Heavy• Traffic.*
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-The author would like, in the first place, to thank the Centinittee for inviting him to read a paper at this Conference upon the above subject from the standpoint of an urban highway authority, but he desires to make it clear that, in the remarks which follow, he is expressing only his individual views as a municipal engineer, and does not represent them as the considered views of his confreres. He trusts, however, that he may be able to say something which will be of service in provoking discussion. The title of the paper does not define very clearly the subject to be dealt with, but it is of course intended to discuss the problem of heavy mechanicallydriven traffic as affecting those who are responsibie for the making, repair and maintenance of the highways of the country.
"Good Business" for the Nation.
The author would first submit that the question is one which should be looked at as a business proposition, that the main consideration should be, not whether traffic of the description referred to is advantageous, damaging, beneficial or costly to local interests, but whether and, if so, to what extent, it is, in the broadest sense, " good. business " for the nation, either directly or indirectly.
It is generally agreed that for good or ill, and whether we like it or not, mechanicat: highway traffic has come to stay, and although it is possible by legislation, and by that obstructive inertia which is often one of the most useful weapons of highway and other public authorities, to retard its development and limit its scope to a serious extent, it has already acquired too much vitality to be easily killed.
The Burden of Water-bound Roads.
As a road engineer, the author has had his share of the annoyance and discouragement of seeing good macadam roads spoiled in a very short time by heavy motor traffic, and he has flinch sympathy with those who are burdened with the responsibility of miles of macadam roads which have in recent. years become subject to this class of traffic and who are without the funds necessary to provide suitable surfaces, and in many cases sufficient foundations, to meet the new conditions.
It is not surprising that under such circumstances many shouldbe found who hold strong. views as to the desirability of applying stringent restrictions to this class of traffic. In many cases the localities upon which fall the cost of maintaining roads. to carry an ever-increasing volume of such traffie reap' abaailutely no direct benefit and,there:is,grave danger that, unless the burden can he eased considerably the feeling of reaentanerit.Whieli arises' franc the existing unfair conditions may bring aboutresult which May seriously-. (Tipple': important' induatrie.s, and impede national progress: The effect of such a result upon national interests would no doubt far outweigh the _cost of providing roads suitable and sufficient for modern traffic.
All Roads Cannot be Made Suitable.
The author cannot, however, agree with those who demand that all roads should be made suitable for all traffic, as this would be-extravagant and unnecessary, but in his view such roads as are reasonably necessary to enable theindustries of the nation to be carried on with a high standard of efficiency should be provided. He submits, however, that the nation should find the additional funds required to provide what is necessary in the national interests.
It is obvious that the latter proposition involves some measure of control of n2echanieal traffic, but if such control is based upon a broad buisiness-like view of the question, it should occasion no obstruction to industry or hardship to individual commercial interests. Much of the present trouble arises from the unreasonable use of roads and lack of proper regulating powers. For instance it is obviously not in the national interest that a contractor, in the hope of saving 250 by using motor lorries in the place of horse-drawn vehicles for carting the materials re-, quired for a contract, should be allowed to do 1000 worth of damage to a road quite adequate for ordinary traffic, and which, apart from this one job, is unlikely to be required to again carry mechanical traffic of sufficient weight or volume to cause any appreciable damage. Again, it is not in the national interest that heavy motor traffic should be allowed to ruin residential roads when other roads capable of carrying this claSs of traffic have been provided and can be used without serious inconvenience.
Local Grievances.
It is well known that in many localities heavy motors have, without warning, adopted a route over roads unfit for such traffic, which roads have, in consequence, been quickly cut to pieces and, after the highway authority has reconstructed them at great cost, the traffic has been transferred to an entirely new route, where the process has been repeated. Other examples of unreasonable wear could be given, but the foregoing are sufficient to indicate the importance of devising some means by which the use of highways by heavy motor traffic may be properly regulated.
Construction or User?
In addition to regulations of this character it is also desirable that the existing regulations as to the construction, loading and speed of heavy motors should be revised. The author suggests that the regulations relating to vehicles are by no means so important as those relating to the user of the highways by such vehicles, and he is -of opinion-that the most satisfactory solution of the problem will be found in the direction of the provision., of sufficient Suitable roads to meet -the reasonable requirements of the traffic and by so regulating the user of rOad.S by heavy motors as to prevent undue damage, .Iii-these _circumstances it may be found desirable, in tbe national interests, to reduce rather than-inareise the :stringency of the existing regulations u.nder the gote'r. Cars Acts relating to heavY, motorcars, and to regulate the vehicles themselves to slick: in extent dialY 'as: Ma j.', be required for Public safety, and to pfoient Minecessary damage to :reasonably good reads.
Finance, and Yet Again Finance.
The main difficulty of local highway authorities in providing sufficient suitable roads is, of course, financial in character, and arises from the fact that they have upon their hands 'Miles of reads without any sufficient foundation and many more-'miles coated with materials absolutely unfit for modern heavy traffic, but which have in recent years been called upon to carry such traffic. Where new roads are being constructed the solution of the problem is simple, as it is generally conceded that it is true economy to construct a road in a thoroughly substantial manner in the first instance and thus rednee subsequent maintenance charges to a minimum.
As before suggested, the financial aspect of the question can only be satisfactorily dealt with by a broad-minded and liberal use of national funds and credit.
It has been suggested that the situation might be met by annual subsidies to local authorities towards the cost of the maintenance of their roads. • While this course might be adopted to a small extent with some advantage during the few years which should constitute the transition period from bad roads to good, the author is of opinion that it is a policy which is not financially sound and therefore should be discouraged is far as possible.
Good Roads Mean Lessened Maintenance.
Experience has already shown that Once a road has been so reconstructed as to carry satisfactorily the traffic passing over it the annual maintenance charges are almost invariably reduced, so that it is not in respect of these charges that the local authorities require assistance.
At the present time large sums of money are being almost entirely wasted by highway authorities upon patching and repairing bad roads—which never will be good until they are reconstructed—because of the difficulty of obtaining funds to meet the initial cosi of such reconstruction. These sums, if capitalized, would, in many cases, be sufficient to cover the initial cost referred to and in all cases would cover a substantial part of the cost. What appears to be required, therefore, is a system under which the cost of necessary road improvement and reconstruction works would be advanced to local highway authorities, part by way of loan, the repaynients of which should not impose upon the authority any appreciably greater burden than they have at present, after allowing for saving in maintenance, scavenging, watering and other charges, and the balance as a free grant towards the additional cost necessary in the national interest. The Road Board have been -working upon somewhat similar lines during the past few years, but to produce the desired effect within a reasonable time the author suggests that the problem must be tackled upon a much larger scale. It appears, therefore, to be of paramount importance that national funds and credit should be available for road improvement work of a permanent or semi-permanent character to a much greater extent than has been the case in the past. On the other hand, it is essential that care be taken to prevent the National Exchequer from assuming any part of the resbonsibilities which should rightly fall upon local funds.
'Pis previously mentioned, the greatest difficulty is the provision of money to meet the initial expenditure, and if this is met by the use of the national credit, it is probable that the large sum which will be required during the first few years could, to a great extent, be repaid by local authorities, so that the ultimate cost to the State need not be heavy.
Central Direction : Local Administration.
As a basis for discussion only, the author puts forward the following outline of a scheme for dealing with the phase of the question now under consideration :—
He suggests the constitution of a Central Government Department to discharge the following functions, viz. :— l(l) To consult with local authorities, heavy motor users, carriers and others interested in the subject and to make full inquiries as to the roads in the country which should be available for heavy mechanical traction, and to classify such roads.
, To determine in what order and to what extent such roads should be improved.
(2) To ascertain the probable cost of such road improvement works and to determine the propor. tion of cost and the amount -and rate of repay
meats which should reasonably be looine by ihe local authority. (3) To make orders from time to time, as may be deemed necessary, requiring local authorities to execute road improvement works upon terms and conditions Teferred to in the previous parit graph.
(4) Where the improvement of roads outside the area of a local authority is primarily required in the interest of the trade of such area, to determine if and to what extent and in what manner contributions towards the cost of such road improvements shall -be made by the authority in the interests of _whose area they are required.
(0 To advise His Majesty's Treasury from time to tirne as to the sums to be-advancecl to local autlibrities byway of-loan for Toad improvement works, and as to the conditions of repayment, and also as to the grants which should be made for the same purpose, upon the basis of the conditions referred to in paragraph 3.
(6) On the application of local authorities, to make orders from time to time restricting or pro, hibiting the use of roads by heavy mechanical traction, on being satisfied that they are not reasonably necessary for this purpose. (7) To collect, tabulate and publish information and conduct experiments in reference to the use of materials, plant and processes for road construction and repair, and the cost of Bp:me.
An Extension of the Road Board._ The constitution of such a Department as that mentioned above would involve only the extension of the organization and the increase of the powers of the RoadBoard. It is generally agreed that this body has already done much excellent work, having -regard to the limited means at its disposal, and the author suggests that, in the greater work outlined above, it would have the fall confidence of:local authorities and others interested in roads and traffic. •
Haying regard. to the advantages Which would accrue to owners and users of heavy motors of all kinds by the reduction of tractive effort required, decreased wear and tear-of vehicles, etc., as a result of ' the provision ofgood; substantial roads, with clean, smooth surfaces, it would not be unreasonable that they should be called upon to bear directly sonic proportion of the cost of the necessary road improvements, and -the author, suggests that this-might be secured by• a graduated tax on each vehicle.
Regulations as to Vehicles.
The question of regulations in reference to the construction, speed and loading of heavy motors is of considerable importance, if it is assumed that a large pro= portion of the roads of the country, necessary:1°k heavy motor traffic, are to retrain indefinitely in their present condition with surfaces of ordinary macadam and similar low-grade material. On the other hand, the author stibniits that if some such schemefor the improvement of roads required for heavy traffic as that already outlined is adopted, this question becomes one of quitecsecondary importance. The following remarks are based upon the latter assumption. in the author's opinion, the most destructive factors so far as roads are concerned are high speed and small,: wheels, combined with heavy loading. Even excep7. tionally heavy loads on wheels of large diameter and • reasonable width, travelling at a slow rate, cause very little damage to macadam roads in fair condition, excent immediately, -after a frost, -whereas fast traffic on • small wheels and with much lighter loads soon causes considerable damage.
It must, moreover, be borne in mind, that the better and more regular the surfaces of the roads the smaller the damage, even with this type of traffic, and the damage increases at an alarming rate as the surface becomes worn and uneven. Given, therefore, a foundation of sufficient strength.',. • to Carry the weight of traffic brought upon and a wearing coat of material which will retain a smooth and even surface, the factors referred to will not greatly affect the rate of wear.
Fewer Restrictions: Graduated Taxation.
Under these circumstances, it appears to the author that"the present restrictive regulations might, to a large extent, be repealed, and that the construction, speed and loading might be taken into consideration in framing the graduated tax previously suggested. In his opinion, more would be gained by encouraging manufacturers to design vehicles which are least likely to cause damage, and carriers to use them in the least objectionable manner, by a direct monetary concession than by imposing arbitrary restrictions which might interfere unduly with important industries.
An Effort to Find a Formula.
The author suggests a system of taxation somewhat on the line.s of the following formula : Standard wheels, 36 ins, in diameter. Tires, non-resilient.
W = Greater axle-weight (tons). W1 = Smaller axle-weight (tons).
S = Maximum speed (miles per hour).
T = Annual tax in respect of greater axle-weight.
Ti = Annual tax in respect of smaller axle-weight. T + Ti = Total annual tax.
A = 55. Od., B = is. 3d., when maximum weight of • loaded vehicle does not exceed 7 tons.
A = 6s. 8d., B = is. 8d., when maximum weight of loaded vehicle does not exceed 12 tons.
A = 10s. Od., B = 2s. 6d., when maximum weight of loaded vehicle does not exceed 15 tons.
A = los. Od., B = 3s. 9d., when maximum weight of loaded vehicle does not exceed 18 tons.
T = WSA. T1 = WSB.
Smaller Charges for Larger Wheels.
Total tax to be reduced by 15s. Od. for every inch increase in diameter of wheels over 36 ins,, in respect of each pair of wheels so increased in diameter.
Total tax to be increased by 30s. for every inch decrease in diameter of wheels under 36 ins, in respect of each pair of wheels.
The effect aimed at by this suggested basis of ta.xation is the encouragement of even distrib.ution of .weight, moderate speeds and loading, and of the use of large diameter wheels, without unduly restricting the use of any vehicles which may be necessary for the proper and efficient development and carrying on of any industry. It is suggested that the width of the tire should be proportionate to the maximum load upon and the diameter of the wheels, on the lines of the present regulations.
Is Rubber Better Than Steel for Tires'?
There appears to be considerable difference of opinion as to the relative amount of damage caused by steel and rubber-tired wheels. It cannot be disputed that rubber-tired motorbuses are most destructive to ordinary macadam roads, and they also appear to have a damaging effect on roads of higher grades. The author suggests that the cause of this is probably to be found mainly in the high speeds and small diameter wheels employed. This phase of the queition appears ito be one which might very usefully form the subject of special investigation. It is generally agreed that cross-bars should not be allowed; on steel tires, but that, if the grip with smooth tires is insufficient, the surface of the tires themselves should be grooved.
During the War and After.
The author suggests that all questions as to the construction, etc., of heavy motors is one which should be investigated and considered by a joint committee of road engineers, manufacturers and users, who should report to the authority empowered to make regulations affecting vehicles of this character. In conclusion, the author would again emphasize the importance of taking a broad view of the subject. Industrial competition after the war may very likely be as keen or keener than ever, and it is an undoubted fact that improved transport facilities mean increased national prosperity.
• [We deal with Mr. Elford's paper editorially on the tirst two pages of this issue.. Those comments should be read in oonjunction with our criticisms of two weeks ago upon the allied paper by Mr. Harcourt Clare. The plea for fewer restrictions will find an echo in the opinions of many owners. We, as a journal, il&V6 for a long time favoured the policy of paying and being exempt. There must, of course, always be diversity of view as to how much should be paid. The owner who wishes to be free to work with the heaviest axle-weights will clearly be expected—and will probably be well able—to pay more in proportion for the extra weight over and above any normal limit. The factors of speed and weight are fundamental It is apparently not suggested by Mr. Elford to make any concessions to rubber-tired vehicles.—En.]