unless otherwise directed by the township board. 21. mature 95 Highway _Igprovement M. Iaragraph assv. Sec. 10, as mended by Act as of 1925. The highway improvement fund shall be expended by the. township highway comicsiener, under the direction of the township board, in laying cut, building and pcmancntly improving or repairing highways and bridges and in the employment of labor, purchasing of materials, tools or machinery to be used therefor. Ihc ccnissioner of highways, under the direction of the township board, may contract for such tools or road machinery as they may dc- advisable, to be paid for in not to exceed four years' time, but in no one year shall the payment made thereon exceed one-fourth the mount of the allowable highway improve- ment -ta'x: rrovided, That one-half of that portion of the tomship highway inprovemcnt fund tax which is assessed and collected within any inocrporatcd village, or part thereof, shall annually be expended within the village where collected by the canon council of such village, for building, permanently improving or repairing of the highways and bridges now in use in such village; and the township board shall collect and turn over to such village all State award moneys that may be due or owing on account of such building, permanently improving or ' repairing the highways within the village in accordance herewith. a}; . Em! _a'gd. Bridges _t_o_ 1; £29.! _i_n Reasonable M. Paragraph acne. Sec. ll. It shall be the duty of the highway omissioner to see that all highways and bridges are kept in reasonable repair, and in condition reasonably safe and fit for public travel. He shall employ and direct the employment of such labor as he may dc- necessary and advisable, and all disbursmcnts from the highway improvement fund or the road repair fund shall be made upon his warrant, drawn on the town- ship treasurer and countersigned by the township clerk. 2.3 , Persons Assessed Given Preference in Performance of M. Paragraph 4529. Sec. 12.. In the performance of all road _ repair work those assessed for highway taxes in each respective district where such work is to be done, shall be given preference in the performance of such work. Work to be paid fer from the road repair fund shall be completed on or before the first day of September in each year: Provided, that not exceeding one-quarter of the amount cf such tax may be kept by the highway comissioner for later necessary repairs; or for plowing, rolling or removing snow in winter. 2.4. 313 Overseer _t_g gag; Supervision _o_f_ £95k. laragraph 4380. See. 18. If the highway oomissioner be unable to take charge of the work on highways and bridges because of sickness, absence or am other reason, or in case of a vacancy in the office of township highway commissioner through death, resignation or otherwise, the overseer of highways residing in the one road district as the former highway commissioner resided shall have charge and supervision of all work, and shall set in the place and stead of the highww commissioner, until a new highway ccniasioner shall be appointed or elected, and shall have all the powers and duties of such township highway cmissioner, and in such case warrants drawn by him and countersigned by the township clerk shall be paid by the town- ship treasurer. 25? Stagnation g; Cognissiomr 33d Overseer. Paragraph dul. Sec. 14. The township highway commissioner and the overseer of highways shall be entitled to such canpensation as the township board shall decide. The compensation of the highway cemissioncr shall be paid from the general fund of the township, in the same manner as other township officers are paid. the compensation of the overseer of highways shall be paid from the road repair fund, on approval of the township board. 2;}..- ggg, m Repairs, gig}; gay; 33 11;; Permanent Egovemgt. Paragraph 4382. See. 15, as amended by Act 68 of 1917. All work hereafter done upon roads and bridges, except such work as may be required for repairs, shall have in view the permancnt improvement of such roads and bridges. Before beginning each permanent improvement on any highway or bridge, the commissioner shall cause a survey of the highway to be made {\5 ‘ \ '4 R”: -*' . by a cmmpctent surveyor or engineer, who shall prepare complete plans for the work contemplated establishing both the location and grade of the highway or bridge. In counties working under the county road system the county highway . engineer shall be employed for this purpose and he shall exercise such supervision over construction.as will insure that the plans and specifications are strictly followed. No contracts shall be let nor work paid for which shall cost to exceed five hundred dollars, whether bridges or road work, without the approval of said county highway engineer. In counties not working under the county road cystem.any competent engineer or surveyor may be employed, but if any highway is being built for state reward, the employment of such engineer or surveyor shall be approved by the state highway commissioner. the plans as submitted, or as may be mended by the surveyor or engineer at the suggestion of the board, shall be adopted by resolution of such township board, which fact shall be certified by the township clerk on.thc plans, giving the date of such adoption, after which they shall be filed with the township clerk, and copies thereof shall be filed with the township treasurer. thereafter all parts of such roads shall be graded and turnpikcd in accordance with the grades thus established before the same shall be graveled or1mscadmsiscd, and it shall be unlawful for the highway commissioner to issue any orders for penancnt improvasent work, for the township clerk to oountcrsign such orders, or the treasurer to pay same, unless the survey has been made, the plans made and adopted, and the work done in accordance therewith, and any one of the officials, who shall do what is prohibited in this paragraph knowingly, shall be guilty of a misdemeanor and shall be liable to a fine of not more than tnnty-five dollars, and in «use of payment may be con- fined in the county Jail not more than twenty-five days, in the discretion of the court. The highway shall be constructed in such manner as to form a turnpike sufficiently crowning to shed water, with gutters or ditches adequate for drainage. The width of the turnpike shall be not less than eighteen feet between side ditchcsnend all bridges emu have a clear roadway of at least sixteen feet, and shall be capable of carrying a fifteen ton moving load. ‘ 2:1; Repairs 51;; 9.9.9. 193;. Paragraph “55. Sec. 16. After any such turnpike shall be used for ene year, the ruttc shall be filled, after which it shall be graveled or macadamiscd in cases where gravel or crushed stone can conveniently be obtained. If it be desired to put on gravel or stone when grading has been completed, the turnpike shall first be thoroughly suspected. In gravcling or macadamising any highway, the gravel or stone shall be placed on‘thc center thereof, in a mass not less than nine I feet wide, and not less than six or more than twelve inches deep, in the discretion of the highway omissioner. scum ROAD gig. '2. 8. heard 95 count: Road comissioncrs. Paragraph £358. Sec. d, as amended by Act 366 of 1917. In any county where the county road system has been or shall hereafter be adopted, a board of county road cmissioners consisting of three msnbcrs shall be elected by the people of such county. In the first instance such eomissioners shall be appointed by the board of supervisors or elected at a general or special election called for that purpose, as shall be ordered by the board of supervisors. If such eonissioners are appointed they shall hold office only until the first day of January in the year in which the next regular session of the legislature is held. If such conicaioncrs are to be elected at a general election, notice thereof, embodying a copy of the resolutions of the board of smervisors, giving the number and tens of the office of the board of conicaioners to» be elected, shall be published by the clerk in the newspaper or newspapers selected by the board of supervisors as required by section three of this chapter and act: if a special election is called for the election of such omissioners, a like notice shall be given by the clerk, which notice shall be posted and published in such newspapers as required by said section three of this chapter and act. ihc regular election of county road commissioners shall be held at the general election of the first Tuesday after the first Monday in lovember,‘ and the term of office of such county road cmiasieners shall ee-encc on the first day of January in the year following their. election. The notice thereof shall be given at the time notice is given of the general election of county officers: Provided, That the clectionof county road omissioners, as herein provided, shall not be mandatory in any county which contains twelve surveyed tom- ships or more, either entire or fractional as determined by the government survey thereof. In such county or counties the board of supervisors may, by a majority of its members- elect, appoint such county road cmissicners: Provided further, that in any county in which the board of road cmissioners shall consist, at the time this usndment takes effect, of less thm three asaberc, the board of supervisors, at the first regular meeting thereafter, or at a special meeting called for that purpose, shall appoint such additional mnbers as may be necessary. it the time of such appointment the board of supervisors shall designate the date of expiration of the initial tons of each oomissicner so appointed, so that the term of a conissicner shall expire on the thirty-first day of December of each even year. an m- g__g_,_ Egg; Institutes. Paragraph 4380. Bee. 8. the highw coamissicners ef the several townships in each and every county in the State, and the county highway commissioners in counties working under the county road law, shall if deemed advisable by the state highway commissioner, seet annualy in a road institute, at such time md place as the state highway commissioner may designate, there to consider such matters as he may present to their attention, and to discuss such matters of road improvement as may be of special interest to such township and county highway ccuissicners, and every township highway colliscicnsr may collect from his township the cane pcr u- as in actual road cars, and his actual expenses in attending such institute shall, if reasonable, by allowed by the township board and shall be paid by said township. §_O_-_ township 3353 _l_l_a_p_s-. Paragraph 4585. The state highway ccnissioner mall keep a complete record of the doims of the state highway deparmcnt, which record shall be the property of the State, and shall as soon as possible make a map of every township in the State showing roads and the condition of the roads, together with marks indicating where road material can be found, and what kind and what quality. COMMISSIONERS AN D OVERBEERB. gag; mwtu-miflsnmmifi- Part or . paragraph “73. sec. 8. In all cases involving an expenditure of an aneunt over fifty dollars and not exceeding five hundred dellars, in the repairing or construction of roads or bridges in any township cfxthis State, the commissioner shall submit the proposed expenditure to the township board, ,and upon the arrival of the said board, the ccmissiener may make such repairs or cause the. to be mode; may do the construction work or cause it to be done; say bu the necessary materials and have the necessary help. ((3 a K ’22:; 11135 Imposed Qenditurc _i_._s_ 9135 i532. But if the proposed expenditure is of an mount greater than five hundred dollars, the cmissioner shall first submit the sue to the township board, and upon approval of the said board, the oc—issioner shall advertise for sealed proposals for the doing of such work and the making of such repairs, and together with the township clerk, subject to the approval of’the township board, shall contract with the lowest bidder giving good and sufficient security for the performance of the work: Provided that in case it shall appear to the conicsicner and board acting together, in such manner that it seems to them clearly shown, that there has been collusion nong the bidders, they say contract privately with am one of the bidders or with case one who was not a bidder, but at a price not to exceed that of the lowest bidder. The contract so made shall be approved in writing by the supervisor in order to be valid as against the township. not less than ten days' notice shall be given by the cmissicner cf the time and place of letting such contract by putting up notices in at least five of the most public places in . his township. Upon performance of the work by the contractor, if approved and accepted by the cmissioner and supervisor, there shall be drawn and signed by such ocmissioner, and countersigned by the township clerk, orders upon the township treasurer for the mount of said contract. It shall be unlawful for any township officer to be in any way interested directly or indirectly in any such contract. dny contract in which any such township officer is so interested shall be absolutely void: Provided, however, fist in case the township board shall decide to do the work by day labor, the plans and specifications together with all bids received thereon, and the reason in writing, for not letting the Job by contract, shall be filed in the office of the tcmship clerk: Provided further, That if a bridge is to be repaired or built at a cost greater than five hundred dellars, the township board or highway ccnissioner m apply to the state highway cosmicsicner who shall assign a cupctcnt civil engineer to prepare plans and specifications for the case, or decide as to the merits of the various plans on which tenders may have been received before the contract is let, and pass upon the cupleted structure before the contractor for the same shall be paid. a Omissioner _t_g 33.113 Guide-Posts. Paragraph “75. Sec. b. the cmissioner shall cause guide-posts, with preper inscriptions and devices thereon, to be erected and kept in repair en all important road crossings on roads leading into cities and villages at distances of from three to five miles out from such cities and villages, and at the intersection of all such roads in his township as he may deem necessary. OVERBEERS OI EIGHILYB e 34-. Overseer _t_o_ be Chosen B Each Road District. There shall also be elected at such meeting (the annual township meeting) to be chosen viva vch, or in such manner as the meet- ing may direct, one overseer of highways for each road district, and no elector except a resident of the district where the overseer is chosen, or an elector of the township having taxable property in such district, shall vote for said overseer, and as many poundmasters as the meeting ma direct: Provided, If there shall be but one road district in the township the overseer of highways for that district shall be elected by ballot in the case manner as other township officers are elected: Provided further, That the township board may, by resolution, direct that all oversecrs of highways in any town- ship shall be elected, in their respective districts, by ballot in the cue manner as other township officers are elected. dot sec of 1909, , 611. 1111, Sec. 6, being part of parasraph stat, as amended by dot :12 of 1917. 35': Overseer 1‘21! 3; Resident 2921...! of District. lo person shall be eligible to the office of overseer of highways who is not a resident taxpayer in the district for which he is elected or appointed, and no person shall hold the office of cmissicner and overseer at the ease time. 31,. over-em nmmnmmgmn MAI! Lug Bridges. The supervision of road work and the repair of highways and bridges shall be under the charge of the overseers, subject to such directory control of the township board and highway ccuissicner as is herein prescribed: Provided further, That upon complaint in writing to the township board by any ten or more resident taxpayers that the road repair fund is being unequally and unjustly applied, or work improperly performed, the township board may direct the expenditures of such road repair fund or the manner of performing such work: Provided further, That not to exceed twenty-five dollars shall be expended by the highway commissioners in any one year for tools or machinery, without the consent of the township board: Provided further, That not exceeding one hundred dollars shall be expended from the road repair fund on any one mile of highway, unless otherwise directed by the township board. 217-; £955 Maire _t_g be Completed icptamber Pirst. dork to be paid for from the road repair fund shall be completed on or before the first day of September in each year: Provided, . That not exceeding one-quarter of the amount of such tax may be kept by the highway commissioner for later necessary repairs, or for plowing, rolling or removing snow in winter. (‘- (b Ur) cm 111. suspicion m OPERATION 9}; TOWNSHIP ROAD uws. the State constitution provides (laws Pad), for the election of the Township Highway commissioner at the April election each year. It is the purpose of the writer in administering this project, to maintain files of information from which valuable statistics may be compiled. In line with this there is obtained after the Spring elections each year a complete list of the results of these elections. his list when complete furnishes not only information regarding the current personnel in office, but also a record of the changes or turnover in these offices. In some of our Counties the affairs seem to run more slowly than in others so that the results of the 1927 elections are not complete. the figures for the year past are complete however, and show some interesting data. It is hoped that the accumulated data may be kept over a period of years so that the figures thusclves may be used in our later suggestions to stimulate proper thought and activities toward a more sound township Highway policy. the following tabulation by counties shows the information compiled to date on the changes in the office of nighwq Commissioner. This will show the total number of townships in each county, the umber and percentage of highway ‘ I: ti 1 conicaicners not returned to office in 1926, and an incomplete but enlightening record of the changes in the present year. 1 mall percentage of the tomshipa had not reported in 1926. these are not listed as change. ‘ fetal Ember Pcrccnt- lumber Per cent- lmbes' of By. age of By. age county gps. figs; changed 3:23:11 changed. 192.6 1937 dloona 11 '7 6d 6 55 Alger e 4 cc 7 ea illegan 84 'I 29 dlpena 8 3 37 d 60 intrim 16 d 87 4 2'? drama 12 d 35 6 50 laraga 5 4 80 4 80 Barry 16 5 51 d 85 Day 14 d w 2! Bowie 1! 2 1'1 6 60 Berrien 82 8 so Branch 16 10 65 9 66 Calhoun so 8 10 Case 15 ll VS 9 60 Charlcvoix 15 5 83 cheboygm so 11 65 Chippewa lo 9 so Clare 16 8 60 Clinton 16 5 81 Orawfond d l 17 d 67 Delta 14 6 d3 Dickinson 7 e 57 Paton 16 8 SO fetal Ember Percent- Number Percent- lmber of By. age of 3:7. - age county 0rips. 2m“ changed gmd ' changed. 1926 1987 hot 16 7 dd 6 38 Genesee 18 7 53 Gladwin 16 6 31 dd dcgebio v o 71 e 57 dd. Reverse 13 8 6a Gratict 17 6 cc lillsdale 18 6 36 ll 61 loudlton 16 7 50 6 d3 Huron 26 d ‘ 1d Ingham 16 7 dd Ienia 16 7 dd Iosco 11 d 56 Iron 7 z . 89 6 71 Isabella l6 8 60 Jackson 19 10 66 Kalamasoo _ 16 6 37 d 25 Kalkaska 18 5 es 5 d8 Kent 84 6 85 11 d2 Kevenaw 6 l 80 2 d0 Lake 16 5 33 6 d0 Dapeer is e as s '17 Leelanau 11 3 87 5 27 Lenawee 22 7 58 fetal lumber Percent- Ember Percent- lumber of By. age of Hy. age cm. .i... 323:; “W“ 32%; ““3" 1926 1927 Livingston 16 d 86 ' 8 60 Iuee d 1 86 3 76 Mackinac 11 d 66 66 l Iaccmb '15 s so [undated 1d d 19 2 1d larqustte 19 10 ca 16 79 [soon 1d 2 1d lecosta 16 d 85 Menominee 1d 6 d6 . Midland l6 7 dd liesaukee 16 6 do 6 66 - lonroe 16 d 87 lentcala 80 9 d6 nonworency 6 d 60 68 Huskcgon l7 4 u s is lewaygo 3d 9 67 Oakland 66 11 dd Oceans 16 B 12 6 61 Oguaw 1d 7 60 Ontonagon ll 9 8 7s 7 cc Osceola 16 d 86 6 66 Olooda 6 2 66 2 66 Otsego 10 s so fetal Number Percent- number Porcent- lumber of By. age of By. age of Coma. changed Oommrs. changed County prs. changed changed . 1926 1927 Ottawa 17 6 16 6 63 Presque Isle 1d 6 66 6 43 Bessel-con lo 7 70 Saginaw c7 7 cc Banilae 26 6 19 Schoolcrsft 8 6 57 Shiawassec 1. 4 25 c as St. Clair 36 6 68 St. Joseph 16 5 - 19 fuscola 36 d 17 8 66 Van Burcn 18 6 66 Washtenaw so 7 66 Ieync l9 7 67 icxford l6 7 dd 6 66 Totals 1896 4.66 6086 863 1870 Averages 16.6 ~ 6.6 67.8 6.7 “.7 W These data based on information thus far- available show an average of more than forty percent turnover each year in the office of highway commissioner. It is also a record of conditions existing in a great many townships; personal prejudice, selfish interest over community interest, and the ebb and flow of facticnal differences and local political strife. These clanents disrupt the continuity of these offices. It may seem to the casual observer that new talent each year makes for healthy highway conditions, and in awe cases the change is an actual advantage. All too frequently a candidate is elected to office of highway cosmissioner because under the past seasons regime he was unable to get attention to the roads in his immediate vicinity, and he took this means to insure the efforts on hi; roads for the current year. the past commissioners had their own sections to serve, and to satisfy each section of the town- ship, a representative of each is rotated in office. Consistent progress on a township road system as a whole is next to impossible with this line of reasoning. The results are that short patches of roads have been semi- improved, promiscuously over the system. The improvement is not continuous or consecutive and frequently is allowed to disintegrate for lack of preper maintenance. This practice is so evident in some sections that it is only necessary to drive over the township system and pick out the most recent improvement work to locate the home of the highway commissioner. When those local sections have been completed the interest of the comissicner lags and from the results accomplished over the remainder of the year it is often deemed advisable by the whole community to put a new candidate in office the following year. This is far from economy and efficiency. In a single year, with do to 100 miles to administer, with little or no previous experience in construction and repair of reads, it is hardly probable that the incumbent commissioner can do much more than attend to drastic needs and learn the character of and remedies for the probluis confronting him. The frequent annual turnover in this office means that the public are realising for their money only the poorest and least efficient of this officers service and not building experience that .will later enable th- to get the ultimate value for the dollar. For the first year of office, the road money is literally and actually spent largely for the education end develOpment of experience for the Highww comissionor, and with the frequent annual changes in this office it would seem that a great measure of the road funds are thus spent toward education and little benefit realized free the results of this education. There are also elected each year (Par. 6) a number of overseers of highways and in some sections there are also elected certain path-masters (Act 866 P.A. 1916) whose duties are (according to the set) provided for by law. The N.“ pt intent of the provisions an clear but the actual provision of duties and powers are vague indeed. In a number of townships visited the path-masters were in nmber from two to sixteen, each assigned to a district and drawing his pro-rats share of the apprOpriated funds.to administer in his own way. The commissioner (upon whm the responsibiliw rested) in entering the various districts to check up on the work done, offers suggestions and otherwise attupting to administer his office is frequently told that path-masters or overseers are also elected by the people and are not responsible to the commissioner, that they will function according to their own dictates and in the interest of their own individual neighbors. Ihs oomissioner is frequently told, in no uncertain terms, to go his way, and has no effective recourse in bring- iq pressure to bear to gain his desired results. The peeple won who. his own office depends are selfishly interested locally, and has the comissionert's hands tied. It is believed that it was the intent of the m and constitutional provisions that any path-masters or overseers in office should work under the direction of, and in harmonious relationship with the Township Highway commissioners, and that the Omissioner in turn should carry out the needs of the township as a whole as expressed by the township Board. Any organisation the responsibilities for which are placed upon the head, and whose head has no powers over the under-personnel, is unsound and will not function efficiently, economically, and in the interests of the community as a whole. Par. 31 of Laws states that the improvement money should he spent under direction of the Board which means that the improvnent work should be under said Board's direction. ' Par. 84 states that the overseer is to have supervision ef work _i_n _t_h_e_ absence 31 illness, etc., of the Highwg emissioneg. This provision does not seem to make this officer 'lord of his domain' as far as the highway affairs of his district is concerned, but should imply the utmost in studied ec-eperation toward given ends. I ‘ Under the existing provisions there is room for efficiency. A study of the laws would impress one with the thought that, if they were lived up to literally, there would be a smooth-working and an efficient organisation. They are sufficiently plain in their interest. However, provisions for the regulation of local matters which are administered locally seem at least to lack the 'teeth“ which would enforce good practise uniformly thrueut the state. - There has been an effort made to prescribe the attitude with respect to highway improvement work. Par. 86 of the laws provides that Work, except repairs, shall have in. view penanent improvement." Where any improvement money is raised at all, this provision in itself should assure progress in proportion to the funds raised. In.the face of this, in the majority of Townships, this progress is not evident. If there is a division of opinion as to when the 'so called" permanent improvements are to he made, the improwement money is frequently changed over (by approval) to the repair fund. _Repairs may be anything from patching a hole to actual new construction.provided that the maximum allowable money per mile is not exceeded. The Commissioner or district overseers administer the repair funds and with proper amounts of pressure and pursuasion this may be placed anywhere and in any manner. The usual effect is that by such an.attitude the whole township is deprived of any actual progress in improvement work on.the system as a whole. If there was sufficient importance placed on the enforcement of this provision.and the path.made clear of politics for this to function, progress would be evident in some degree. The writer has had occasion and opportunity to study conditions in a large number of representative townships. while most of these occasions were voluntary and in.the line of daily contacts, several were the result of special invitations frmm individual taxpayers and rural organisations to assist in analysing their particular situation.with a view of improvement thru.suggestions presented by them to the public officers. The situations which they recognized and to which they took exception were shmilar to those which have existed unquestioned for years in a great number of townships. The fact ‘1 that the questionable practices had been recognized in a few townships was evidence of progress (of thought at least) in these. The legislature of 1915 passed an act, one chapter of which ( Chapter 26, Act 866, LA. 1913) provided for the office of Pathmaster. This served in many cases to so distribute authority in the expenditure of Township Highway funds, even with responsibility still on the Commissioner as to make progress practically impossible. The fact that in most town- ships this practice has given way to the "overseer" plan speaks volumas against the Pathmaster system. However, there are still far too many Townships where pathmasters are elected. Those oomunities where this practice is still in effect are in most cases ones where little progress is evident from year to year even tho the highway funds raised each year ranks well with the average over the state for similar counties. In a few isolated cases a fair measure of progress has been made, not in spite of, but due largely to the pathnaster system. In these townships, however, a keen public interest was evident in the minds of the pathnastsrs in office. They seem to be working with more or less of a unified idea, and a concerted effort toward some measure of continuity of improve- ment work. With this commendable attitude much work could be accomplished by an un-organired mob. In one particular township, the board testified that they had tried all methods of administration open to them by law and had reverted to the pathmaster system. They reported, and their road map bespoke the fact, that all other means had failed and that actual progress was being obtained under this system. A discussion of the conditions in this locality with disinterested but well informed observers led the writer to believe that their present progress was not due to the virtues of the pathnaster systu as to three other factors. first, - The community had spent previously an appreciable sum annually and had received so little in return that the attention of every taxpayer was focused on results. ‘ Second, - The entire township was an evenly distributed, productive agricultural area, and the highway needs practically the some over the entire area. The fact of equal needs coupled with equal valuations and similardeconomic conditions of the residents, made necessary a development over large areas. mire, - the attitude of the prevailing nationality called for a widely distributed popular control of affairs, and a natural aversion toward allowing any unified authority in the control of expenditure of moneys to which they had contributed. That results and some degree of progress is being obtained under any system is indeed commendable. However, this township's results would not, in the writer's opinion, place them in the position of a model ‘xfor the other tomships to emulate. in analysis of their progress showed that, under a thoroughly sound system of highway administration, results 2.5 to 40% in exeess that obtained at present is far from being impossible. Should the board of directors of a private corporation pass resolutions defining that their executives must show preference by upl‘cying certain persons regardless of their qualifications, and still expect these executives to show economical progress, it would be expected that the respect of the organisation for their governing body would innediately cease. In the face of this logic we find in Paragraph 85 of the legal extracts, a provision that |‘ll’ersons assessed be given preference in performance of work”. It is commendable of a good number of townships that this provision has lost its force. The persons entitled to this preference have been educated to the proper belief that economical and efficient results are obtained only by experienced members of m organisation whose interest and attention to this public work is primary and not secondary. There are still tomships however where this preference is demanded. In these places the persons interested ascertain the amount of their assessment, and obtain free: the township officers a "road warrant“. This instrument in one eolmn states the number of hours of either team or individual work which the person is entitled to. In another eclnn there is provided a space for recording the number of hours of work done. There is scarcely an exception to the fact that these two eoluns always balance, that the hours of work done is always the same as the hours of work allowed. Considerable of this "work done' is questionable as te eeonuical productiveness. The writer has listened to -;- U statusents of the offenders themselves, made boastingly as to the way in which they had I'put in their time". The accomplishments boasted of showed some typical examples as these:- Going thru the motions of the work, but consciously 'soldiering" or inefficiently performing. Entire half days spent in sociable conversation over a ing of cider, usually in some shady spot. Hours spent in friendly chat on the road with the team hitched to the road scraper. This is a cos-son occurrence and may be seen by anyone driving the public highwws almost any day. . Hauling short loads of gravel or other surfacing material. When the teams should be able to haul fru one to 1% cubic yards of material, wagons are brought to the Job the capacity of whose boxes are only a fraction of this -ount. It is easily seen that half capacity leads will double the cost of getting this material to the Job. These offences are all comitted by persons whom the couissioner responsible for the work may not discharge. The generalship of Hapoleon, the persuasiveness of Webster, the fortitude of Job, and the psychological understanding of llackford would all be required in a single mind to accomplish economical results under such handicaps. The methods employed to accomplish items of improve- ment work are nearly as varied as the number of the personnel. The practices w these large nubers of inexperienced men, each operating independently, are such that large sums of money are practically mated each year. liles of gravel, hauled long distances by teams and hshdled under costly methods, is placed on roads upon which no preliminary work is done. The grades are narrow, there is no attempt at proper drainage, the gravel is duped 'a load in a place”, and the surface left with such a crown .. to make travel unsafe. These factors, coupled with faulty aligmmt, bring about conditions which show up particularly when the road is to be properly improved. When the alignment is corrected and the grade and drainage is taken care of, it is often found that a large part of the efforts and materials have been wasted. The interference with the needed progress is not only seen in the material side as mentioned before, but the local political factors contribute their share. One common example of this was seen in a ‘Thmsb' county just recently. Each of the many overseers in one township had a particular imprcvmnent project which he was fostering. Each ones' interest being local and not for the good of the township as a whole, each one voted for his own project and against all the others. The results were that not one of the projects gained a majority vote, and the road money all went into the repair fund. The foregoing are a few of the admitted difficulties encountered in adsinistering township road matters under the ,(‘ e‘k‘) existing provisions. The casual reader may get the impression that the viewpoint is rather pessimistic. The actual value received per dollar of road funds invested in the last decade makes the outlook under present conditions indeed pessimistic. The problem is not impossible of solution. Suggested revisions toward a more sound plan of operation are offered in the next chapter. CHAPTER IV. SUGGESTED REVISIONS . Die suggestion of revisions usually brings to mind more complicated legislation, amendments to present laws, and otherwise making the political structure more pondcrous. It is the writers opinion, and that of a great many others with whom he has conferred, that it is necessary to simplify rather than to ccmplic ate matters. Several plans of revision have been suggested and discussed, but only one thus far means to stand the test of soundness of policy. Some of the other factors will be mentioned that their relative merits may be discussed. One plan was presented by a member of a county association of township highway officials. These men had recognised the fact that the first year in office the services of the highway comissioner were in most cases costly and inefficient, am that if repeated in office at least for a second year, there would be some Opportunity for the township to capitalise on the education and experience gained during the first year. The plan which they presented called for an meand- ment to the constitution changing the term of office of the highway commissioner from one year to a two year term. This suggestion showed thought in the right direction, and in a fair number of townships this change would be an advantage. This one change, however, cannot be expected to 1,71 P:- make sound a system in which there are still left so many avenues for deviation. In a large number of townships in which personal contacts were made, the application of this change was kept in mind. Observations indicated that with the twa year term of office the second year would prove to be a period of little progress. When the present incumbent had completed improvements to his liking on the roads in his mediate vicinity, and patched a few holes over the rest of the town- ship, his interest in the office mould have waned. Progress on any definite system would be at a standstill. All too many of the comiesioners take office with a single track purpose and an attitude of vindictiveness. fhe past commissioners did for thuselves and the present officers have in mind primarily eatching up on favors before the rest of the tomship is eonaidered. In townships where the commissioners are far-sighted enough to look to the needs of the township as a whole, the two year term of office would certainly be a decided advantage. Another plan suggested was to change the time of election of highway commissioner to the roll rather than Spring. fhis would enable the officer elected to put a little thought on the problems when time for thought was available. Then, having made his study of the problems and having determined upenhow he is to meet tha, this usual first year of and inefficienty is made productive of some results. This plan too has a great deal of merit and is an improvement upon the present systas. Still there would be no control of accomplishment, and no assurance that the improvement work done, if any, will be on any unified system or that there will be any continuity of effort toward any definite goal. The la provides that the duties of the highway commissioner may be regulated by the legislature. With this in mind another plan was presented; that the legislature be asked to relieve this officer of any active duties, and that the work of the townships, especially improvement work be done by contract. he cmissioner could then act only as an inspector for the township to make sure that the specifications of the township were carried out. It is felt that in a great many townships, this plan would workout as an improvement ever present standards of workmanship and greater ultimate economy. This should not be the case. When a connunity is spending its own money to effect improvements to £111 . local need, the local interest should make the standard of wormenship the best. From the stand- point of economy, the township in doing its own work could, with the margin of profit expected by any contractor, increase the mileage of improvement or reduce the cost of any given mileage by this amount. Lot No. 208 of the Public Acts of 1925, offers legally another solution to the difficulty. This act, in essence, provides that the township may enter into contract with the count? load Omission of their county for the improvaaent and maintenance of the township's roads; that the. money raised in the ordinary way in the township be paid to the County for this {:1 e o 'x a 7' m C r) work. l1'he county may use its own equipment on this work and charge for the use of this equipment according to the State rental. tables. There is a further provision that if the township is' in any way dissatisfied with this arrangement it may terminate this contract upon action of the board and ninety days notice givm the County. The fact that such a bill was even considered by the ' State legislature was evidence of a recognition of the short- comings of the present qstm. In the writer's opinion this measure is a step toward eventually relieving the townships of any control over these roads at some future time if they are not more soundly administered by the townships. d stuly of the effects of this bill showed that in the year 1926 only one township (Alpine up, Kent County) had submitted wholy to a trial. This arrangenent covered only a one year trial. Whether they will continue this year is a matter not ascertained to date. With the more efficient equipment and the greater experience of the County organisation, it was only fair to expect that a greater mileage of roads was kept fit for travel than was possible under the past systn. his was accomplished too at no increase in the road funds raised. A umber of other cases were reported where township and county had entered into agreement for the improvement or maintenance of certain of the township's roads. This was provided for under Section 12 of the sme act. lhe fact that the provisions of this set were not mere universally aceepted.by the townships seams to be proof im.itself that, as a remedial measure, the act is not filling the need. lend-mentally it is substituting aiother organization whose interest in.the work at hand.may be been, but whose interest in.the welfare of the community cannot‘be expected to equal that which we should expect of the township. sore regarding the possible work or the counties on these roads will be touched upon.later in this thesis. Considerable criticism has been.offered on the functioning of the present form of township organisation, and the shortcomings of several of the suggested improvement measured analysed. It seems now in order to present a conception of a more or less ideal township organisatiom.wbdch will stand the test of economic soundness, and which should function as efficiently as it is possible to expect of political bodies. given with these revisions there will still be possible leaks, political prejudices and acne avenues of waste, but it is felt that if carefully followed out in principle, and functioning along lines which will be discussed later, that a tremendous increase in the amount and quality of improvement on these secondary roada4will be possible at no greater expenditure of money. It is also conscientiously felt that, with an organisation which is sound and with the operation of a plan which will show a greater return in results per dollar invested, there will be built up a community feeling which will go far toward eliminating petty politics and factions]. and sectional differences. ' y, t} he plan say seen somewhat drastie, however it is actually as simple as it is reasonable. Briefly stated it will entail the following: An amendment to Section 18, Article VIII of the state Constitution which will cause to be stricken out the portions which cause to be elected each year "one eosnissionsr of highways, and one overseer of highways for each highway district". According to the information received, it is the custom in this state for the Governor to appoint every sixth year a ceuittee to consider and submit such asendments to, and revisions of the State Constitution. The year 1986 was the end of the last six year period, but the fact that nothing has been done in this direction for a considerable time back might be reason for such a step in the early future. A substitution for these officers will be provided for in the personnel structure of the organisation outlined. Any subsequent legislation regulating the powers and duties sf Highway couissioners, highway overseers or path- sasters should be repealed. lither by constitutional slendment or by legislative enact-ant, there should be provided that the township Board of each tomship shell, in setters pertaining to the highways of their township, act as a Board of Township Highway Ocmissioners in such the ease manner as the Roards of county Road commission- ers in the sefera‘l. Counties. fheir duties and powers shall be prescribed by law. he Township Board should then appoint or employ in each Township a Superintendent of highways at an annual or 1 monthly salary consistent with his experience and abilities and 't the duands of the position. Only such a Superintendent should be empleyed whose abilities and experience will assure efficiency and full vd. us for the money to be expanded, and his period of service should continue as long as he continues to render satisfactory service. Bis powers and duties should be prescribed by the township board, and he should act in co- operation with, and carry out the .will of this board. This position should be free of political influence, and its operation should be for the interest of the township as a whole. {the township Board should hold the Superintendent strictly accountable for the efficient and eeonomical progress of the work under his direction, and may, if in accordance with their Judpent and the interest of the township, discharge the Superintendent should he fail to render satisfactory service and «ploy another who can give satisfaction. The Superintendent should then be empowered to enploy such labor forces as are necessary and advisable for the efficient progress of the work outlineJ. The employment of labor should be on the open market and on the same basis as private industry with- out regard to influence, residence, amount of property owned or taxes paid. The Superintendent should have the power to employ or discharge any mkbcrs of his labor organisation according to his discretion and the efficient prosecution of the work. The assistants employed by the /s upcrintcndent should be paid on a per dcim basis and should be held only in sufficient numbers and for such time as actually needed for the satisfactory progress of the work. This is all that need be said regarding the personnel. the organisation is far more simple and should function for more efficiently than the present one. It is fundamentally sound, and the legislative provisions to make it possible could be simple, direct and easily understood. Even with a soundly perfected personnel organisation, in order to insure the uniform and economical progress in township highway matters thruout the state, it is necessary that the operations of this organisation be further regulated. Briefly, the regulations should consist of a definite plan of action, and a definite program upon which to work in order that the projected work on the plan is to be carried out. The reasons for these elements will be obvious when a few points are considered. The past operations of the State Highway Department offer a good example in this. Just a few years back, the construction of State road projects was as promiscuous almost as is the case with the townships at the present time. Short pieces of road were built "hit and mice" in various parts of the state with little regard to their continuity on any given system. i'hc results were that little progress was notieable under this practice. It was only after the State had adopted a definite Trunk Line system comprising what were to be the primary routes of the State, and confining their construction operations to these routes, that actual progress was evident. Ihile matters of methods employed and some other factors in ' '1 a") State highway matters have been questioned in the past, the fact remains that the system is fundamentally sound, and the progress made has placed this state in an enviable position song our sister states. 1 Following the adeption of the State Trunk Line system, it followed as a logical sequence that the counties should formulate a system of county roads to supplement the state system. These routes were outlined with due regard to trunk line locations and to the outlines of the surrounding counties. It was necessary that the county systems be approved by the State. The counties caused the projects on their routes to be properly surveyed, and are proceeding logically in their improvusent work in a definite program according to the importance of the projects and the funds provided. The progress in the counties is such that with few exceptions, they can point in the near future to the end of their actual construction Operations. The prs-Jects on their systems will have been completed, and their ms: or operations reduced to problems of maintenance. not until the State and County organisations had actually outlined and adapted such definite systans, and applied their improvment programs logically and consistently on these systacs, was there any marked and apparent progress. If these . factors were necessary for results for the State and County organisations, they would sen doubly necessary for the Town- ships where the control is spread out over six times the mileage and fifteen times the masher of organisations. It is suggested as necessary and fundamental that the Boards of the various townships actually prepare a map of their townships. This up should show all the road locations within the township regardless of their character. On this map then should be laid out the State and County roads as they affect the township. These State and County roads are the primary routes, and in order that they be accessgble to every resident of the township, there should be worked on the township road locations a nets: of $323.2! m, laid out in such a way as to serve the most peeple with the fewest miles. 1o give force to such a township system it may be necessary and advisable to have the system formally adopted at the town meeting. It should be made necessary according to law that a copy of this map be filed with the Board of County Road Comissioners, and at the end of each construction season, that the season's improvement work be posted on the County's cppy as well as other copies. The mount of improvement work posted each year compared with the amount of money spent for this work would serve as a check on the value received. The Township Feeder routes should be surveyed by a competent surveyor in order that they be placed in their proper position in relation to the Government Land Survey. The survey would eliminate the necessity for changes in location after money had been spent on these roads for improvement or heavy repair work. With the location definitely established, any proper work done on these routes, such as grading, drainage, etc., will serve as a step toward final improvement. R!" With the map prepared and approved, and the routes established, there should then be ascertained the amount of money available for improvement work each year. Knowing the nature of the improvement work to be done and its approximate cost per mile, there should be established a definite program of improvement work. This program to cover a period of years accordingly as the amber of miles possible of improvement in one year is contained in the mileage of the entire feeder systn. fhe improvement program should also be adapted formally at the town meeting. fhe improvement projects on the feeder routes should commas in every case at their Junction with the primary roads, or at towns or villages, and continue outward into the country. In this way the routes will gradually be made to serve more and more people, and as each is reached, the entire distance to the primary roads will have been improved. ' his practice may can like slow progress especially in those townships where a very little money is raised each year for improvement work, however, as small as the sum may be, if applied religeously to this systn and according to a definite year to year program, results will be apparent in a period of years. In tomships where progress seems most hopeless, an analysis of their espenditures over the past twenty years will show that if they had applied this money in sane such sound and logical way as outlined above, they would have today from ten to twenty miles of improved road on their system. It is only in this way that they will ever even visualise the end of their improvement work. If no change is made in the personnel organization ministering tomship road matters, it is still more essential that some such plan and program is adepted and followed in order that continuous and economical results may be assured. To aid in eliminating poor Judgment in improvement werk, it should be further provided that the improvement pro- gram as devised by the townships be submitted to the Board of County Road Commissioners for approval before any funds are emnded. The revisions suggested in this chapter, while drastic, are not radical. They are extranely rational, they are sound, and it would seem that they would be easy of accomplish- ment. They may need to be enlarged upon or may need further revision, but they will form the elements of a system which will be productive of results and economical progress, and are food for a tremendous mount of constructive thought. If some such sound policy is not pursued by the town- ships in administering their road matters, it is felt that the time is not far distant when this work will be taken out of the hands of me townships entirely. It is easy to convieve cf the adoption, by the State Highway Department of both a primary and a secondary hunk Line systn; the primary system to comprise the routes on the present trunk line system, and the secondary system comprise the routes which are at present defined as County roads. All the rest of the mileage of public highways then shall be considered County roads, and as such ("a m ‘ pl will be‘ administered by the county organisations. This step 3.22.1.9. be considered drastic, but seems who the only alternate line of reasoning. 0n the following pages are sample township road maps laid out in accordance with the principles outlined in this chapter. The following rownship road maps Figures 1 to 11 will show what is meant by having the township routes mapped out into a system in order that they may be improved according to. some definite program. Figure 1 shows the efficient manner in which the township system was laid out in Folkton Township, Ottawa County. The comunity is primarily agrio ultural with the village of Coopersville as their shipping point. The road system seems to indicate that this market is easily available. Figure 8 shows the layout of Township roads of Alpine Tomship, Kent County. The roads in this township were under County maintenance in 1926 under the provisions of lot 802, P. A. 1925. This practice seemed economical and successful in this township the year it was tried. It is not .known whether they will continue in this way or take the roads back under township care. Figure 5 shows the.road map of a township in which every farmer in the township will be supplied with an inproved road to market. The system was worked out so as to accomplish this with an absolute minimum number of miles to the system. A n h ,3 Figure 4 shows (in red) the layout of the Township Feeder system in one Township. For years they had been spend- ing nearly $4, 000.00 annually ahd had practically no improved roads to show for their efforts. After working out this system it is planned to spend $5,000.00 per year on a definite improvmnent program. Figure 6 shows ever 6 miles to be built by the end of a two year period (narrow black lines). Figures 6 and 7 show prcgress at four and six years respectively. At the end of the sixth year nearly 14 miles will be completed. Progress will show up only on a definite plan and program. In Figure 8 is a typical Township condition where roads have been built in short stretches promiscuously over the township and not a part of any general plan. Figure 9 shows the way in which all the improved patches were incorporated into a general plan of roads that actually served. In Figure 10 the Iramship represented was well supplied with mileage on the promary road systems. The Township was low as to valuation, little agricultural, plenty of cut-over and burned lands and no township roads. One small and a part of one large lake were within the borders, as an as a few streams sbounding in fish. The lakes and streams were inaccessible in many places by way of the primary roads. The lay-out and improvement of the tomship watem as in Figure 11 makes both lakes and streams accessible to tourists and sportsmen, made way for purchase of cottage sites, increased valuation of the lake preperty and made a ready market for garden farmers. Much can be done by intelligent work in this respect. ... I, +\- a4: _—,-____._.__. - .. 0 7 7‘ 5714/57 (@z/xyf/ 7‘0 W/VJ A0,” €090 M550 .__4— ______. ._..—._.“ P oz /K 70/)/ 7‘0 W/YJ/W/P TJ _ _ _ / z 3 4 . . / / 2 or o .1 stilt...» IIIIII 1 m V n N . . Nu Yr 2 . ,... \m e “Spooks?“ ) V I. l ' I. II II IL AI lllllll *l lllllll L annemfi \ k >x 00b w _ a, . e ,4 _ ,.., A _ In _ _ . _ _ K \n e. s _ \A ---..-,.----..I _ \.. \ _ _ \ \ . _ _ 4, _ \ . x \ . _ \ \ . . V \\ _ _ _ \ I - I - I .. l T IIIIIII _ fl _ _ m . _ _ . _ a J . _ _ _ _ . _ _ o e v . r _ u m u /o o . 8 0 _ I: 7 . / 5 9 3 _ 3 . / _ . _ v _ w 1— d 57/975 74. Coy/vfr Po. 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A , ‘ W I - x '\ ‘ , L/ ,/ I"; x", , - . , V ' 7/ , A , , _,-- / “ * L I / I—*' r". 1' I" / \w I ‘I \J {AI/,1 / /_../:;,/ 7- ),/ fix; ‘9- (V! 4/ I” I / (_,,v I \‘ MA»? 49,»: 72:2 LV/VJ/QV.” 37,93 .5 K: I'E-M - 5 r9725- Poem — C (Du/V f)"/c?0,49;7_5 7w p ,--'L“’om;9; —- — ~ - — ~ 5;: (f/[A’ ~15 75W/Yj/4/AD (2/5- CJZ/flf/V 67/; fi/flfl 0P 7'0’W/Yjfl/P flayfl J K5 7.57% I "s _ 5 7/4 74:: L" Cu‘fi’Zi‘vff; a ,/‘ 7 -1" . — g Lia/yr r /€' 04,315 "a ‘7" Ir‘ — / W73 ("c-x9475 ' """"" 3—51 2‘ :, xv KIN/.53 CHAPTER V. SUGGESTED STANDARDS . With the legal obstructions to good practice removed, a sound organisation developed and operation on a pro-arranged plan and program, it is time new to consider some standards by lhich an be obtained unifonn good results. It is not the intent of this thesis to offer a manual or handbook containing instructions in all the operations on township road construction and maintenance, but to comment upon some of the factors felt to be important and which are frequently overlooked. The importance of preper alignment of township roads does not seen to be recognized. The alignent has to do with the following considerations: Iii-It, - The prOper location or the road in relation with the Government land survey. Second, - The relation of the road location to abutting property. Third, - The relation of the road location with the existing physical features which affect the economy or- construction and the safety and convenience of the travelling public. Much the greater portion of the mileage of township roads is made up of so-called'section line routes. On these routes it is a comparatively simple matter to preperly align these roads in accordance with the section markers established by the Government land survey. When it is found necessary to deviate from the established section lines due to physical features, grading costs, ssfew, etc., it is still more important that a proper survey be ads. The amount and nature of encroachment upon the abutting prOperty should be determined and satisfactory arranguents made with the owners before any funds are spent on actual improvement work. Observations have shown that nunerous difficulties have resulted from indiscriminate placement of improvement work, and the result- ing costs and dissatisfaction would indicate that a proper center line survey would prove not only more sound but more economical as well. The important factor in favor of preper alignment and grades is the fact that improvment work intelligently done need not be repeated. A grade built, even though it must runain unsurfaced for some time, is a step toward final completion of the improvemmt. If extensive work is done and later the line or grade must be changed, the cost of the first operations is practically wasted. After the projects are surveyed a plan and profile drawn for the improvement would aid materially in the uniformity of the work, and should aid those responsible for the work in its efficient planning and execution. The centerline of'survey should be plainly marked by stakes offset sufficiently as to be out of the way of excavation operations, and at intervals not to exceed 100 feet. The plan and profile should refer to these stakes. Ihe plan.should show the centerline of’the survey, and in relation to this the fences, preperty lines, drainage structures, trees which.may affect construction, and other necessary topographic features. The profile should show the ground line, new grade line, and.figures to indicate the canterline out or fill, and cut or fill from.side stakes to the new grade. It is also usually a.hclp to have shown the cross-sections at each stake interval and indicate thereon the position of slope stake points or outside limits of construction work. It sample print of plan and profile is shown herewith. A brief study will show its value as a tentative standard for surveyors of township roads to follow. (Pocket in'back cover). his a.result of ouservod difficulties in the field a few limits are suggested in.the specifications fer improvement work. The grades should be‘built full 24 feet wide for reasons of utility, safety and ultimate economy. The final crown in the 24 foot roadway should not exceed 9 inches. Excessive crowns are needless, thoy are dangerous, and serve to concentrate traffic in.the center of the roadway and not utilising the full width. . . Ho culverts should be placed which have a diameter of less than.lz inches. Observations have shown that sises less than this are poor economy. The matter of surfacing on township roads is entirely an economic question. A road should be surfaced to meet the traffic requirements economically. When a road surface can no longer be maintained economically under its present traffic danends then it should be advanced to a higher type. Frequently it is found that the cost of maintaining certain roads having poor surfaces or no surface at all is greater than the interest and amortization charges on sufficient money to adequately improve it, or advance it to a higher type. rigures 18 to 20 adequately describe certain maintenance practices usually abused and corrective and preventive measured to be employed. These are from a study of practices worked out in Ionia County. I“. A A ._..-‘- '5 it - a A ' u t .. 1 , . 4 4 n . -e I ,, . . . ,v . 4 a \ . CHAICEER VII. ASSISTANCE TO TOWNSHIPS. Until a few years ago it was possible for the townships to obtain some anall assistance from the State under so-called State Reward. The Township would, after having had their application approved, build their road projected up to certain specifications. A certain sum of money per mile was then paid to the Township by the State toward the construction cost. Then six percent of the reward was paid by the State each year as a maintenance reward provided the maintenance was satisfactory to the State. The tremendous sums necessary for State Trunk Line construction and maintenance in the last few years has led to the abandonment of the State Reward practices. The State Reward roads were usually built by the townships on the primary routes. The. present day functioning of the State and county organisations has done away with the necessity for this activity by townships. The Covert Lot or Assessment District plan aided the townships in sane respects. This Act enabled the abutting property owners along and near a given road project.to raise money by bonding or otherwise for the improvement of their road. Frequently the County would bear a share of this cost and would later take the road over for maintenance as part of the Gsmty system. Other than these two ways there has been no general aid given the township. Certain counties have Specific arrangements offering some help to their townships. The Board of County Road Comissioners of Huron County sets up a fund each year of $1,500.00 to be paid to townships under a sort of reward system. Not more than $500.00 is paid to any one township in the year, and not more than three such rewards are paid in am year. For the township to be eligible their application must be approved, their project must be surveyed, and they must build the road up to reasonable specifications outlined by the county. While the actual financial assistance in this case-is mall this practice has done much toward stimulating progress and good workmanship. Assistance by the counties under the provisions of . the Kirby Bill, Act 208, P.A. 1985, has been discussed previously in this thesis. The fact that so little interest has been shown in the possibilities of this Act would lead one to believe that it has failed to meet the need. One plan presented at the Eaton County Township Good Roads Association by one of their members had considerable merit. It was suggested that the townships, after adopting and gaining the approval of their plan and program, prepare the grade and drainage structures to certain specifications after which the county would assure responsibility for the surfacing. The matter of maintenance could be taken care of by either the county or the township. Where the county is in position to take on more mileage on the county system this plan would offer an Opportunity without the tremendous responsibility which would be incurred by taking over townhsip roads "in the rough". The assistance of the College has been of necessity confined to an advisory capacity. In the past year meetings were held in 45 counties to which were invited the entire township boards, the county road organization, and any others who were interested. The meetings were in general well attended. The meetings covered five to six hours. The entire problem of organisation and practices was taken up, slides and motion pictures were exhibited, and sufficient time given to open discussion of the subjects at hand. It was the general ’ opinion that a great deal of benefit was derived from these institutes. Further assistance was rendered by the College by the preparation and issue of Bulletin No. 6 of the Engineering Erperiment Station entitled Manual of Township Roads". This bulletin took up in detail matters of organisation, surveys, plans, equipment, and a thorough treatment by pictures and text of road improvement and maintenance practices. ‘COpies were distributed.to each of the 1296 townships and were extremely well received. The assistance by the College is being continued, and it is hoped that a very few years efforts will serve to raise the standards of practice and the value of the road dollar many fold. g. CHAPTER VII . TEE TAX PROBLEM. The ideal system of taxation for Township improvement and repair is still a matter which is far from being satisfactorily settled. Several factors must be considered in reaching any conclusions tending toward a sound solution. Some of the important factors are these: 1. There is a taxable limit beyond which the load will become unbearable to the prOperty owners. 2.. The highway is only one of the items which must be supported by taxes, and while this item is important, it should be relegated to its position of relative importance among the other necessities. 3. The property most benefited should bear the greatest share of the cost, and yet it should be also recognised that the agencies making necessary the improvement should also bear a share. The relative merits of the "pay as you go" plan versus the "bond issue for extended payment and immediate results" plan will not be discussed in this paper. The controversy is still cpen and not nearly settled in many state departments in the country. There are many excellent points in favor of either systm. One particular fact regarding the matter of bonding is that the term of the bonds 93 should not be longer than the economical life of the improve- ment. This fact is frequently overlooked and results later in a double load to carry. The present method of township highway financing is by the spreading of the local road tax the limit of which is five miles per dollar or fifty cents per $100.00 valuation. With this sum it is possible to make sane measure of real and actual progress en the improvement program in most of the townships. In some of the townships this limit already constitutes a burden which is hard to bear. In the tomships where the valuation is a million dollars or more the limit of money raised amounts to “000.00 or more. This sum prOperly administered will show some pro- gress. However, there are a great many townships in which the valuation is less than half a million dollars, and where the lands are poor as to productiveness. In these townships only a fraction of the five miles for road purposes is possible. Extreme care in the administering of these small sums is necessary in order that even a small measure of progress is to be evident from year to year. Several difficult problems have some up in townships having some specialised industries, and while there have been some suggestions offered they are still far from solution. is an example of these cases, a group of townships in a county largely devoted to dairy products offered these reasons for the need of some change of policy: 1. That by actual mileage analysis their cars and trucks travelled more than ninety percent of their mileage on the township roads. 2. That, by virtue of their having to travel the low type roads, their fuel consumption and maintenance costs were tremendously greater than would be the case if they were travelling on the improved Stats roads. 5. That in paying the cost for the excessive fuel consumption, they were paying an excessive tax the benefit of which wentvto the state system and none to the upkeep of the township roads which they were rapidly destroying. 4. That, since it is sound that agencies which tend toward the destruction of the roads should bear a portion of the. cost of the improvement and maintenance in prOportion to their ability to destroy, then a portion of this excessive tax should be returned to the townships where it originated to be used for this purpose. These points all appear sound except that, if state- wide, the cost of administering the tax as suggested under itn (4) would be out of proportion to the benefits derived. In some states, Illinois for exanple, one-third of the gas tax is distributed each to the state, county and township and seems to work out equitably. However it appears to be the Opinion of men whose reason is respected that further.division of the gas tax funds in this state at this time is not . sound. pm \,, a . ‘ 9 .3 It was suggested, however, that a plan which would stand the test of reasonableness could be worked out with a one cent addition to the present gas tax. This additional money thus derived could be distributed according to the needs of the different sections by setting up a fund in the various counties, administered by the Board of Bounty Road Commissioners under state supervision and paid out to the townships in the nature of rewards. The roads built by the townships, in order to merit reward, must be built up to certain reasonable specifications and on sane predetermined tomship system, and under some measure of county supervision. This would serve not only to offer financial assistance in the improvanent of the township roads but to stimulate tremendously the improve- ment activities on the part of the township organisations. Many other plans have been suggested, varying in principle from toll roads to a state-wide poll tax, and the elements of some of these may in time offer the solution to this problem. The urgent need of improvement on the township systans and the importance of the problmns involved is being recognised and it is felt that the fact of reoOgnition is a marked advance toward satisfactory culmination. ' I I. L ' . I" — ' 9 M me : fieaffla/ ' naeaF/Lo, z__, MTIT!'ITI{!jl7!LflflM!flifllltffligfll'lflflfliflffliii'55