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I:
twat-m
"u
MP.-
mu
mu.
I P. m
run my.
MI. mu
m
macaw-.5 M
""""' STATE Row DEPARTMENT or FLORIDA "- W M
J. m m
W 15. 1953
mum-Kn
gmmmmum
mamtmormtmum bum-u (mutant-tn
MW mum-11, 1953,mtbonoo-ndnuano¢thopm1m
mum-unuqmmlmmgcmwntmmmm
einitydluhmmwm,ndwmmummmm
mmmwnm. Itmquicuymtmmmoder-n
mumwmwrmm. mummtmor
commu§m1puumm, 1932,MMtb¢mmm'l
moolymomd,hutut1utomnorthmm,bothmmuu-
wand. nummL-dnulymmtm.studyotthcwol952
mum,umr2,wswummmw
mamuxm. wmttmmamwhtwofumt-
nmwmtmdmwuamm. Ynth-rmcl
utmummamMuMwmvmmm-amm
1952,mutumurmmmwwummmmmh-
southwemfomdtoborouiblo. mamMotopmm-mm
eh-neonate mummutummmwumwmu
ummm. nmmm.m,mmmu
Stuart and Hie-i et thie tile, beceuee thin in the eree oi' meteet trettic
congestion. There can be no doubt thet thie eree neede trerfic relief et
the eerlieet poeeible mt.
Fortheebovereeemeueherebyotrerthefollovinsrecm-
undeth in ream: to the mm mm:
1. Thet e tollpiiu: be conetructed ee econ ee precticel with
its northern extremity in the vicinity of Btuert, end its eouthem extremity
in the vicinity of m. not the turnpike be or lieited ecceee, end that
oo-erciel eeteblieh-ente on the rint of veer be limited to the leveet
mmber oi vendme of food and fuel neceeeery for the comfort end conven-
ience o: the trevelins public. Experience in the opereticn of thie turn-
pike will deter-inc the advisability of extending it northward.
2. running. He eusaeet tun elternete plane or financing.
e. Through the eeJe oi nan recom'ee revenue certificates,
with no liebility to the State or Stete Bond Depertnent. Before inning the
revenue certificatee the nethod at financing should be epproved by the
Tm'npike Authority, the State Road Wat, end the Stete Bond of N1-
ninietretion, Wed at the Governor, the Coupth end the Treasurer.
While there in e reluctance et thie tine to coneider tine mutate for pub-
lic benefite, etill we met remember that private enterpriee ueee this
method to edventege. Rnilroede, eir lines, power comeniee, large hotele,
eever eyeteme end other capitel undertaking ere lergely tineneed by the
sale 0: bonds or revenue certificates.
b. Through e pey-ee-you-go pun. Beceuee of the urge
mnberofbridge etructurcs itwmmetwtotm'ayeentobuildthil
turnpikeunderenyplen. Hevouldfeil inourdutyiivedidnotcell
-10-
attention to a pay-as-you-go possibility. The money fro- the sale of auto-
aobile license tags, (other than that going to schools by constitutional
amndnent) is now being diverted to the General Fund. I: this amount of
money were appropriated to this turnpike for a little over three years,
the highway could be built without interest charges. this would save 50$
or the total, and we would get twice as much highway for the money spent.
The tolls could then either came back to the General fund or go to the
State Road Department for use on the priaery system. He Inst look ahead
to our highway needs. The present revenue is adaitedly inadequate. Revenue
Iron a successfhl toll turnpike could solve the financial problems of future
florida road builders.
3. That it he built by the Florida Turnpike Authority if
such an authority is authorised by the Florida Legislature. That this aethod
be followed in preference to rimming through the Mutant Omission.
After careful study we recommend the Turnpike Authority rather than the pri-
vate systea or building. It is our further recon-endetion that Florida
business leaders be drafted to serve on the Authority, and that their terns
be staggered to take politics out of the management of this iaportant state
OGBDCY-
Our reason for recommending against building the turnpike by
a private corporation can be sunnarised into three statements. iirat, it
it is good for private industry, it is good for the State. Second, it
would be necessary to have State control at a private corporation through
Inshore on the Board of Directora in order to control costs so that the road
could be turned over to the State with all bills paid in the shortest
-11-
possible time. Third, a private corporation would have to pay corporation
inco. tans, advalorsm tax on the highway, and my other taxes which
would materially increase the total cost.
Our reason for suggesting legislative approval hinges around
tvo points. first, many lawyers have considerable doubt concerning the
legal authority of the Warrant Omission to undertake a project of this
kind. Our second reason is that we feel the project is too large and too
important to Ilorida to be determined by nine men. (The Road Board is
composed of five numbers, and its chairman is a member of the five-Inn
Improvement Omission). Pros: a legal standpoint it would be better to
have direct legislative directive. From a democratic standpoint it vould
be more desirable that the responsibility for the decision include the
people's elected representation in the legislature.
h. 111st a continuing study he made of the route to be follow-
ed north of Stuart, and that the balance of the north and south route be
built if it is determined to be financially sound by the Turnpike Authority
and such determination approved by the Legislature.
5. It is our recousndation that the Mike Authority be
separate and distinct from the State Road Department, but that overlapping
membership would be desirable in order that the Authority night avail itself
of the facilities and personnel of the Road Depart-lent organisation.
amatmmiwtonoetothostototomuirouoto-hothorouah
and eaglete investigation of all poooibilitieo for oolvina the nobles od
travelfratheoeorgia linotothoomthernondoirlorino.
Itvaoapporeotthottheopoctocularpovthoirloridoin
moatyeoroondthedeoiroottmiototovioitallooctiouofl'lorido
nabeo oo-emthrauhuorthondsouthhiahuaydooiroblo. Ibex-emu
no doubt that a free State financed highway would be not desirable. A
through otudy was ado of thin poooibility. The colt of ouch a highvay
would be between $175,000,000 and $200,000,000, depending on the route and
thetypeofoonotmtiou. You'contootthooemoontaooolinotoxio
Mbythooodmnt tonintainandconotnwtthepri-ryhiw
inflation. Meant ofmsuolinotubrinao inbctvoonninoondton
nillion donate onnually. Taking the high {ism-o, we night expect 0,000,000
of State toads oach year. This can be matched by avail-Diem tro-
theroderalnmouotaoadotoraioothetotaltocloooto$50,000,0009er
year for prison road purpooeo. Regular maintononco and adainiotrotioo
w bo mud, leaving about $36,000,000 mm. for winery construct-
ion and rehabilitation. no other three cents or the gasoline tax are
going ot the preoent tine to construction and nintenanco of the secondary
oyrtol oi roodo. In order to deal in onllor fiauroo, let'o brook thin
0mm. Theroorotivebiotricto inllorido. It in natal Wm
divide the money evenly, but for mines: loto break it down that my.
Then each Diotrict might expect to spend obout oovon million dollars each
yearouprimryhighuayo. torthooxtreneenmplolotuolookotthesoeond
Dietrict more closely. 11m District incluiao moon County on the north,
theityowaklmml,demtothct.Jm Gaunt: line. It a-
mmwmmtbmmotmmzy,mmomm
mlmamuvuu. mummmmmmm-umwryw
Mummuulmmnmumwmmhm. Hanovknov
lb. unatthil nuzunmmnmmatmy lihbhmit. m
unlock-tomofthomtcnudl. mmmkumorwube-
csmcotthcmdtomthuuportbrid,huthcnmmofthem
1. m Renew/1n. mum. A {in camth by the
{mmwmmjom WW 436,000,000, approxi-
mlymotthninco-ottbmtthM-wpm.
2. hmmwtou. mum-l1, Inmfaol
mmbutrict. Mumnrymummmmnspoopoo
uouldnotbechm two.
3. Wino. 8.3Wymechuunoootnt
but {my 111a st u coat of th,000,000.
3. Wine 0. 8. mam: u, uncut. $5,000,000.
5. roux--1. and rebuild u. a. 315mm! #19 tron can to
magnum. m1. is on. or the nut matron. and most seriously over-
locdcd to: in an flu-16A. ran million doll-n could be spent to adv-nt-
aco hm.
6. Other-MW tutu-Districtvmeotu
at but $33,000,000.
mmtmm-mjutmmdm-ndtMutW
mum. momdtounccuute, but thcydopointoutthat mthiaonc
District W than u and for between mm and one tundra! sultan.
of dollars to be expended on psi-:7 Manley Wat. This, of course,
is twelve to tom-tun tines the mount of my currently milehle each
yeerinthenistrict. Atthecurmtretso: incoueiortoedhuilaing it
neuytouethetvemstlmtwlwmbehindmthubutrlct.
i'heotherDistrictsu-e nottoodi'ersnt, slthoughtheprohlesofthe
Jacksonville luressny nku the needs in the Second District extrsordi-
nary.
Hiththeebovensedsinsinditnsnottoodifficultto
decide that there was absolutely no use to seriously consider the building
otenorth tosomhhighsquithsutehmdsto-ettheprssentdsyneeds.
me sltemtive considered use the row-leans of U. 8.
light #1. While this is eeeentisl and highly desireble, it will not fill
theneedforsnorthlndmthmplheunlessloototthscitiessndtoms
on its route ere hy-psssed. This hy-pusixu would be very expensive end
would nut-in]; lengthen the highway. It is our belief thst this highway
is used by sufficient Inn-hers or local people and tourists, with Manners
st sou city on the hiahvey, together vith locsl truck. healing, to nice the
{Our-1min; of this road necesssry at this tin. This project has been
connect! by this Doom.
The only other alternative seen to be 3 limited eccees high-
veytohepsidtorhythosevhouse it. Porslnoettheesnmsms listed
above, other ststes have turned to this type at highway for relief has
tretiic congestion ceased by the largest meter of we ever on our hishv
vuyeeudhythesppsrentaesireofmn'peopletoeeemreottheirnntive
land. The five dsy week in the industrial mes is on actuality. Retire-
[5.
nent systems and planned vacation tines are taking our people to the high-
ways of this country by the millions. The States of Pennsylvania, Maine,
Oklahoma, Ohio, Indiana, Virginia, In York, New Jersey and Georgia have
written turnpike enabling Acts into their statutes. Many other states are
now considering similar action.
The following are extracts from 1953 messages of Governors
to State Legislatures:
601'. Dan Thornton of Colorado: 1! you and I, as leaders
of Colorado, have the vision and courage, we can assure Colorado and its
future generations the great benefits that will accrue free a modern trans-
continental highway by planning now for an adequate tunnel under the Contin-
ental divide. (He suggested tolls as one asthod of construction of the
tmnel.)
Gov. Million 0. Stratton of Illinois: "I suggest that the
Legislature give iunediste and serious consideration to the possibility of .
super or specialized traffic highways to be financed through tolls.
Gov. Willin 8. Beardsley of Iowa: 'Ioua stands athuart a main
east-vest artery of highway was of our nation. If we do not furnish
the cross-country link, it is probable that other states will do so. with
the rapid devalopnent of toll road system in the various states of the
nation ve should he prepared to deal with any and all aventuelities."
Gov. Edward 1'. Are of Kansas: "A few years hence will un-
doubtedly see a turnpike constructed east to west across the nation. Kansas
should be preyared to have such a route pass within its borders . I be-
lieve the turnpike is the answer to my of our highm problem."
Gav.PhilK. Domellyofmi: magnum
Assembly . appointedajolnt turnpike emitteeto etudytheaenernl
abject of turnpikunnd toll road: . I cell your nttention to the re-
port of this connittee and as): that it be given careful consideration."
Gov. Alfred !. Driecoll of new Jersey: "I am pleased to
be able to report that the pun- for extension or the new Jeraey Turnpike
havebeeueubotontinllycolpletednndthotuorkonumnldtheeeexten-
eimvlbebeminthenenrfuture."
Gov.ne.nninLRoberteotRhodenlnnd: 'Hehevennnyed-
vocntesotnlinitedncceuhighvnyto. .mthmghthnouthernpart
oftheetnte . .Itnybethetsuchepmjectwouldumnrealneed
end increue ourtouriet and recreation insole . We might consider :1-
nancing it by n toll system."
00v. Allen Shivers of Texas: "Gretta n toll road wthority,
in the hope that properly sponsored and supervised toll roads are the one-
war to some of cur grove-t problem in trnffic causation and conetnactioo
ooete.
Gov. lter 3. Holder, Jr., of Jisccnein: I'I urge that you
give your wholehenrted support to the legislative omil propoeel for the
establishment of turnpike authority for wuoommf
It is interesting to note that the turnpike iden in not new
in tloridn. In 19 a proposal for 1; super highway on the But Gout was
considered. The brochure on this subject estimates that the road could
have been built at that time for around $36,000,000. In or about 198 a
printe camera considered ukin¢ for outbox-Ry to build the road no a
private nature. A survey van .6. at this ti:- that followed a central
Florida route. The Road Department had two unau- and. m 1952, and tho
Capital Minus-ins Coup-av of 01mm, PL, has Jut ccqleted another.
use mmbymmxmwmmmmwam-
ville,undproceedaalmltdxnlouthtothovicinityof0rhndo, Nathan
Wwwwmmmtmm. mquthoin-
land route is that it would um the great agricultural areas at tho
hex-glad and Central Florida. In addition, it mid he traveled by
thousoinctoandtmntharupanayarea.
MWMWR Mantra-lumen
visit son of tin 0mm turnpiktl. Math, a Gal-pun Ml
the Board, with our Chief Engineer, visited the Pennsylvania Turnpike,
the luv Jersey Turnpike and the Garthn Btm Parkway. Th. latter in still
under construction. There can be no doubt that the Pennsylvania and lev
Jmutwmammammmmmvbichtuym.
MmmlymmamltrQatinancmltWint. Wede
conformation with the Pennsylvania Turnpike Authority and vith than in
charge of the low Jersey Turnpike. We diacuand the problem of construction
and operation with then. Among other thing. we asked to ace the "(Shoat
Ma that the turnpike. are auppoaed to haw created. Ho vere chow
thriving cities, both large and nail, on or near the turnpizau, and all
see-udtobeprocperoua. Mmemnotelaaadanllindmtrytoahow
mtmmemmmvelmthmmtmwomthebummot
the tumpikoa. We attach as part of this report a detailed ohm or several
Pennsylvania town. by a Pennsylvania W! to support. thin oburvation.
In order to observe the value of traffic on parallel high-
ways, we left the turnpike at new Brunswick, l. J., and traveled north on
0.3. Manny #1. We found this free roed four-laned and in good condition.
It was lined with slow mving traitic. Ve were told that althwah it is
notweralilefroathetmpike, it carrieaxmchmre trafficthandoes
the turnpike. He fmdtheparallelroada inhothstatea inaoodrapair
and carrying heavy traffic loads.
Our group returned to Florida feeling that the turnpikea
were practical, that they did not tend to her. hy-paaeed mines, and
that they had good public acceptance. The last was eqphaaiud in Pennsyl-
vania by the statemnt that the Pennsylvania legislature is practically
meniscus in each request to add to the turnpike there.
Theonethinsthetwedidnothavetheansvertowaa ovill
it pay in Florida? It must he quickly admitted that we do not have, in this
State, the large centers of population, the industry found in the states
visited, or the vast umber of vehicles operating in these areas. It is
true that we have more peeple caning into our state for purely recreational
ptn'poaeathandotheothera. It isalsosfactthatalargepercentaeeof
our ecoumn is agricultural and is dependent upon fast Irving transportation
for its very existence.
The outside engineers' studies on this problea of the road
paying its way were not too convincing to us. Their atudiee indicated to
us that the last Coast Route would not pay innediately, but by applying the
experience of the other states the induced traffic vould lake it a aucceaa-
ful venture. The feasibility rested on this induced or increased traffic.
.8-
11' vs could be sure it would nun-nuns, the venture would be successful
end the increased trstric would nan unions of sdditionsl dollm to
ourpeople. Mostotthose inspositioutokmwsseltotthtII-tths
inlsndroute wouldbemhmproiiteble. mislead inclinsdto
nurse with this position, slthouh no officisl detsilod study hes been
nsds of the inund route.
Atthisstscsotmstxmwcslledwnnmomsngineers
intbeStsteaosdDepsrtnsntto-ksscostssti-tsofsturnpihsfrou
Start to His-1. These engineers put in seven). Ms of mtsnt study
onthepmoject. Theyhsn givenus sousveryuettnsndhelpml infor-
nstion. Their sstintes of costs are higher end
revenue lower then estimted by the outside engineers. Their studies
convince us that every prccsution met be taken to svoid the dissetrous
mistakes IIdB in the planning of the Buccaneer M1 and the Juisonvills
Kareem. A mm- survey is neededby recognisedexperts in this
field inordertodeterninethe lengthoftinsneedsdtowfu' snobs
highvny.
Magmunslsopointedouttousthevsrystsrtnng
feet thstthshighvsycouldbebuilt for Justhslithetotelmneyons
mas-mum bssis. Construction costs ere higher in this srss then in
any others bscsuse more bridges ere needed here. 01 $50,000,000 esti-
nted es the ma cssh cost, $10,000,000 would be spent for bridges. (I:
s thirty yssr tim bssis $96,000,000 vouldbe required to mm the debt.
us win cc-snt further on the psy-ss-ym-ao pun Inter.
Ourencineersuereeskedtostulyonhthssreubetveen
PAGE 1
STATE R.. DEPARTMENT 5F5F 955r 9 .. .ao ..1. .. .... .AL.A.A..EE A.... .., ..5
PAGE 2
Stuart~~ ~ ~~~ .zl .ii .t .hi t ..eas th ..s ..rao rats rf
PAGE 3
attention to e. pay-as-you-go possibility. The money from the sale of autoobile license tags, (other than that going ta school by constitutio11al amendent ) is now being diverted to the General Fund .ff this emo-.mt of muey were appropriated to this turnpil;e far a little over three years, the highway oculd he built without interest charges .This would save 504 of the total, and ue would set twice as much highway for the money sperit The tolls could then either come tact ta the General Fund or go to the State Ros.r1 Depart111ent for :se on the prainary system, 1.le olust look ahead to our higlway needs .The present revenue la adiisitedly 5:1adequate. Revenue frons a successful toll turnpike could solve the financial problems of future Florida raad builders. 3. That it be built by the Flarida Turnpike authority if such an authority is authorized by the Florida Legislature. That this method he follotrei in Dreference to ft lancing throut;h the Improveillent comotission. After careful study Ue recommend the Turnpik Aut11ority rather than the pri vate systen of building. It is our further recouroendation that Florida business leaders le drafted to serve on the Authority, and that their terms be stamered to take polities out of the management of this important state agency. Our reason for recomiarnding agairst building the turnpil:e 117 a prRate corporation call be salmilart zei into three statements .First if it is good for private industry, it is goad for the State. Second, it would be necessary to liave State control of e. private torporation through members on the [k.ard of DHenters in order to control costs so thal, the road
PAGE 4
our ressor. far suggesting Legislative approval hinges arou .First, a.eny layers have caneiderable doubt concerning t-ne rity of the Impravement C06:0188 ion to undertake a project af t second reason is t!mt te feel the project is too large and too o Floride to he deter-;iined by nine men, (The Iloni Board La five emm'aers, er.i its chaiman is a c;ember of the fi':een commission). From a leSal standpoint it vauld be better to agisintive directive. From a deriocratic stenapoint it would airnble that the respor.eihility for tbc decision include the Leeted representation in the T23131sture Ji.. Dat a continuin ; study be :llade of the route to be fol Stuart ar.d that the balance of the north and south ro'.ite be -la deterjllined to ':Je Timncially Gound by the Turnpill Authori atermination sporoved 1:-y t'ne Legislature $, It is our recondendation that the Turnpike Authority 1 id distinct fron ne State Road Department, but that overinppir 1.:ould be desirable in order that the Authority plight avail itC ilities and persnimel af the Road ilepartment orgAnization.
PAGE 5
ofgeteoghiprsc o h tt o euL Mt oeatoog and~~~~~~~ ~ ~~~~~ .oplt .netgto .f .l .osblte ..ovn .h .rbe .f
PAGE 6
the City of Jacksonville, and south to the $t .Johns County liTieIt extends Uest to the vest boundary of Madison County, and thence back south includin-Gainesville .Let us keep in niind that in all tills territory we have approximately seve:t million dollars to spend each year. We now know the size of this District and the a.smiit of raoney available for it .Let us Laois at some of the immediate needs .He ennnot look at all of them be-. cutlae of the need to keep this report brief, b'.at here are sople of theia: 1. The Jacksonville Express-.:ay. A fir--I commitment by the former Board to co.plete the job. urlunt needed ..$38,000,000, or approx1 mtitely all 01" the lococe of the District for five years ?. Material improvement to U .5. Highueys fl, fit alld f301 in the District .These are very badly needed improvement ared $15,000,000 r:1.-.1d not be a high estiente 3 .Improve:-ient to U. 5. iiighiray /90 for a digtence of at east fifty efies at a cost of 9,0::0,000. 4. Impraying U. 5. T[ighway #41, about $5,000,000. 5. Four-lane and rebuild U. S. lugiray #19 from cappa to Chjefla11:1. TMs is one of the sont dar-gerous and most nerlautily over-loaded roads in s.11 Floridn. S'en million. dallars could be spent to advar.-
PAGE 7
of ~ ~ ~ ~ ~ ~ ~ ~ ~ ~. ...ar .o .. xpne riayhghy prven. T..., ... -ore
PAGE 8
.... .y.r....lne acto ie aetkn orpol t h ih
PAGE 9
Gov. Phil M. Donnelly of Missouri: '"I'he 66th General. Assembly ...appointed a joint turnpike comaittee to study the general subject of turnpiksi und toll roads ...I call your attention to the repart of this coaanittee and ask that it be given careful consideratlan ." Gov, Alfred 2. Driaeoll of liev Jersey: "I am pleased ta be able to report that tbe plans for extension of the New Jersey Turnpike have been substantially completed and that work on several of these extensions vill be begun in the near fliture ." [iov. Uannis J. Roberts of Rhode Island: 'We have ineny edvocates of a limited access highway to ...run through the southern part of the state ...It nisy be that such a project would serve a real need and inerense our tourist and recreation ineoale ...We might consider fiilancing it by a toli system.'~ Gov. Allen Shivers of Terns: "Create a toll road authority, in the hope that properly sponsored and supervised toll roads are the ansver to sone of our gravest probletia in traffic congestion and construntian costa." oov. Miter J. Holler, Jr., of Uteconsin: "I urge that you give your oliolehearted support to the legislative council proposal for the establishment of turnpike authority for wieconsin." It is interesting to vote that the turnpike idea is not new in Florida. Ia 1941 a proposal for a super highway on the East Coast was considered. The brochure on this subject estime.tes that the road could have been built at that time for around $36,0(X),000 .la or about 1943 a prLvate concern consielererL askiri. for a.rbhority to build the road as a
PAGE 10
.....t ..t... sre a aaea hi in ha olwd eta
PAGE 11
In ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ~ ... .r. oosrete aun ftafc nprle ih
PAGE 12
I ..... ..l..sie tvtl :teilzte etr nl ~esc su
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