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[Transportation] - Report of the Governoräó»s Task Force on Transportation, November 1968
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[Transportation] - Report of the Governoräó»s Task Force on Transportation, November 1968
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Ronald Reagan Presidential Library
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Collection: Reagan, Ronald: Gubernatorial Papers,
1966-74: Press Unit
Folder Title: [Transportation] - Report of the
Governor's Task Force on Transportation,
November 1968
Box: P38
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Report of The
Governor's Task Force
To C the
Ro
#12
Report of The
Governor's Task Force
On Transportation
NOVEMBER 1968
STATE OF CALIFORNIA
RONALD REAGAN, Governor
Governor's Task Force on Transportation
1120 N STREET, SUITE 1100, SACRAMENTO, CALIFORNIA 95814
CALIFORNIA
CHAIRMAN
William L. Pereira
November 19, 1968
VICE CHAIRMAN
Dr. Richard DeLauer
EXECUTIVE DIRECTOR
Hugh E. Mulholland
My dear Governor:
EXECUTIVE COMMITTEE
Wm. L. Pereira, Chairman
It is my privilege to submit the GOVERNOR'S TASK
Dr. Richard DeLauer
FORCE ON TRANSPORTATION REPORT to you.
Hon. Gordon C. Luce
Floyd Andrews
You charged the Task Force to endeavor to define
Arnold O. Beckman
Hon. Ernani Bernardi
the State's role in transportation planning, and
Nils Eklund
to recommend an organizational structure which
Francis T. Fox
could most effectively correlate and plan the
Herbert Hoover, Jr.
Neil Petree
transportation needs of the State in the future.
Shermer L. Sibley
James M. Udall
The twenty-four man Task Force, which you created,
John Vaughn
included responsible representatives of every
TASK FORCE MEMBERS
transportation mode, as well as representatives
Floyd Andrews
from virtually every key organization in the State
Albert W. Bayer
Arnold O. Beckman
concerned with transportation. We obtained addi-
Hon. Ernani Bernardi
tional know-how by drawing on the services of some
B. F. Biaggini
80 experts in the various transportation fields
Richard R. Brown
Asa V. Call
for advice and criticism as the report progressed
Harmer E. Davis
through the several drafts. We also had invaluable
Nils Eklund
support from a number of the State of California's
A. J. Eyraud
Adrien J. Falk
highly qualified technical people borrowed from
Francis T. Fox
the appropriate departments. These individuals
John P. Fraim, Jr.
acted as Project Directors for the ten committees
Herbert Hoover, Jr.
John McDonnell
of the Task Force. Without their help, we could
Edwin S. Moore
not have made as much effective use of the members
Neil Petree
of the Task Force as we did.
Henry Roloff
Wade Sherrard
Shermer Sibley
Our strategy in the first instance, involved an
James M. Udall
assessment of all the material and ideas that were
John Vaughn
available to us concerning the past, present and
ADVISORY MEMBERS
the future of transportation. Then, a series of
Hon. Gordon C. Luce
special committees reviewed the summary of our
C. G. Beer
Richard Carpenter
findings through a number of matrices; for example,
Hon. Randolph Collier
planning, engineering, financing, legislative, and
Hon. John F. Foran
legal. Early in the process we discovered what
Arthur C. Gooch
Hon. Norman B.
we all had suspected -- that extensive information
Livermore, Jr.
about transportation was available -- but that very
Wm. R. MacDougall
little correlation of this information exists, and
Hon. Peter E. Mitchell
Rus Walton
there is even less coordinated planning among the
modes.
The Honorable Ronald Reagan - 2 - November 19, 1968
Our findings have resulted in five recommendations
to you and the Legislature. They are as follows:
1. Establish a California Transportation Board
2. Establish a State Transportation Planning
Office
3. Establish Regional Transportation Districts
4. Fund the State Transportation Organization
5. Develop a State Transportation Policy, which
should include:
a. The Encouragement of the Development of
Urban Mass Transportation.
b. Continuance of the Development of the
Statewide System of Highways, Roads, and
Streets
C. Definition and Refinement of the Role of
the State in Air Transportation
d. The Encouragement of the Development of
Ports, Harbors, and Waterways
e. Encouragement of Transportation Research
and Development
f. Reassessment of the State Transportation
Regulatory Policies.
The considerations and observations which substan-
tiate these recommendations are the subject of the
body of the report. There is, in addition to the
report, a summary of basic information developed
by the Task Force which, in effect, documents the
background material which lead to our findings.
There can be no question that an urgent need exists
for the State to assume a position whereby it can
coordinate transportation concerns and planning,
not only within the State's various organizations
and entities at all levels of government, but also
in conjunction with the states adjacent to us,
which together make up our region. It is also ob-
vious that such an agency should accept a similar
responsibility with respect to the Federal agencies
now concerned with all phases of transportation.
The Task Force recommends, accordingly, that there
be created within the Transportation Agency a group
of experts capable of assembling and analyzing in-
formation pertinent to California's transportation
The Honorable Ronald Reagan - 3 - November 19, 1968
system, and that there be a lay board appointed to
advise and assist the Secretary of Business and
Transportation in the formulation of State trans-
portation policy. The Task Force feels that the
need to carry out these and its corollary recom-
mendations is immediate, and only by their imple-
mentation can California's future social, economic,
environmental and transportation needs be meaning-
fully satisfied.
The Task Force respectfully suggests that it has
carried out the assignment which it was given and
extends to you its gratitude for the privilege of
having been of service to the State.
Respectfully,
William L.Perein
William L. Pereira, F.A.I.A.
Chairman
Governor's Task Force on Transportation
The Honorable Ronald Reagan
Governor of California
Sacramento, California 95814
Foreword
California has entered an era which is character-
The mere provision of a series of separate ex-
ized by a high degree of interdependence among
panded transportation modes will not result in the
all elements of its social, economic, and political
overall system of transportation services necessary
structure. It is no longer possible for individuals,
to provide for future needs. To properly provide for
groups of people, businesses, industries, or commu-
our future needs, particularly in view of the probable
nities to go their separate ways. The behavior and
complexity of our society in the 1980's and beyond,
stability of our State derives, as never before, from
a mechanism must be developed whereby the chang-
the complex interactions of the many elements of
ing use of our land and resources and the changing
which it is composed. The word for today and for
patterns of social and economic activity can be re-
the future is interaction.
lated to the total needs for the movement of people
Underwriting the intricate pattern of societal inter-
and goods. It is not realistic to expect that our trans-
action are the complex systems of communication
portation problems will ever be completely solved-
and transportation which continually evolve to meet
what is needed is to develop the most effective means
our changing needs. In the future our society will be
possible of identifying and dealing with these prob-
increasingly concerned with the nature of the devel-
lems so as to minimize their number and magnitude.
opment of transportation systems and services and
California presently lacks this ability or an adequate
their social consequences. We must give increasing
means of defining and coordinating its upcoming
attention not only to the interactions of our trans-
transportation requirements.
portation systems with the environments in which
The State must evolve improved means of taking
they operate, but also to the interactions among the
advantage of new technological developments and
several segments, or modes, of our overall system
capabilities in adapting the composite of transporta-
of transportation services. This attention to trans-
tion service to the changing patterns of our society.
portation as a system of services cannot be isolated
A capability is needed to discern where changes in
from other elements of our social, economic, and
public policy can encourage private development
political structure. It must be accomplished within
of segments of the overall transportation system and
the encompassing framework of statewide develop-
to identify when and where additional transporta-
mental planning.
tion facilities and services, and what kinds, will be
required. The ability to devise viable public pro-
Because transportation systems take time to de-
grams and financial support arrangements that will
velop, and because they remain embedded in our
set needed transportation activities in motion is ur-
pattern of living for long periods of time, decisions
gently needed. Policies must be adopted that will
made today regarding transportation will have long-
foster and facilitate coordinated and cooperative
lived consequences. Accordingly, whether our trans-
approaches to the provision of needed transporta-
portation complex in the 1980's will be a boon or a
tion services at the local and regional levels.
burden to the people of California will be largely
the result of actions taken in the near future.
A new kind of organizational structure at the State
and local levels is needed to meet needs such as
Under our present conditions of rapidly increasing
these. Basically, such a structure must provide a
population, burgeoning urban regions, rural renais-
capability to analyze changing requirements on a
sance, and an expanding economy, there are obvious
continuing basis and to assess the effects of alterna-
requirements for the expansion, extension, and im-
tive courses of transportation development so that
provement of our present transportation facilities
more effective policies and more appropriate deci-
and services. The Task Force reviewed these many
sions can be made by governmental bodies, by busi-
transportation needs and problems and summarized
ness, and by industry. Numerous data bases now
them in this report, together with an estimate of
exist which could be made available from various
the magnitude of the public financial commitments
agencies and bodies. The primary problem rests with
expected to be involved. The Task Force concluded
the coordination, interpretation, and implementation
that it should be well within the technological and
of existing data, together with a need for additional
financial capabilities of the people of this State to
data collection to fill the gaps so that appropriate
meet most or all of these needs, if the decisions made
decisions can be made within the overall framework
are in keeping with sound planning.
of statewide plans and policies.
In order to realize the full benefits to be derived
ing these two vitally needed functions are set forth
from this new capability for dealing with the trans-
in this report.
portation problems of the future, not only must an
The Task Force views this recommended program
analytic methodology be created, but the means of
as a pioneering effort which has the laying of a better
managing and administering it must be instituted.
base for the development of a coordinated transpor-
The Task Force visualizes a continuing effort at two
tation policy and a system of transportation services
levels within the State: an explicit organizational
as its end objective. Satisfactory techniques for deal-
entity within the State government with general re-
ing with the total transportation requirements of a
sponsibility for the analyses relating to overall pro-
rapidly changing future have not yet been developed,
grams and statewide policy recommendations; and
in California or elsewhere in the world. Such tech-
a regional mechanism whereby the transportation
niques can only be developed incrementally, but the
planning and implementation process can be prose-
Task Force is convinced that a beginning can and
cuted effectively in conjunction with State and local
must be made, and that the State government has
governments and local sectors of business, industry,
the responsibility for taking the leadership in making
and the public. Specific recommendations concern-
this initial effort.
Table of Gontents
I. INTRODUCTION AND SUMMARY
1
A. Task Force Scope and Objectives
3
B. Summary of Recommendations
3
C. The Role of the State
4
D. State Transportation Goals
5
E. The Financial Situation
5
II. RESOURCE REQUIREMENTS
7
A. Total Cost of Transportation Services
9
B. Public Capital Outlay Requirements
9
1. Roads and Highways
9
2. Airports and Airways
10
3. Urban Mass Transportation
10
4. Ports and Harbors
11
C. Summary
11
III. MAJOR TRANSPORTATION PROBLEMS AND ISSUES
13
A. Introduction
15
B. Road Transportation
16
1. The Automobile
16
2. The Bus
16
3. The Truck
17
4. The Route
17
5. Terminals
18
6. Financing Approaches
19
C. Urban Mass Transportation
19
1. Rapid Transit and Mass Transit
19
2. Use of Existing Rights-of-Way
19
3. Financing Approaches
20
D. Air Transportation
22
1. Master Planning Approach
22
2. Equipment and Technology
22
3. Terminals
23
4. Financing Approaches
23
E. Rail Transportation
24
1. Routes
24
2. Equipment
24
3. Terminals
25
4. Financing Approaches
25
F. Water Transportation
26
1. Port Authority Structure
26
2. Equipment and Technology
26
3. Terminals
27
4. Financing Approaches
27
G. Pipelines
27
IV. TRANSPORTATION IN THE FUTURE
29
A. Research and Development
31
B. Incorporation of Innovations
31
C. Tomorrow's Transportation Systems and Equipment
32
V. RECOMMENDATIONS
33
1-Establish a California Transportation Board
35
2-Establish a State Transportation Planning Office
35
3-Establish Regional Transportation Districts
37
4-Fund the State Transportation Organization
37
5-Develop a State Transportation Policy
37
A. Encourage the Development of Urban Mass Transportation
38
B. Continue Development of the Statewide System of Highways, Roads, and Streets
38
C. Define the Role of the State in Air Transportation
38
D. Encourage the Development of Ports, Harbors, and Waterways
38
E. Encourage Transportation Research and Development
39
F. Reassess State Transportation Regulatory Policies and Restrictive Practices
39
GLOSSARY OF TERMS
40
APPENDIX I Acknowledgments
41
APPENDIX II Members of the Governor's Task Force on Transportation
42
APPENDIX III Task Force Panels
47
APPENDIX IV Technical Committees
49
APPENDIX V Summary of basic information developed by Panels I, II, III, & IV (separate volume)
Introduction
and Summary
&
plex in terms of a statewide system, and to arrive
at policy decisions on the basis of adequately evalu-
A. Force Scope
ated data. Although many elements of our system
of transportation services are provided and main-
and Objectives
tained in varying degrees on an incremental basis
by the private sector, or through public agencies
at the local or regional level, the State is presently
The Governor's Task Force on Transportation was
unable to provide the cohesive, coordinative func-
assigned two principal objectives:
tion which is required and which is properly its
1) Define existing problems, with emphasis on
responsibility. The State must put itself in the or-
the need for correlation of, and comprehen-
ganizational posture whereby it can effectively fa-
sive planning for, the various forms of trans-
cilitate the coordination of intra-state, inter-state,
portation
and international transportation planning and pro-
gram implementation. The State should enable itself
2) Recommend to the Governor the organiza-
to provide support and assistance as required by
tional structure which can effectively correlate
the public and private sectors, through the collec-
and plan for the future transportation needs of
tion and analysis of data through objective eval-
the State.
uation of proposed improvement programs and
This report presents a summary of the Task Force
through the establishment of a comprehensive, long-
findings, conclusions, and recommendations to the
range transportation policy. Accordingly, the Task
Governor in response to these objectives.
Force makes the following specific recommenda-
The findings and conclusions resulting from the
tions, which are aimed at placing the State in a
Task Force deliberations have brought forth recom-
position whereby it can assume its responsibilities
mendations which are considered to be the first
and fulfill its role from both an organizational and
steps in the development of the comprehensive pro-
a policy standpoint:
gram of action which is required to produce a
RECOMMENDATION 1 - ESTABLISH A
sound transportation system for California. The spe-
CALIFORNIA TRANSPORTATION BOARD
cific recommendations presented in this report are
intended to establish the foundation of policy and
Legislation should be enacted which creates a Cali-
organization for such a program of action.
fornia Transportation Board to advise and assist
It should be noted that, while the effective im-
the Secretary of Business and Transportation in
plementation of the recommendations contained in
the formulation of State transportation policy, to
this report will require detailed and specific engi-
evaluate data and information and recommend
neering studies, economic analyses, legislative pro-
State participation in the development of various
grams, and financial plans, such detailed studies
modes of transportation, and to advise as to the
and analyses were not considered to be within the
effects of alternative transportation plans on the
areas of responsibility of the Task Force. Addition-
socio-economic development of the State. This
ally, unless the organizational structure recom-
Board should consist of not more than seven mem-
mended in this report is established, the State will
bers appointed by the Governor, with the advice
not be able to assess adequately certain proposals
and consent of the State Legislature, and should
and reports relative to the conduct of State trans-
have as ex-officio members the Chairman of the
portation system studies which are now on hand.
Senate Transportation Committee and the Assem-
bly Transportation and Commerce Committee. At
an appropriate future time, the Task Force believes
B. Summary of
that this Board should be vested with additional
powers, duties, and responsibilities in the area of
Recommendations
budgeting, allocation, and administering of State
transportation funds and resources.
In the course of examining the present and future
RECOMMENDATION 2 - ESTABLISH A STATE
requirements and problems associated with provid-
TRANSPORTATION PLANNING OFFICE
ing transportation services for California, the Task
Force has found that the most serious deficiency at
The same legislation which creates the California
the present time has to do with our inability to
Transportation Board should create a technical
identify, define, and evaluate adequately our cur-
staff organization to support the Secretary of Busi-
rent and future transportation requirements and
ness and Transportation and the Board in the col-
problems. The State must develop the capability,
lection, analysis, and evaluation of transportation
in terms of an organizational structure, to obtain
data and information as well as in the coordination
and evaluate data, to assess its transportation com-
of transportation plans and programs.
3
RECOMMENDATION 3 - ESTABLISH REGIONAL
TRANSPORTATION DISTRICTS
A series of regional transportation districts should
C. The of the State
be authorized by the Legislature so that every
part of the State will be included in a regional
transportation district. These districts, within the
The Task Force has given much thought to the
encompassing framework of overall State trans-
proper role of the State government in the planning,
portation policies, should be responsible for co-
development, and realization of the integrated sys-
ordinating the detailed transportation program
tem of transportation which will meet the future
planning and implementation activities in the
needs of the people of California. The Task Force
region.
believes that the State's primary responsibility should
be the coordination and integration of overall trans-
RECOMMENDATION 4 - FUND THE STATE
portation planning. The State should be responsive
TRANSPORTATION ORGANIZATION
to the needs of the people through the definition of
The State Legislature should annually appropriate
requirements, evaluation of alternative approaches,
the funds necessary to support the activities of the
establishment of long-range. plans and policies, and
California Transportation Board and the State
the setting of appropriate performance criteria and
Transportation Planning Office from the State
standards.
Aeronautics Fund, the State Highway Fund, and
The State must also accept a responsibility to en-
the State General Fund. These funds should be
courage and facilitate basic transportation research
budgeted by the State Transportation Agency.
and development, not only to permit the effective
utilization of advanced technological capabilities,
but also to reduce the undesirable effects of trans-
portation systems and equipment on the levels of
air pollution, noise, personal safety, etc. Such re-
search and development effort should be conducted
wherever possible by private enterprise, qualified
research organizations, and through the existing ca-
pabilities of the State's universities and colleges.
In general, the implementation of plans for the
RECOMMENDATION 5 - DEVELOP A STATE
individual parts of the total statewide transportation
system-the development of funding plans, prepara-
TRANSPORTATION POLICY
tion of detailed designs and specifications, detailed
The State should develop and maintain a compre-
engineering studies, actual construction, and the
hensive long-range policy regarding transporta-
operation and maintenance of individual transporta-
tion, and should establish a comprehensive State
tion facilities and equipment-should be the respon-
Transportation Master Plan. The State's transpor-
sibility of private enterprise and local or regional
tation policy should include the following key
authorities, utilizing the services of private agencies
points:
and consultants where appropriate. In certain in-
* Encourage the development of urban mass trans-
stances-state freeways and highways, for example-
portation
the State should accept the primary responsibility for
actual construction, operation, and maintenance of
* Continue development of the statewide system
facilities, with appropriate use of consultants in plan-
of highways, roads, and streets
ning and designing these facilities. In many modes of
* Define the role of the State in air transportation
transportation, the State's role should be primarily
that of data gathering, coordination, and the integra-
* Encourage the development of ports, harbors,
tion of transportation planning efforts. The State
and waterways
should encourage the utilization of the professional
* Encourage transportation research and develop-
and labor resources of the private sector to imple-
ment
ment the transportation plans and policies, rather
than developing an organic State capability in com-
* Reassess State transportation regulatory policies
petition with the private sector.
and restrictive practices.
The State has a definite responsibility for direct
The considerations and observations which sub-
involvement in future Federally sponsored transpor-
stantiate these recommendations are summarized on
tation planning and construction programs. Where
the following pages of this chapter. Further elabora-
such programs are on a statewide basis, or interface
tion of the findings and conclusions of the Task Force
with statewide systems, the State must take the lead
and of the specific recommendations are presented
in coordinating the participation and involvement
in Chapters II through V of this report.
of the various local and regional groups affected.
4
Where such projects are regional or local in scope,
of the State and the people of California demands
the State should take whatever actions are appro-
that an effective system of transportation services be
priate to assist the particular area concerned. Again,
provided and maintained. All modes of transporta-
the extent of the State's role should primarily be
tion-roads and highways, railways, air and water
that of coordinating and integrating transportation
transportation pipelines, urban mass transit, etc.-
activities to ensure that there is consideration of the
should be developed and utilized in such a way as to
transportation goals and objectives of the entire
permit the most efficient employment of their indi-
State, as well as to ensure that the system of trans-
vidual capabilities as component parts of an overall
portation services is compatible with overall state-
system. The planning and realization of this system
wide goals and objectives.
of transportation services must simultaneously be
The State must develop an organizational capabil-
accomplished in the larger framework of our overall
ity to maintain active contact and liaison with the
social, economic, environmental, and fiscal goals and
various federally sponsored research, development,
objectives as defined in the Phase II Report on the
and demonstration projects being undertaken in the
California State Development Plan Program issued
transportation area. This should include the prep-
recently by the State Office of Planning. To achieve
aration of plans and proposals for participation in
this, the following are submitted as the major goals
Federal projects where such activity is in the best
for California's system of transportation services:
interests of California. The State must also establish
Develop all modes of transportation SO that they
a better capability to maintain cognizance over the
may function as integral parts of the coordinated
various Federal programs in the transportation area
total system which will most effectively serve in-
which are implemented at the local or regional level
dustry, commerce, and the people of the State.
in California, both to coordinate their prosecution
Provide that connections between the various
and to assist in the integration of such local projects
modes of transportation interface so as to facili-
with overall statewide transportation system goals
tate efficient and economical transfer of people
and objectives.
and goods.
The State should also take an active part in the
Recognize the advisability of providing alternative
coordination of transportation planning that tran-
services by the use of more than one mode of
scends State boundaries into neighboring states or
transportation and of utilizing "transportation cor-
nations. In this role, the State should act as the focal
ridors" where possible to improve efficiency and
point for inter-state planning and the management
economy in land use.
of the transportation matters relating to regional
areas of the nation. The State should represent the
Coordinate community planning with transporta-
varied interests of the people and industries of
tion planning to provide aesthetic as well as utili-
California in all coordinating councils and federa-
tarian approaches to satisfy transportation and
tions with other States that address themselves to
community requirements.
transportation problems.
Provide transportation facilities for those persons
In the course of its investigations, the Task Force
not now serviced by automobiles or by other
has considered various reports and proposals which
modes of transportation.
have been submitted to the State relative to con-
Provide transportation facilities not only for speed
ducting studies of the State's transportation system.
and efficiency of travel but also for convenience
It was concluded that the applicability or suitability
and enjoyment in shopping, school, cultural, and
of such proposals can only be determined following
business pursuits, leisure time travel, and pedes-
the establishment of the organizational structure, at
trian travel.
the State and regional levels, which is recommended
in this report, and no assessment of such reports and
Provide transportation facilities and equipment
proposals is included herein.
which are in all possible ways compatible with our
environmental goals.
D. StateTransportation
E. The Financial Situation
Goals
The Task Force has developed a projection of the
The basic objective of a continuing program of
gross order of magnitude of the public outlay which
transportation, research, development, and construc-
appears to be required through 1985 to provide and
tion in the State of California must be to evolve a
maintain a total system of efficient transportation
system of transportation services which is balanced
services in California. These estimates have been
to meet the future needs of all segments of Califor-
arrived at by examining the probable capital expendi-
nia's industry and society. The economic well-being
tures and operating and maintenance costs in the
5
following primary areas of transportation:
* Roads and highways
* Airports and airways
POSTAGE
*
Urban mass transportation
* Ports and harbors.
The figures developed for these various modes of
transportation indicate that a total outlay of public
funds through 1985 will probably be in the neighbor-
jected capital outlay and the expected revenues that
hood of $50 billion. This figure could be considerably
will be available through user charge financing and
greater or less, depending on the particular kinds
the present concepts of generating public funds.
and quality of transportation which the people of
The Task Force recognizes that transportation is
California choose to obtain. Further, since this figure
only one of many areas which place demands on
was derived from estimates of the requirements for
the taxpayers' dollars. The State of California is also
individual modes, it does not reflect the potential
involved in many different programs involving sub-
advantages of optimization through alternative ap-
stantial expenditure of public funds: education, wel-
proaches or tradeoffs among the various modes.
fare, air and water pollution, and law enforcement,
Neither should it be inferred that the Task Force
to name a few. A comprehensive discussion of these
intends to imply that such expenditures actually will
requirements is presented in the California State De-
or should be made for any particular mode.
velopment Plan Program Phase II Report referred to
The mode by mode estimates do not appear to
previously. However, the purpose of the Task Force
present insurmountable problems from the stand-
has been to define and identify the problems in the
point of developing needed revenue sources for the
area of transportation. The assignment of priorities
different modes, except that in the case of urban
to the various programs must be accomplished by
transit there may be a significant gap between pro-
the Governor and the State Legislature.
6
Resource Requirements
*
A. Total Cost of
B. Public Capital
Transportation Services
Outlay Requirements
In order to develop an appreciation for the magni-
Although a very large part of the total annual
tude of the total financial resources required to pro-
expenditure for transportation will represent the
vide, maintain, and operate transportation services
investment and expenditure of private money, the
in the State in coming years, the Task Force has ex-
magnitude of the public expenditure to be made by
amined some gross statistical relationships. Although
the people of the State to 1985 is significant. Since
necessarily very crude estimates, it is felt that these
the public expenditure figures developed by the Task
estimated expenditures serve to place some degree
Force relate to transportation systems which may be
of quantitative dimension on the total requirements
extended considerably or be replaced by new sys-
for resources.
tems, they should be considered*as only quantitative
The relationship of total expenditures for all forms
estimates of public expenditures for transportation.
and kinds of transportation goods and services in
Similarly, and for comparable reasons, it is not pos-
the State was examined as a function of the Gross
sible to identify the specific source - whether local,
National Product (GNP). It was estimated that be-
State, or Federal - of these public funds.
tween 15 and 20 percent of the GNP is annually
Four basic categories of transportation service
spent for transportation in the United States, and
were considered and estimates (in terms of 1968
that California has traditionally accounted for about
dollars) were developed of the total public funds
10 percent of this total outlay of public and private
believed to be needed from 1968 through 1985 in
funds.
each of these categories:
The GNP in 1967 was determined to be $763 bil-
*
Roads and highways
lion, which would indicate that approximately $150
* Airports and airways
billion was spent in the United States for transporta-
Urban mass transportation
tion goods and services. Assuming that California
Ports and harbors
accounted for about 10 percent of this expenditure,
The estimates presented below are based on var-
around $15 billion was spent in California for trans-
ious data available to the Task Force as well as, to a
portation last year. This figure includes all expendi-
considerable extent, discussions with transportation
tures related to transportation such as construction
experts on the Staff of the Institute of Transportation
of highways, freeways, roads, and streets; port and
and Traffic Engineering of the University of California.
harbor construction; payments of freight and ship-
1. ROADS AND HIGHWAYS
ping charges; purchases of airline, railroad, and bus
Total public outlays for the construction, opera-
tickets; and purchases of fuel, parts, and mainte-
tion, and maintenance of State highways and free-
nance services.
ways, county roads, and city streets through 1985 are
estimated to be around $28 billion. This figure repre-
sents funds administered by local, State, and Federal
agencies.
If a projection of probable GNP to the year 1985
The figure of $28 billion is based on a continuation
is made, it is conservatively estimated, assuming an
of our present program of freeway and highway con-
average growth in GNP of only 4 percent per year,
struction in the State and includes a significant up-
that a GNP in the neighborhood of $1600 billion will
grading and improvement in our system of local
be achieved. If it is further assumed that roughly the
roads and streets as "collector/distributor" systems.
same portion of the GNP is spent for transportation
It also assumes an increased public investment,
in 1985, the total annual national outlay for all forms
though relatively small, in provisions and facilities
of transportation goods and services in 1985 may be
for the accommodation of vehicles at rest (e.g., park-
around $300 billion. Assuming that California contin-
ing facilities integrated with the freeway/highway/
ues to account for about 10 percent of this total
road/street system).
(again a conservative assumption), the State will be
In addition to the above outlay of public funds,
spending approximately $30 billion per year for all
approximately $2 billion is estimated to be required
forms of transportation goods and services - about
through 1985 for the development and installation
twice the present annual rate - in less than twenty
of advanced systems and equipment for the surveil-
years. Thus, even conservatively speaking, it is evi-
lance and control of traffic on the road and highway
dent that $400 billion of public and private funds
system.
may be expended in California for transportation
Thus it is estimated that a total public investment
goods and services between now and 1985.
of about $30 billion will be required through 1985
9
for streets, roads, and highways within the State.
aviation revenues at airports tend to increase less
Much of this public capital investment will be pro-
than proportionately to increases in air traffic, it is
vided through existing programs of highway finan-
considered probable that the potential revenue avail-
cing which are basically user charge programs. The
able for nonaviation improvements will tend to in-
extent of Federal participation in the future cannot
crease at roughly the required rate.
be accurately estimated, but it is assumed that the
3. URBAN MASS TRANSPORTATION
allocation of Federal funds to the State for highway
purposes will continue in some form.
The Task Force has found it somewhat more diffi-
It appears to the Task Force that in the future our
cult to arrive at an estimate of the probable require-
present concepts of highway financing can be ex-
ment for the expenditure of public funds for urban
tended to support a program of the general order of
mass transportation in the State through 1985 than
magnitude indicated. There will be a deficit or gap
in the case of some of our other modes of transpor-
tation. This is because the ultimate extent and nature
if current rates of revenue collection are merely proj-
ected, but it would appear that increased pay-as-you-
of such systems are not presently well defined. The
go user charge financing (e.g., increased fuel tax,
Task Force therefore based its estimate of public out-
motor fuel sales tax, toll charges, etc.) could be
lays predominantly on the assumed development of
adopted to meet this deficit.
rapid transit systems in the larger areas of Los Angeles
and Southern California, the San Francisco Bay area,
2. AIRPORTS AND AIRWAYS
and the San Diego area between now and 1985, and
Rapid technological changes have characterized
on outlays for bus systems required in our smaller
the air transportation industry in the past, and further,
cities.
dramatic changes are anticipated in coming years.
Additional investment of public funds will be re-
The introduction of the very large jet aircraft now
quired to replace equipment and expand the capa-
on the drawing boards and of supersonic transport
bilities of various bus transit systems throughout the
aircraft in the near future will require some signifi-
State. It is also assumed that the development of rail
cant changes in our ground facilities and in the air
rapid transit systems in our larger metropolitan areas
traffic control facilities currently available.
will tend to increase the requirements on our bus
Improvement of the airways system will be pri-
systems since the bus systems must be developed as
marily through the upgrading of the Federal facilities
a collector/distributor for the fixed route rail systems.
currently in operation. This upgrading may involve
Based on all available estimates and tentative plans,
the expenditure of perhaps $500 million in California
it was concluded that a public capital investment of
between now and 1985.
from $8 to $12 billion may be required through 1985
The modification, expansion, and reconfiguring of
to procure the facilities and equipment needed to
airport terminal facilities to accommodate the vastly
provide the necessary urban mass transportation serv-
increased numbers of passengers and quantities of
ice in the State. In addition to this capital outlay, it is
air cargo which can be carried by the next generation
estimated that public underwriting of operating defi-
of jet aircraft are estimated to require the expenditure
cits, interest charges, etc., in our mass transit systems
of approximately $2.5 billion in public funds through
may require public funds on the order of $3 billion
1985. This figure does not include the great expendi-
through 1985. Therefore, a total public outlay of
tures which will be made by the airline industry and
perhaps $15 billion seems to be a reasonable estimate
commercial air cargo companies for new aircraft,
at this time.
maintenance facilities, and air cargo facilities. How-
Present public funding programs do not provide
ever, the figure does include the amount of public
for a requirement of this magnitude; therefore, an
funds to be expended to improve conditions at the
acceptable statewide approach to the underwriting,
interface between airport terminal facilities and con-
support, or subsidy of urban mass transit systems
necting ground transportation systems. The need for
should be developed. A more detailed discussion of
efficient ingress and egress of passengers and cargo
some of the various financial approaches to the urban
to and from airport facilities will be satisfied in part
mass transportation problem is presented elsewhere
by expenditures at the airport and in part by expendi-
in this report. The Task Force believes that the total
tures for the street, road, and highway system and for
costs of capital investment and operations of modern
urban mass transit systems serving the airport.
urban mass transit systems cannot be realized from
In total, a public capital investment of around
fare box revenues alone, and that public support in
$3 billion is estimated to be required for airport and
one form or another is necessary for both social and
airways systems through 1985. It appears to the Task
economic reasons.
Force that this outlay can largely be provided through
It is evident to the Task Force that the people of
the continuation and extension of the present user
California have a valid obligation to assume some
charge approach and that there should be no sig-
responsibility for the development and support of
nificant gap between estimated capital investment
efficient urban mass transportation systems. Although
requirements and potential revenues. Although non-
some initial public expenditures in the form of capital
10
investments in transit equipment and facilities will be
required, a portion of this initial outlay and operating
costs may be recoverable from operating revenues. In
terms of the tangible and intangible returns through
C. Summary
providing an improved degree of mobility to that
segment of the public residing in our urban areas,
The estimates presented above are only rough
the expenditure of public funds on the order of $15
indications of the order of magnitude of public
billion through 1985 appears to be both desirable and
expenditures believed to be required to support the
well within the financial capabilities of the people of
construction, improvement, expansion, operation,
this State. The problem is in reaching agreement rela-
and maintenance of public transportation facilities
tive to the applicability of different systems to var-
and services throughout the State through 1985.
ious areas, the demand for such services, the desired
These total public outlays (in terms of 1968 dollars)
extent of service, and deciding how to pay for the
are summarized as follows:
system.
($ billion)
4. PORTS AND HARBORS
Roads and highways
30
The State's ports operate under a variety of differ-
Airports and airways
3
ent organizational arrangements, but in general they
Urban mass transit
15
are all constituted as profit-seeking public corpora-
Ports and harbors
2
tions. Although certain ports are indirectly subsidized
Total
$50
to a degree through the receipt of certain municipal
services at taxpayer expense, normal capital improve-
It should be re-emphasized that the above figures
ments usually can be underwritten by their operating
should not be construed as constituting the Task
revenues. In coming years, it may be that certain
Force's recommendation of expenditures. Before
expansion needs such as the extensive dredging and
actual levels of appropriate expenditures can be
reclamation of land cannot be met from normal oper-
determined there must be extensive studies of alter-
ating income. The extent of this deficit cannot be
natives among the various modes of transportation
predicted accurately at this time, but it is estimated
involved.
that total public funds approximating $1 to $1.5 bil-
As observed above, it appears to the Task Force
lion may be required for our ports through 1985.
that a significant portion of this total public outlay
Much of this sum should be recoverable from operat-
will be available through the continuation or exten-
ing revenues of the ports.
sion of present financing and revenue generating
programs. It has been estimated that perhaps $30 to
$35 billion of the total amount of public funds re-
quired over the next seventeen years or so can be
provided through our existing concepts of user
charges and pay-as-you-go financing such as fuel
taxes, fare box revenues, service charges, user fees,
in-lieu taxes, etc. The continuation of a number of
programs of Federal aid and Federal fund allocation
to the State is also assumed. Thus, the expected
"deficit" or funding gap would appear to be essen-
tially related to providing urban mass transportation.
As discussed above and in the next chapter, this is
the area where inventive and innovative thinking is
urgently needed. Some combination of user charges,
debt financing, and public subsidy will be required
to provide effective urban mass transportation serv-
ices in the years to come.
In the future the relative demands for public in-
In addition to this expenditure of public funds, the
vestment in various individual modes of transporta-
costs of harbor and channel maintenance, a service
tion must be evaluated within the broader context of
traditionally provided by the U. S. Army Corps of
a total statewide system of transportation services.
Engineers, should be considered, although not a
The present policy of earmarking certain public funds
direct outlay by the people of California, a part of
for the support of the specific mode of transportation
the total public outlay of funds for our ports and
from whose users they were collected will similarly
harbors. A recent estimate by the Corps of Engineers
need to be re-examined. There seems to be increasing
indicates that approximately $500 million will be
awarness that what is needed is a system of effectively
required for harbor and navigable waterway im-
interfacing transportation services rather than a num-
provements and maintenance through 1985.
ber of casually interconnected modes of transporta-
11
tion. Ultimately, income derived from any of the
public-created transportation systems could be
viewed as a public resource which in turn should be
spent in a manner which will produce the greatest
possible return to the people in terms of our overall
transportation and social and economic needs. The
valid requirements of the particular mode from
which the income was originally derived should pos-
sibly be given preferential consideration under any
such concept.
To reiterate: Since the total estimate of $50 billion
was arrived at on the basis of rough mode-by-mode
projections, the Task Force has included it only to
indicate the general order of magnitude of the task
involved. This particular figure may be substantially
increased or decreased, depending on the type and
quality of transportation services which are provided,
and also on benefits to be derived from the balance
among the several modes, as well as from the in-
troduction of new transportation concepts in the
future.
12
Major"Transportation
Problems and IssueS
It is also important to stress the need for careful
A. Introduction
engineering-economic analyses of alternative solu-
tions to transportation problems. The simple en-
dorsement of the desirability for a system of balanced
The Task Force has determined that the most cri-
transportation is not the answer. What is needed is
tical need of the State of California in the field of
a careful analysis of the alternatives available and an
transportation is a recognition of the urgency of es-
effective, broadly based, cost-benefit evaluation of
tablishing a dynamic policy which will foster and
such alternatives. The people of this State should not
facilitate the provision of a system of transportation
be expected to commit themselves to massive ex-
services to meet the needs of all the people and in-
penditures for specific modes of transportation with-
dustries of the State. No layer upon layer of com-
out having access to information which permits them
mittees, agencies, commissions, or power structures
to evaluate the relative benefits which might be ob-
can succeed in obtaining a viable solution to the
tainable if similar sums of money were invested in
transportation problems unless and until planning,
other modes of transportation or even in nontrans-
financing, administration, and regulation are con-
portation items which will attack the problems of ur-
ceived and executed realistically and constructively
ban congestion in another way. This is not to imply
on a cooperative statewide basis. A forward-looking
that the Task Force takes a stand against any specific
policy towards both private and public transporta-
mode. On the contrary, it is felt that the provision of
tion systems must be developed and adopted by the
a truly balanced system of transportation services is
State and an organizational/financia structure at the
crucial to the social and economic well-being of the
State level must be created and provided with suit-
people of California. What is necessary, however, is
able authority to permit this policy to be realized
the careful and objective evaluation of all aspects of
effectively. The personnel resources and capabilities
the alternatives available before arriving at final solu-
of all segments must be mobilized and utilized -
tions. The capability to undertake such objective
State governmental agencies, private industry, vested
evaluations is not now available at the State level
interests, local, regional, State, and Federal bodies
and is generally "built out" of the public and private
- to permit the statewide system of transportation
agencies existing in the State.
services to be developed and evolved not only to
The State must accept a responsibility to take
meet the current needs of today but also to provide
positive and effectual steps which will encourage the
the planning necessary for the future.
comprehensive analysis of all sides of such socio-
In recognition of the thoughts expressed in the
economic problems as urban mass transportation,
preceding paragraph, the Task Force acknowledges
the provision of adequate transportation services and
the existence of a number of reports and proposals
facilities to our recreation areas many miles removed
pertaining to studies of the State's transportation
from our population centers, and the assurance of
system. In analyzing these proposals, however, it
adequate means of transportation in the rural areas
was concluded that their applicability can only be
of the State.
determined after the State has instituted the forward-
In the case of our urban areas, a particularly urgent
looking policy outlined above. As now constituted,
problem relates to the matter of transportation serv-
the State lacks the capability to evaluate and assess
ices in our economically depressed areas. Certain
such reports and proposals in an adequate manner.
recent experimental programs, such as the Transpor-
A very important element of planning and de-
tation-Employment Project conducted by the State
veloping a system of transportation services is the
Transportation Agency in South and East Los Angeles,
continuing recognition of the vital relationship be-
have given strong indications that the mere provision
tween transportation planning and statewide general
of adequate mass transit service alone will not solve
development planning. The development of infor-
the more basic problems of the availability of jobs
mation relating to land use planning must be ac-
and obtaining of employment; however, transporta-
complished in conjunction with the development of
tion is a factor in such cases, although perhaps not
information and research data on traffic flow
the controlling one. Certainly transportation plan-
patterns, storage characteristics, and overall require-
ning and decisions to extend and improve urban
ments for the movement of people and goods. It is
mass transit services should be based on other cur-
essential that our general plans for the future devel-
rent programs of job development, training, and
opment of the State of California include considera-
placement; but the development of adequate mass
tions relative to providing maximum transportation
transportation services should not be downgraded,
capacity and safety while simultaneously considering
for its availability is a definite factor in the ultimate
access to land uses and the preservation of land use
solution of our poverty area problems.
amenities. Such general planning is defined in the
Similarly, the people of this State have a responsi-
Phase II Report on the California State Development
bility to assist in the provision of adequate public
Plan Program recently issued by the State Office of
transportation services for the young, the elderly, the
Planning.
physically incapacitated, and citizens who are other-
15
wise unable to provide their own means of mobility,
complished without some degree of traumatic
regardless of their economic status.
change to our traditions and patterns of urban and
Many of the forseeable improvements in transpor-
rural life.
tation in coming years will result from technological
Although our present traffic problems are serious,
improvements including mechanization and auto-
and many deficiencies urgently need correction, the
mation. These trends may reduce overall require-
State of California does have a positive program
ments for the labor force in the transportation
underway and steady progress is being made. Ad-
industry, and in some instances will change skill
vanced engineering and construction methods have
requirements. Such evolutionary changes are essen-
contributed significantly to the efficiency and safety
tial if our system of transportation services is to meet
of our streets, roads, and highways. The addition
the changing requirements of California in the future.
each year of hundreds of miles of new and improved
It is also essential that the labor force affected by
freeways and highways throughout the State pro-
these technological changes be provided with ade-
vides ever-increasing opportunities for Californians
quate guarantees of secure income through all avail-
to travel safely, rapidly, and easily in many directions
able methods, but with particular emphasis on the
for a multitude of purposes.
upgrading of individual skills through job training
In our development and utilization of the automo-
and retraining.
bile, we have failed to recognize that the automobile
Without attempting to define or delineate a real
is a part of a total system of transportation. This in-
or conceptual system of statewide transportation
cludes not only the vehicle itself, but also the people
services, the following discussions present the salient
who drive it and ride in it, the roadways over which
features of the Task Force's findings with respect to
it travels, the devices which guide and control it as
the major modes of transportation of interest to the
an element of the traffic flow, the services and facili-
people of California. In some cases, areas are noted
ties required to maintain and supply it, and the
where further study and development will potentially
terminal facilities necessary to house and store it
result in the evolution of a more effective and better
when it is not in active use. Additionally, the relation-
integrated system of transportation services in the
ships between the automobile system, other modes
future. Among these, in almost all cases, are the
of transportation, and the environment with which
potential advantages to be derived from the inter-
they interface have not been properly identified,
mingling or joint use of both public and private
understood, provided for, and improved in a man-
facilities for the movement of both people and
ner appropriate to achieving a truly integrated trans-
goods.
portation system; nor, in fact, have our land use
plans and route selection processes been significantly
modified to take full advantage of the potential bene-
fits of the automobile.
B. Road Transportation
Driving for pleasure is a significant recreational
pursuit in California, and greater emphasis on scenic
highways, parkways, and rest stops would appear to
1. THE AUTOMOBILE
be indicated. Similarly, new thinking appears de-
Every age has evolved its own form of transporta-
sirable in planning and providing transportation in
tion. These forms of transportation have become the
our recreation and wilderness areas. Many such areas
matrix of change, without which the character of our
could be well served by bicycle and bridle paths,
urban patterns would remain substantially the same
footpaths, or tramways rather than by conventional
from one era to the next. Of all the various means of
automobile roadways.
individual transportation which have existed, the
All of these considerations must be included in
automobile has probably been the most widely used.
evaluating and planning our statewide transportation
While it is relatively easy to list the problems it causes
system.
us today, it is almost impossible to list all the benefits
2. THE BUS
it has given to the individual man and his family.
The public passenger vehicle, or bus, is one of the
Despite the vast numbers of automobiles and the
most flexible mass transit vehicles ever devised. It
frequency of their use, this mode of transportation
is barely sixty years old - a nearly unmeasurable
can originate and terminate whenever and wherever
period in relation to the cycle of human transporta-
the need arises and alter its route as necessary to
tion modes developed since prehistoric times. But
accommodate changes in desire lines and traffic flow.
it has only been during the past twenty-five years or
Its disadvantages are also readily apparent. It must
so that we have begun to marshal our resources to
compete for space on the street, road, and freeway
capitalize on the benefits of this remarkable mode
network during those periods when private auto-
of transportation. In California we have constructed
mobiles are also there in great numbers. It is also
an extensive network of improved streets, roads,
considered by most to be a poor substitute for the
highways, and freeways, but this has not been ac-
freedom of movement available through the use of
16
the automobile; and it is generally claimed to lack
the economic well-being and progress of California.
the comfort and service characteristics which it could
The number of trucks and their related tonnage
potentially have.
capacity are increasing SO rapidly in California that
One suggested approach to minimize these dis-
the current problems of traffic planning and road-
advantages lies in continuing studies of feasible
way use must be given immediate consideration if
means of reserving part of, or providing some priority
we are to continue to speed the movement of our
use of, the road network for buses. It may be prac-
goods by this mode. Study of such possibilities as
ticable in certain locations to provide priorities for
designation or restriction of certain streets, highways,
access of buses through metered entrances to high-
bridges, and parking areas for commercial vehicles
ways and freeways and by reversed lanes on urban
only would appear to be potentially consistent with
streets at certain times of the day. Such possibilities
the socio-economic importance of this mode of
should continue to be explored to increase the effi-
transportation.
ciency and decrease the congestion associated with
the use of the bus as a mass transit vehicle. Similarly,
29
the upgrading of the vehicle itself and the quality
and frequency of its service could conceivably en-
hance its appeal significantly.
The inherent flexibility of urban and inter-urban
bus systems in terms of their capacity to respond to
varying demands and to modify routes, speeds, and
frequency of operation without requiring the addi-
tion or loss of capital investment suggests that there
are many possibilities which might make more ex-
Although the automobile, the bus, and the truck
tensive and efficient use of this mode of transporta-
all differ in their specific nature and functional usage,
tion. Design improvements to increase the efficiency
they all represent important parts of an integrated
and compatibility of the bus with the environment
road transportation system which can, with thought-
in which it must operate can also increase its
ful planning, be highly flexible and efficient in the
potential.
movement of people and goods. Continuing assess-
The encouragement of inventive technology in the
ment should be made of our complex set of govern-
method of fare collection, a significant factor in the
ment regulations and private practices to assure they
economical operation of a bus system, would in-
do not place undue restrictions on individual ele-
crease the productivity of this effective mode of mass
ments of this system, and to ensure that the greatest
transit. Approaches to automation should be con-
possible return from this total system is obtained for
tinually studied and evaluated to minimize the in-
the benefit of our economy.
crease in labor costs which represent one of the
4. THE ROUTE
major costs of bus system operations today.
Within the framework of current engineering and
3. THE TRUCK
scientific technology, the means for analyzing and
solving many of the problems and shortcomings of
While the State system of streets, roads, and high-
our roadway system are now at hand. Typical of
ways is essential to the movement of people to their
these problems are:
multiple destinations, it serves perhaps an even more
important function in the movement of goods, sup-
Traffic on our freeways is often needlessly com-
plies, products, and commodities by cargo vehicles,
plicated and slowed both by the saturation effect
or trucks.
evident during peak traffic hours and by the charac-
In any consideration of the California trucking
teristics of many on- and off-ramps. Feasible engi-
industry, it is essential to recognize the importance
neering solutions to such problems should continue
of both "for-hire" and "proprietary" operations. In
to be sought and implemented as rapidly as possible.
addition to the for-hire carriers, which are available
The concentration of effort on our freeways and
for the common carriage of goods and commodities
super-highways, particularly since World War 11, has
regardless of their ownership, the proprietary trucks,
gradually degraded the quality of our other street
which are owned and operated by individual private
and road systems. These should be given greater
businesses, also play an important part in the move-
attention if our total roadway system is to function
ment of cargo in the State through the transportation
at maximum effectiveness. Our street systems could
of the products and raw materials of their private
be greatly improved in efficiency and safety by the
owners. Such operations share the same responsi-
judicious provision of underpasses, widened
bilities and problems as those of the for-hire carriers.
thoroughfares, one-way designations, automated
The proprietary as well as the for-hire segment of
controls, and similar traffic engineering approaches.
the trucking industry should be recognized as a con-
While considerable progress in this area is evident,
tributor to the important role which trucks play in
increased emphasis is warranted.
17
Route planning for highways, railways, water-
cilities of public carriers, the parked car is not in use,
ways, and airways has been greatly influenced by
but the automobile parking space is no less a terminal
topography and the lack or prevalence of popula-
or extension of the systems of routes which polarize
tion. In the future, increased emphasis must be
around home, work, shopping, entertainment, and
placed on consideration of how each route influ-
transit transfer points.
ences and interacts with other routes; on the de-
Efforts to minimize the land usage requirements
mands which modern concepts of intermodal
created by vehicle "dead storage" have included on-
transfer and complete origin-to-destination transpor-
street, underground, and multistory parking facilities.
tation place on correlating routes for one mode with
Air rights over public rights-of-way and ground
routes of another mode; on terminals for intermodal
rights under elevated freeway structures have also
and intramodal transfer; and on the complex social
been considered and used to some extent. However,
and economic factors and the traffic generation
the development of efficient methods for handling
characteristics associated with our recreational, so-
the automobile at rest remains one of the more
cial, and commercial centers.
pressing problems to be solved.
The financing concepts for both highways and
The provision of parking facilities in the wrong
parking facilities should be re-examined, with careful
locations, for instance by failing to consider the abil-
consideration being given to the relative merits of
ity of the distribution system to accommodate the
both free and charge methods. In view of the critical
demand, could aggravate rather than improve the
total traffic situation.
nature of our highway financing program now and
in the foreseeable future, continuing attention should
be given to the possible merits of developing a sys-
tem of single purpose toll roads in the State at some
time in the future.
A multitude of rights-of-way exist in our cities
and in unincorporated areas of the State. Continuing
consideration should be given to using these public
channels to provide maximum efficiency, such as
techniques which result in vertical and horizontal
separation of functions.
Except in the case of freeway interchanges, ve-
hicles are almost totally restricted to single-level
movement. The possibility and feasibility of provid-
ing multilevel roadways, with expeditious accommo-
dation of one-way traffic lanes, should continue to
While the construction and operation of parking
be studied and evaluated.
structures and facilities should remain essentially
An increasingly wide gap exists between the
within the province of private enterprise, as at pres-
speed and efficiency of freeway travel and the ability
ent, it seems desirable for appropriate agencies of
to travel quickly and conveniently to a particular lo-
State government, such as the State Division of High-
cation off the freeway. Continuing traffic engineering
ways, to work with local agencies in efforts to co-
studies should be made of the interconnections be-
ordinate the designs and plans for such facilities with
tween our freeways and other street and roadway
the design and construction of the roadways which
such facilities must serve, as well as the communities
systems, as well as of ways to increase the efficiency
which they must serve.
of the latter.
Regardless of the agencies involved - private en-
Preservation of the quality of the environment
terprise, city, county, or State - the plans for the
and of natural resources has become a matter of
construction of future roads, streets, highways, and
great public concern. Increasing demands for use of
parking facilities must include intelligent solutions
resources, particularly non-appropriative use such
to the problems presented by the automobile at rest,
as viewing and photography, require a diligent effort
both at its origin and at destination. Many of the
at all levels of government to protect these values
problems of our central business districts today are
and ensure their perpetuity. Therefore highway
related in one way or another to the automobile at
planners should include a thorough evaluation of
rest and its intrusion into travelways from its point
the effects upon the environment and related natural
at rest.
resource values as a part of all highway route studies.
The State has a responsibility, in addition to the
coordination of its highway system with parking fa-
5. TERMINALS
cilities, to assist in establishing broad standards to
Contrasted with the activities of loading and un-
govern the provision of adequate parking facilities,
loading of passengers and goods at the terminal fa-
particularly in business and industrial areas.
18
6. FINANCING APPROACHES
seem to be regarded as two different things, they
Needs for improvement and extension of the
should more properly be considered as two com-
State's street, road, and highway system will continue
plementary systems of urban mass transportation,
to grow in the future, as will the needs for other
typically made up of a local collector/distributor sys-
modes of transportation. The financing and adminis-
tem in conjunction with a rapid or mainline system
trative arrangements under which our highway trans-
such as a subway, surface, or elevated system on a
portation system has been developed have been
special right of way.
relatively successful in the past, and include well-
Some cities and urban areas can be served quite
defined roles for private enterprise, local, State, and
adequately by a local system alone, while other areas
Federal government agencies. A master plan for State
may have a need for a combination of both local
freeways exists along with a select system for local
and rapid modes of urban mass transportation.
roads. Current issues regarding road and highway
The success of any urban mass transportation sys-
financing can in general await resolution until the
tem depends on its capability to respond to the prob-
regular reports on State highway, county road, and
lems it is trying to solve. All related factors and
city street needs (under Sections 188.8, 256, and 2156
influences, not just the movement of a given or esti-
of the Streets and Highways Code) are rendered in
mated number of people at some selected frequency
1969. Still broader issues should be dealt with in the
from one point to another, must be considered -
process of preparing a comprehensive master plan
street plans, parking facilities, regional development
of transportation for the State as recommended by
plans, tributary transportation modes, etc. - at both
the Task Force in Chapter V, Recommendation 5.
ends as well as at intermediate points in the system.
In order to realize a balanced system of transporta-
Another essential aspect of an urban mass transit
tion in the State, the methods of financing and means
system, in particular a rapid transit system, is a feas-
of distributing available revenues for roads and high-
ible financing plan. While it is generally agreed that
ways should be coordinated with the plans and pro-
urban mass transportation systems cannot be ade-
grams for other modes of transportation. The
quately supported from fare box revenues alone, the
financing and allocation of highway funds to func-
overall realities of the situation and the specific cir-
tional and geographical areas of the State involve
cumstances of each individual system must be
many factors and considerations, not the least of
weighed to develop the true cost and the socio-
which should be the interrelationships of the high-
economic benefits to be derived in order to deter-
way system with other modes of transportation. A
mine the most equitable form of public underwriting
comprehensive transportation plan for the entire
of transit system.
State would not only facilitate such intermodal co-
While individually operated buses can and should
ordination but would, in fact, establish the criteria
be upgraded, bus transit alone cannot take the place
upon which the capital budget and capital outlay
of a system made up of both buses and fixed-route
requirements for the highway system, as an integral
rapid transit in those urban areas where both modes
part of the total transportation system, should be
are warranted. Due to the extremely great capital in-
based.
vestments required for a modern rapid transit system,
the sensitivity of such systems to inadequate plan-
C.
Urban Mass
ning and design or incomplete integration with the
needs and characteristics of the regional area they
Transportation
must serve should be fully recognized and carefully
considered. For instance the effect of a fixed-rail
rapid transit system on the growth patterns of the
1. RAPID TRANSIT AND MASS TRANSIT
areas it serves, or does not immediately serve, must
One reason for the controversy and confusion
be carefully evaluated and analyzed within the larger
presently surrounding the various current and pro-
framework of total community planning. Similarly,
posed programs for conveying large numbers of
the effect of a rapid transit system on established or
people in urban areas by means of a public trans-
contemplated modes of transportation such as bus
portation system may be the loose usage of terms
systems, feeeways, and airports, which will interface
used to describe the process. In its true sense, mass
with the rapid transit service, must also be carefully
transit (or more exactly, urban mass transportation)
evaluated in the planning of such a system.
is that form of passenger transportation which is
intended to carry large numbers of public passengers
2. USE OF EXISTING RIGHTS OF WAY
on a regular and continuing basis. Rapid transit is a
The suggestion is frequently heard that urban mass
special form of mass transit with normally higher
transportation or freeways could effectively utilize
relative speeds and with physical separation from
abandoned railroad rights of way leading into the
other modes of transportation through the utilization
central business districts of many California cities.
of an exclusive (usually grade-separated) right of way.
The old rights of way of the Pacific Electric Railway
Thus while mass transit and rapid transit often
Company in Southern California are often referred
19
to in this context. It was determined that the operat-
interest and principal payments on revenue bonds
ing rights of way of the Pacific Electric system were
from fare box proceeds. The management of SCRTD,
merged into its parent company, the Southern Pacific
however, has expressed grave doubts, due largely to
Company, in 1965, and that neither Pacific Electric
rapidly rising labor costs, as to its ability to continue
nor Southern Pacific currently has any unused or
without some public funds support in the future.
abandoned rights of way in its possession. Where
The combination of increasing operating costs and
rail service was discontinued on the Pacific Electric
relatively declining fare-box revenues with heavy de-
system in the past, the rights of way were all offered
mands for service in morning and evening rush per-
to governmental agencies and in most cases were
iods places a heavy financial and operational burden
acquired by some branch of local government. Many
on the bus system operators. The effects of rush-hour
of these have now been converted primarily for
traffic jams further complicate the problem since
road and highway purposes. A similar disposition
they result in unsatisfactory and qualitatively non-
appears to have been made of other railroad rights
competitive service at the precise times when the
of way in other parts of the State when they were no
greatest fare-producing potential occurs.
longer required as a part of the route structure of
Although urban mass transportation needs are
the railroad company which owned them.
characteristically intraregional, urban transportation
The use of both existing railroad and highway
systems include substantial collector/distributor
rights of way for new rail rapid transit systems has
functions related to intercity transportation. Neither
been given intensive study by such rapid transit
the intraregional nor the collector/distributor needs
agencies as the Southern California Rapid Transit
appear to be a suitably attractive market for private
District (SCRTD). The laws governing this district at
enterprise. Additionally, the continuing trend of the
least require obtaining the approval of the Public
people of California to concentrate in a few regional
Utilities Commission before any railroad property
areas suggests that there is a definite responsibility
can be acquired, and the PUC must determine that
at the State level to facilitate, expedite, and encour-
the use is in the public interest and necessity and that
age, if not to directly underwrite, urban mass transit
the railroad's ability to provide safe, adequate, effi-
service in California. This role of the State would
cient, and economical service is not impaired by
logically include the involvement of the State, co-
such action. This statutory provision applies to both
operating with local and regional bodies, in the de-
operating and nonoperating rail properties, and
velopment of sources of revenue other than the local
would thus apply to the use of any rights of way
property tax for the financial underwriting of needed
which were to be abandoned by the railroad own-
urban mass transit services in the State's metropolitan
ing them, as well as to operating rights of way. Thus
regions. It is not clear just what form this financial
there appears to be a comprehensive procedure by
support should take, however.
which, in the event that surplus railroad rights of way
Various mixes of financing may be desirable in
came into existence, they could be used for other
different regional areas and will be dependent on the
modes of transportation including proposed rail
general framework of enabling legislation and the
rapid transit systems. At the present time, however,
urban mass transportation standards and service cri-
it does not appear that there are any abandoned or
teria established. This would be in accord with the
unused railroad rights of way in California.
home rule principle and should also be compatible
3. FINANCING APPROACHES
with the different mixes of mass transit modes ap-
propriate to different metropolitan and regional areas
The problems related to the financing of urban
of the State. In any case, it appears that the solutions
mass transportation systems - both bus transit and
to mass transit financing must be based on the follow-
rail rapid transit - are some of the most pressing in
the entire State transportation picture. Increasing
ing general assumptions:
costs of operation, together with declining fare box
That fare-box revenues alone will not be capable
revenues, have resulted in nearly every urban area
of meeting capital expenses and operating expenses.
in the State, with the present exception of the San
That the mass transit problem is primarily local or
Jose area, being served by either publicly owned or
regional in scope and that solutions should meet per-
publicly supported mass transit systems. Most of the
tinent local needs.
larger bus systems in the State are operating at a sub-
stantial deficit. Recent estimates indicate that annual
That property taxes alone will probably not pro-
public support for transit operations (over and above
vide the required level of tax support and that the
fare box revenues) will amount to about $13 million
State must assist local and regional governments to
in San Francisco, $5 million in the Alameda-Contra
develop additional financial tools.
Costa Transit District, and $250,000 in the City of
Given these assumptions, it is still difficult to deter-
Long Beach. A notable exception has been the
mine the State's proper role in mass transit financing,
Southern California Rapid Transit District, which has
largely because the State is not now in an organiza-
been able to meet its operating expenses as well as
tional posture wherein it can evaluate the total mag-
20
nitude of the transit problem, not only as to the
property tax rates, the in lieu tax is generally viewed
financing of capital facilities, but also as to the on-
- in principle, if not in law - as a burden which
going costs of operations and maintenance of these
should continue to be related to property tax bur-
facilities in their various locations throughout the
dens. The current in lieu tax rate of two percent of
State. Thus it may be valid to conclude that the State
market value is roughly equivalent to current average
has an initial responsibility to determine the magni-
property tax rates and assessment ratios. Therefore,
tude of the need or demand for mass transit services
any increase in the current in lieu rate could be con-
and the probable costs of providing them on a basis
strued as the imposition of a highway user tax subject
consistent with the development of similar informa-
to protection under the anti-diversion amendment;
tion for other modes of transportation.
and such an increase, if proposed for the purpose of
The most controversial issue with respect to the
supporting mass transit service, might very well result
financing of urban mass transportation services per-
in not making any additional revenues available for
tains to the question of diverting highway-user taxes
mass transit purposes.
for support of mass transit. This diversion is specific-
It has also been argued for many decades that high-
ally precluded by constitutional amendment at the
way users are in fact being subsidized by public funds
present time, SO any consideration of the possibility
because the full actual costs of our highways are not
would be subject to some future action to amend the
supported by user taxes alone, and therefore similar
State Constitution.
subsidization of mass transit is not only warranted
In addition to the constitutionally allocated motor
but justified by precedent. The consensus seems to
fuel taxes, there are two possible types of motor ve-
be that regardless of the merits of the debate as to
hicle taxes which are generally agreed not to be
subsidy of highway users, the local benefits of our
highway user taxes in the same sense. These are taxes
street, road, and highway system in terms of its socio-
levied on motor vehicles in lieu of personal property
economic value to all segments of the population
taxes and a suggested retail sales tax on gasoline.
render the debate essentially academic. A similar
Most authorities agree that these represent general
argument is also made for the benefits to our society
taxes to which highway users have no preeminent
of an effective system of urban mass transportation,
claim. On the other hand, there appears to be no
particularly since the subsidization of highway users
reason to assume that urban mass transit users have
comes from the added costs he causes in the mainte-
any preeminent claim to such revenues either. In
nance of city streets, traffic control, etc., and these
theory, such funds should be used for whatever pur-
monies are derived from local citizens who may not
pose their counterparts (the general retail sales tax
use the highways. It is also argued that rapid transit,
and general property taxes) are used. Thus, while
in its collector/distributor system, would directly
these taxes can be considered potential sources of
benefit the nonhighway user as well as reduce the
revenue for the support of mass transit services, such
number of highway users and the inherent off-
use would appear to be no more than a matter of
highway costs they create.
expediency and administrative feasibility.
Similar arguments can be made for and against the
proposition of establishing special assessment dis-
tricts whereby the benefiting property owners adja-
cent to the rapid transit stations and rights of way
would be subject to a levy that would equitably take
into account the benefits accruing to them through
increased real property values.
The foregoing discussion has attempted to high-
light some of the major issues and to show that there
are no clear or easy solutions to the problems of pro-
The imposition of a retail sales tax on gasoline
viding adequate public financial support to urban
could be regarded as being as legitimate as the pres-
mass transportation systems. For every suggested
ent sales tax on automobiles, tires, oil, parts, etc. The
approach, there are many arguments which question
issue of gasoline has apparently been clouded be-
its feasibility, and for every argument there are
cause it is argued that gasoline taxes should go to
counterarguments which appear to have some merit.
road and freeway construction if imposed and at any
However, it may be that the practical considerations
rate should not be levied for other forms of trans-
relating to urban mass transportation may ultimately
portation.
be more compelling than the theoretical ones. That
Although automobiles were exempted from per-
is, there is considerable evidence that the provision
sonal property taxes when the in lieu tax was
of adequate mass transit service in our heavily popu-
imposed, the courts have generally held that the tax
lated urban regions is a compelling social obligation,
is actually for the privilege of operating the motor
and a means of providing the necessary financial sup-
vehicle on the public highways. Nevertheless, since
port must be found. This problem is urgently in need
the original rate was related to Statewide average
of reasonable and practicable solution, and it is
21
clearly a legitimate subject for immediate and inten-
inary work in this direction, but greater leadership at
sive study by qualified State, regional, and local agen-
the State level is needed to coordinate these planning
cies. The structure of organization and policy which
efforts. Every effort should be made to complete a
is recommended by the Task Force in Chaper V of
State plan of airway and airport requirements using
this report will provide the basis for proceeding with
all existing resources and plans of local, regional,
such studies on a coordinated and orderly basis in
State, and Federal agencies, together with all avail-
the immediate future.
able inputs from private enterprise. The plan should
include a definition of the State interest in air trans-
portation and recommendations relating to State and
local financing, construction, operation, and mainte-
D.
AirTransportation
nance of appropriate air transportation facilities.
The State should also explore the civil use of mili-
New improvements in our transportation systems
tary air facilities wherever feasible to relieve conges-
have a pronounced effect on our urban patterns. New
tion problems both in the air and on the ground.
forms of transportation also have a tendency to
Joint use arrangements are available under U.S. Air
search for more markets as the prospect of greater
Force and Department of Defense regulations. There
use develops. As the greater use develops, the vehicle
are many fine pieces of aviation real estate in Cali-
itself tends to get ahead of the slower moving proc-
fornia which are owned and operated for the nation's
esses involved in its adaptation to the existing envi-
taxpayers by the military services which might be
ronment. This is dramatically true of aviation and air
shared for the benefit of the air-traveling public.
transportation today.
Any new airport development should be designed
Within the past fifteen years the airplane has be-
with the effects of aircraft noise on the urban com-
come a true common carrier, and the demands on its
munity being given full consideration. In areas where
use have created enormous problems in the air space
airports involve more than one local jurisdiction,
itself and perhaps greater ones on the ground. While
State legislation regulating land use and limiting
tremendous efforts are being put forth to solve these
obstructions to provide air safety will probably be
ground barrier problems, greater effort should be
required.
made to coordinate the solutions to the problems
In all future master planning of airports within the
related to ground facilities in the State. Efforts have
State, coordination with highway, urban mass transit,
largely been concentrated on the quantitative aspects
and other such interfacing modes of transportation
of air passengers. Additional attention must be given
to provide proper access to these airports is im-
to the traffic and volume problems that will result
perative.
from the full realization of the industry's involvement
2. EQUIPMENT AND TECHNOLOGY
in air cargo - mail, express, and freight, inclusively.
While the airframe and airline industries have ad-
1. MASTER PLANNING APPROACH
vanced enormously and have shown a remarkable
Without some form of master plan for aviation, the
capacity to handle tremendous increases in utiliza-
State cannot be in a position to make reasonable
tion and productivity, the adaptation of our cities to
estimates of the requirements for adequate aviation
these advances has lagged. Competition for space on
facilities in the future nor to define its appropriate
the ground to accommodate airports, methods of
role. It is essential for the State to budget sufficient
connecting the airports to the life of the city, and the
funds and staff to the Division of Aeronautics to
annoyances brought about principally by the noise
enable it to develop and maintain an air transporta-
of modern high-thrust engines have brought the
tion master plan. The Federal government is making
airport to full maturity as a political and economic
numerous studies in this field for the purpose of
problem.
assisting local and regional bodies in long-range plan-
While this situation must and inevitably will be
ning. The State has an important part to play in this
resolved, it is compounded by the introduction of
planning and should expand its efforts to secure the
more demanding and critical types of air traffic which
participation of Federal funds for planning as well as
involve a variety of types of airports. While we are
for construction of aviation facilities.
struggling to expand existing airport facilities to han-
The State's airport needs are becoming increasingly
dle the increased number of flights and the increasing
critical as our population, the popularity of air trans-
size of aircraft, there is emerging a broadening of the
portation, and the technological capabilities of the
aircraft spectrum itself. At one end is the supersonic
aircraft and aviation industry all increase at a very
transport which seems likely to come to fruition
rapid rate. Airport and aviation planning in the State
within the next decade or so. The SST will require
should be aimed at implementation on a regional
airports so carefully engineered (and so expensive)
basis. Some groups in the State such as the Southern
that they will undoubtedly involve political support
California Association of Governments and the Asso-
and financial underwriting that is at least regional
ciation of Bay Area Governments have done prelim-
in scope. Of course an airport designed to SST stand-
22
ards would be capable of safely handling the sub-
By providing sufficient planning for separate and
sonic jumbo jets scheduled for delivery in the early
adequate general aviation facilities, the State could
1970's.
make a larger contribution to air safety by separating
At the other end of the spectrum is a need and
smaller aircraft operations from the large scheduled
demand to reduce the total time of a trip in the door-
air carriers. The large airlines will have more than
to-door sense. Much of the time involved in traveling
enough problems of their own with the requirements
from origin to destination at present is spent in going
to maintain adequate terminal facilities without con-
from origin to airport and from airport to destination.
testing for valuable air and ground space with aircraft
A most promising solution to this problem appears
and pilots that are incompatible with the strict airline
to involve a greater utilization of the rotary-wing
standards.
type of aircraft and the currently emerging vertical
The challenge to existing air terminal facilities
and short takeoff and landing (V/STOL) fixed wing
posed by future increases in aircraft capacities will
aircraft. Wider use of these types of aircraft will in
require totally new concepts of handling passengers,
turn place new demands on the urban landscape for
baggage, and cargo. The commercial airlines serving
the provision of suitable new heliports, metroports,
California should be encouraged to continue to de-
and V/STOL airports.
velop improved systems of baggage handling, ticket-
New types of aircraft will require new air traffic
ing, and passenger check-in which will reduce the
control procedures and equipment. While the Fed-
passenger's time in the terminal and permit the
eral government has preempted control of aircraft in
design of more efficient and adequate terminal areas.
interstate commerce, it may be necessary for the
The State could act as a clearing house for up-to-date
State to enter the field of local air traffic control. For
information on the design of new terminals for the
instance, new approach and departure corridors to
commercial airline airports. Overcoming both the
busy metropolitan airports should be provided for
ground barrier (airport congestion) and the sound
V/STOL aircraft so that they would be able to operate
barrier (aircraft noise) are the major problems re-
without causing any attenuation in the flow of the
lating to the future development of large airline
larger scheduled air carriers. The State should explore
terminals.
and support any workable new system of navigation
4. FINANCING APPROACHES
which would correlate with the Federal air traffic
control system to improve air safety and relieve air
It may be necessary at some future time for the
congestion. The great bank of electronic expertise
State to become involved in the financing of terminal
existing in California should be drawn on for assist-
buildings and facilities at major metropolitan and
ance in this area.
regional airports. A seemingly logical means for
State-provided assistance would be through legisla-
3. TERMINALS
tive authorization for extended forms of user charges
Enormous improvements in aviation terminal facil-
such as airport user head taxes. Authorization of such
ities in the near future will be necessary to accommo-
charges may necessarily come through Federal rather
date the expected increase of air passengers and air
than State legislation since it appears that the Federal
cargo volume. In the next seventeen years there will
government has preempted the State's legislative
be some $2.5 billion expended in California for
authority for such forms of user charges.
airport construction, terminal facilities, automobile
Additional general aviation fuel tax funds could be
parking facilities, intra-airport transportation systems,
State-generated for allocation by the State Aeronau-
cargo facilities, and acquisition of new land for
tics Board as local assistance grants for aviation and
existing and new airports, in addition to substantial
airport capital outlay purposes, to be matched by
investments of private funds by airlines and other
local sources. This could involve the abolishment of
aviation-related industries.
some additional portion of the current five-cent fuel
Smaller airport facilities are faced with a contin-
tax refund. Abolishment of two cents of this refund
uing threat of extinction in heavily populated areas
in 1965 resulted in approximately $1.9 million being
because of incompatible land use patterns adjacent
made available annually for local grants. This amount
to them. At the same time, the demand for general
will increase with stepped-up general aviation activ-
(nonairline) aviation facilities is growing at an ex-
ity in the State.
tremely rapid rate. Special attention should be given
At present, the allocation of general aviation-
by the State Division of Aeronautics to the needs of
generated gasoline tax funds sometimes results in
general aviation for additional air space and ground
their availability to airports which substantially re-
facilities. The decline in the number of general avi-
strict general aviation activities. In keeping with the
ation airports in California makes this problem ex-
principle that the transportation mode which gener-
tremely difficult. In 1941, there were 63 airports in
ates the revenue should perhaps receive first consid-
Los Angeles County; today there are only ten. On the
eration for its use, it appears that these limited funds
San Francisco Peninsula there were 17 small airports
should be allocated with greater care to the needs of
in 1941; today there are three.
general aviation in the State.
23
An additional financing method would be to col-
improvement or deterioration. Nature's network of
lect a tax on the fuel used by commercial airlines.
rivers, oceans, bays, and harbors which for centuries
These additional funds could be used to supplement
permitted man and his commerce to move effectively
the Airport Assistance Revolving Fund from which
established many of our urban patterns. The railroad
local grants are made by the California State Aero-
extended lines of commerce and transportation
nautics Board. In this way the scheduled airlines
across the Continent, creating a vast new network
would be contributing directly to the support of air-
which opened up new resources, new commerce,
port development in California.
and new settlements. Although the automobile and
If long-range revenue could be predicted by
the airplane have virtually replaced the railroad as
airport-owning jurisdictions from these sources, and
modes of passenger travel, the railroad rights of way
if permitted by law, these funds could be used to
continue to play a vital role in sustaining those indus-
service general obligation or revenue bonds. Thus
tries that have long depended on the availabiitly of
small amounts of annual funds could be put to
railroad freight services. It is important that proper
greater immediate use by such a source of "seed"
land use planning be done to preserve sufficient land
money.
for future industrial use along the existing rail system.
Another source of revenue could come from the
Also, in some cases residential subdivisions along
adoption of user fees in the aviation field which are
railroad rights of way can be converted from their
similar to those now in effect for the registration and
present state of deterioration into modern, rail-served
identification of motor vehicles in the State. Still an-
industrial parks with resultant multiple benefits to
other possible source of financing for airport needs
the community.
is the use of county-levied aircraft in lieu taxes which
In many California cities the railroad rights of way
currently go to county general funds. If such fees and
formed the skeleton upon which the total transporta-
taxes were used for a special aviation fund, there
tion system, both passenger and freight, originally
would be less demand for general funds for support
developed. However, as a result of the development
of aviation. This would be a more realistic application
of greatly expanded systems of surface streets and
of the user benefit concept of taxation.
entirely new networks of freeways both for local
If regional districts are legislatively authorized by
travel and as links in long-distance travel patterns,
the State, new financing approaches must be ex-
the use of the rail rights of way for passenger travel
plored and developed for these districts. Airport
today is minimal and in a fast-declining trend. How-
development has become a regional problem and the
ever, the railroad right of way itself has not devalu-
State should give support to airport development in
ated. There is talk of using abandoned or unused
regional terms rather than through support to indi-
railroad rights of way for other modes of transporta-
vidual communities or specific airports.
tion service, but there are very few rail rights of way
One fact seems certain: The cost of airports is
in the State's metropolitan areas which fit either
increasing more rapidly than the increase in traffic
description. In general, California rail rights of way
and operating revenues. Therefore the method of
are in daily use for the movement of goods. They
determining where airports should be located, what
should be maintained for this purpose since projec-
functions they should perform, and how they should
tions indicate that the volume of freight to be moved
relate to one another must be found. It also seems
in California will double by 1990, and the continued
clear that the taking of land for aviation purposes can
use of such routes to help move this freight will be
no longer be approached as a purely local matter any
even more important than it is today.
more than the development of methods for dealing
with the sonic boom problem can be solved effec-
2. EQUIPMENT
tively as a local matter. Greatly increased attention
There is today an array of available or planned rail-
and cooperation among various planning groups and
road passenger equipment which is faster than that
agencies is required with respect to the zoning of
for which the original rail rights of way were de-
land in the vicinity of airports, designation of steril-
signed. These include high-speed trains such as have
ized areas in landing and takeoff corridors, and
been introduced in Japan and France as well as
establishment of industrial and residential facilities
possible improvements currently being studied and
in such locations.
tested under the sponsorship of the U.S. Department
E. Rail Transportation
of Transportation, largely as a part of the Northeast
1. ROUTES
Corridor Demonstration Project. Some serious prob-
Urban settlements are constantly changing, and the
lems would arise if such equipment were to be
requirement to move goods, people, and services
applied to existing railroad rights of way in California.
strongly influences whether these changes will bring
The topography of the State required the construc-
24
tion of railroad grades and curves of a severity which
burden of property taxation not borne by most other
will not allow passenger trains to operate over them
modes. Despite such problems, it is apparent that the
at speeds in the range of 150 mph and above, the
railroads are embarked on aggressive programs of
speed range now under consideration for advanced
equipment modernization, cost reduction, and intro-
equipment concepts. Any new high-speed passenger
duction of advanced management and operating
trains will require new rights of way entirely free of
techniques aimed at increasing their efficiency as
grade crossings and without curves or adverse grades.
freight carriers. Operated strictly as private business
Japan's New Tokaido Line was built in this way be-
enterprises, although stringently regulated by gov-
cause existing rail right of ways were not suitable for
ernment agencies, the railroads nonetheless appear
this advanced high-speed train.
to be generally capable of handling their own financ-
The capacity of California's railroad main lines and
ing needs and problems in accordance with estab-
terminals for freight service has been greatly in-
lished policies and procedures within the industry.
creased through introduction of centralized traffic
One area of financing which involves the expendi-
control systems; by installation of electronically con-
ture of public funds is that of protecting the inter-
trolled classification terminals; by improved commu-
sections at grade of railroad rights of way and the
nications utilizing radio and microwave equipment;
street and highway system. As once-adequate grade
by extensive computer installations which permit
crossings became safety hazards to both motor vehi-
faster and more accurate knowledge of the location
cles and trains due to higher speeds and greatly
and status of shipments; by heavy investments in
increased traffic on streets and highways, it became
larger, more varied, and easier-to-load freight cars
obvious that many hundreds of existing grade cross-
compatible with existing rights of way; and by more
ings in the State should either be fitted with warning
powerful, versatile, and economical motive power.
signals and gates or converted to grade separations
Recently, entirely new stretches of freight rights of
in the public interest. There has, however, been diffi-
way have been constructed in the State, and since
culty in establishing an equitable formula for the
the 1950's extensive additional use of railroad rights
allocation of the costs of these necessary improve-
of way has been made by the construction of pipe-
ments to the various transportation modes or users
lines for the economical transportation of bulk petro-
of these modes. Although the railroads have demon-
leum products.
strated a willingness to finance a share of improve-
ments as fast or faster than State, county, and
municipal authorities have been ready to proceed,
3. TERMINALS
California still lags far behind the need for a truly
Existing outmoded railroad passenger stations -
effective program of grade crossing separation and
many of which cover considerable acreage in valu-
other protection.
able downtown locations - offer a potential for use
Sections 189 and 190 of the Streets and Highways
as interconnecting terminals for rail, truck, taxi, pri-
Code instruct the California Highway Commission
vate automobile, bus, helicopter, and V/STOL modes
to budget $5 million annually for grade separation
of transportation. The metroport passenger, luggage,
projects on county roads and city streets. It also re-
mail, and small-package transportation concept inte-
quires fifty percent matching of funds covering the
grates various modes of transportation into a single
cost of each such project by the city or county having
terminal facility design. Of the series of such metro-
jurisdiction over the street or road, after deduction
ports suggested for Southern California, one location
of any railroad contribution, which usually is a min-
receiving serious consideration at present is the rail-
imum of ten percent of the total project cost. In
roads' Union Passenger Terminal in downtown Los
addition, the Legislature has allocated $1,100,000 in
Angeles.
fiscal year 1968-1969 for improving automatic pro-
Although many downtown rail freight terminals
tection at railroad crossings. These funds cover only
are very valuable to the community in their present
about one-fourth of the cost, the balance being pro-
locations, due to their capacity for coordinated truck,
vided by the railroads for each installation.
piggyback, container, and freight forwarder service,
There has never been an adequate showing of
continuing evaluation should be given to the relative
economic or other justification for the seemingly
merits of relocating certain such terminals and yards
inadequate size of these programs relative to other
out of the central city in order to permit use of the
alternative programs of the State Division of High-
valuable downtown land for other purposes more
ways. Neither has there been an adequate demon-
consistent with the high value of such locations.
stration of the prescribed justification for the relative
allocation of costs among the railroads and the local
4. FINANCING APPROACHES
and State authorities. Similarly, the requirement that
Although the railroad industry obviously is con-
a crossing at grade be established and in use before
fronted with the same problems of rising costs of
consideration will be given to protecting or separat-
operation that many other segments of the transpor-
ing the crossing should be reexamined. There is in
tation industry face today, it must also carry a heavy
fact immediate need for a comprehensive study,
25
including a careful analysis of cost-effectiveness, to
1. PORT AUTHORITY STRUCTURE
determine the magnitude of an economically justi-
A great many California ports are publicly owned
fied railway-highway grade separation program. Sim-
facilities which provide the necessary transfer point
ilarly, the need to provide gates and warning devices
for commerce carried by privately owned common
at lower priority crossings and to provide equitably
carrier vessels, railroads, and trucks. They are oper-
for their maintenance should be thoroughly studied.
ated as public corporations by individual port
Financial assistance to the railroads for the mainte-
authorities.
nance of crossing protection equipment was first pro-
California's ports have grown and prospered on
vided by Section 1202.2 of the Public Utilities Code
competition. They are in strong competition among
through legislation enacted in 1965.
themselves to capture trade and shipping destined
for discharge in California. In a more united way they
F. WaterTransportation
are in competition with Eastern and Gulf Coast ports
for traffic to and from the Orient and the Midwestern
United States. Competition has resulted in the pros-
Historically, human settlement has centered along
pering of a number of well-managed ports in Cali-
the traffic routes provided by water, and a large pro-
fornia which possess modern facilities and can offer
portion of our cities are still located on harbors,
competitively low rates. Notwithstanding such ad-
rivers, and other large bodies of water which are a
vantages of a competitive environment, it should be
part of the world's traffic system. In recent years, the
noted that competition among public corporations,
essential value and strength of water as a transport
some of which may be directly or indirectly subsi-
medium has tended to be discounted in favor of
dized through receipt of certain municipal services,
other means of transportation which offer greater
for example, is generally viewed as not being in the
speed and mobility. Competing transportation modes
best interests of the public in terms of the direct and
can be measured and compared by determining the
indirect cost to the taxpayer, adverse effects on pri-
time consumed and the cost of comparable trips.
vate enterprise, and the like. Such competitive prac-
Although water transportation is clearly not the fast-
tices by the ports of California should be carefully
est, there are many types of commodities which can
monitored by responsible public agencies to ensure
be economically transported by water at consider-
that they do not become detrimental to the economic
ably lower ton-mile costs than by competing forms
well-being of individual communities or to the peo-
of transportation. Where the time in transit is not of
ple of California as a whole.
prime importance, many types of bulk cargo can be
shipped by water at very favorable rates, and recent
2. EQUIPMENT AND TECHNOLOGY
developments in large tank ships, container ships,
The traditional types of waterborne carriers such
and other types of bulk cargo carriers have further
as freighters, barges, and ferries are being supple-
increased the economic advantages of this mode of
mented by new types of ocean vehicles, including
transportation.
super-tankers, container ships, specialized bulk cargo
As population centers spread along the seaboard
carriers, etc. In addition, we are on the threshold of
and inland from the sea frontiers, it becomes expe-
the practical application of recent developments in
dient to explore new ways of moving goods and
hydrodynamics, aerodynamics, and a variety of ad-
people by water. Although in a few places the use
vanced power sources ranging from new types of
of such traditional local routes as rivers and canals is
engine design to new types of energy. Some of the
being revived, for example the Mississippi and Ohio
most recent developments, such as the hydrofoil, the
Rivers and the Inland Waterway System through the
winged hull, and air cushion vehicles, merge the
southern United States, the potential of such water-
dynamics of vehicles in flight and on the water.
ways as a part of an overall transportation system
Ocean commerce is undergoing a dramatic change
has been largely ignored. By using new types of water
in cargo handling and distribution methods. The tra-
transport vehicles now becoming available, people
ditional "break bulk" system of loading and unload-
could be moved along the seaboard from one popu-
ing ships, railroad cars, and trucks and of storing
lation center to another, thus taking some of the load
goods awaiting shipment or distribution is being re-
off the airways, highways, and railways. Some design-
placed by systems based on the continuous handling
ers of mass transportation systems feel that if this is
of bulk cargoes and on the packaging of other types
not yet economically feasible, it soon will be. Many
of goods into unit loads.
cities and towns in the interior of California could be
California ports are now preparing to handle con-
reached by today's waterborne craft which can navi-
tainer ships as well as side port ships which are
gate on rivers, canals, and flood control channels as
loaded with palletized cargo forklifts. The ports are
well as in harbors and on the ocean. An in-depth
also incorporating modifications required to accom-
study of this subject might produce some startling
modate very large ships such as super-tankers, large
new possibilities for the efficient movement of peo-
bulk cargo carriers, and other ships whose very size
ple and goods in California.
presents problems in terms of facilities and logistics.
26
Bulk cargo will continue to be a mainstay of the
due to the fact that those which do not enjoy a de-
waterborne freight industry because of the relation-
pressed economy are not eligible for such aid.
ship between speed of transit and financing costs.
A major problem for many of the California ports
Where high cost-to-weight goods are involved, the
is a coming shortage of waterside land on which to
financing costs, including insurance, may make it
build terminals. Several major ports have already
advantageous to reduce the time in transit through
begun programs for building new land by dredging
the use of air shipment. Conversely, for bulk cargoes
and filling. An underlying problem pertains to financ-
of relatively low cost, the advantages of rapid deliv-
ing the construction costs for making this new land.
ery are often more than compensated for by the
The one California port which does not face this
large carrying capacity and low ton-mile rates of
problem is Long Beach, which receives tideland oil
large ocean-going vessels.
revenues and is therefore in a stronger position to
finance harbor improvements from its own total
3. TERMINALS
resources.
For the present and near future, California's ports
The normal business operations of the other Cali-
will be constructing new terminals to accommodate
fornia ports have for the most part been sufficient to
very large bulk cargo and tank ships and the new
support the construction of new terminal facilities
types of container ships. The costs of cargo handling
with funds that can be borrowed on their own secur-
in these new terminals are estimated to be approxi-
ity. However, the great cost of creating new harbor
mately one-third as much per ton of cargo handled
lands for port expansion may not be able to be fi-
as the costs of a conventional berth.
nanced in this way, and may necessitate the institu-
The future results of the general changeover to
tion of a formal program of construction grants on
containerization are generally clear, although the
the State or Federal level.
specific effects may not be seen for the next two or
The maintenance and deepening of channels and
three years. In general, containerization and the ad-
harbors has traditionally been accomplished by the
vent of large bulk cargo carriers are expected to
U.S. Army Corps of Engineers, which is responsible
divide the California ports more radically into major
for the construction and maintenance of the naviga-
and minor ports, with those capable of accommo-
ble waterways in the United States. Normally the
dating the new types of vessels naturally dominating
local port entity is required to participate by the
as major ports. The managements of the ports by-
furnishing of rights of way, etc. The recent action of
passed by these new developments must find new
the State Lands Commission in asserting the State's
vistas in which to operate or they can be expected
rights to the bed of the navigable streams in Cali-
to wither and die.
fornia has increased the difficulty of seeing to it that
Containerization and bulk cargo shipments in the
the waterways are adequately maintained by the
new large ships will create additional problems of
Corps of Engineers. If the State desires to continue
congestion and traffic saturation around our port ter-
its dynamic water transportation industry, it should
minals. When large numbers of containers are placed
study the implications of exacting a charge for mate-
on trucks which then proceed on local freeways, they
rials removed to maintain our navigable channels and
create further traffic congestion. Continued close liai-
harbors.
son with the ports by the State Division of Highways
will be even more necessary than in the past. Some
of this problem can be alleviated by the greater use
of railroad facilities and by the judicious distribution
G. Pipelines
and dispersal of container terminals located in our
metropolitan areas.
All modes of transportation in California, with one
important exception, are obvious since they operate
4. FINANCING APPROACHES
on or above the surface of the ground or water. The
Most often, aid from higher levels of government
one exception is the State's system of pipelines which
is thought of in terms of financial aid. Ports can and
transport significant volumes of liquids and gases
should be operated as efficient businesses, and if
essential to the welfare of the people and industry
properly run they should not require outside financial
of California as well as other parts of the country.
assistance. The American Association of Port Author-
California now has over 8500 miles of private
ities was on record for years against any Federal finan-
petroleum pipelines, of which 1350 miles are classi-
cial assistance to port (terminal) facilities. Despite
fied as common carriers subject to the regulations of
this consistent record, as soon as Federal assistance
the California Public Utilities Commission. California
was offered in the form of loans and grants by the
pipelines annually transport 427 million barrels of
Economic Development Agency, the temptations and
crude oil valued at over $1 billion plus $1.5 billion
pressures became too great. In recent years, numer-
worth of finished petroleum products. Similarly large
ous ports have applied for and received such aid.
quantities of gas and water are distributed by other
This has led to competitive problems among the ports
pipeline systems in the State.
27
The cost of petroleum pipeline construction is
extensively. This practice should be encouraged, and
borne entirely by private firms which own them as
better coordination between the pipeline operators
an alternative to overland bulk shipment of their
and the local agencies which deal with public and
products. Many operators express the opinion that
private construction would further this effort. In this
local authorities are becoming overly restrictive in
regard, liaison has been established with various
permitting new routes. Some of the regulations
government agencies respecting routings and loca-
which control the time that fuel oil can be used as
tion records.
an energy source are also viewed with apprehension.
The gas transmission systems, which supply ap-
proximately 85 percent of the State's population with
fuel for domestic, commercial, and industrial pur-
poses, are largely owned by utility companies oper-
ating under the jurisdiction of the State Public
Utilities Commission.
Concern has been expressed by pipeline owners
with respect to the possibility of electrolysis ad-
versely affecting underground piping systems in the
vicinity of high-voltage, direct-current electrical
transmission lines (employing a neutral ground fea-
ture), should they be constructed in California as
presently planned.
To minimize the potential danger to persons and
property which may result from accidental damage
to pipelines, above-ground location markers are used
28
Transportation
in the Future
+
A. Research and
B. Incorporation
Development
of InnovationS
There is extensive research and development work
While there have been many evolutionary changes
in progress throughout the world directed toward
in our present modes of transportation in recent
the evolution and derivation of advanced concepts
years, the rate of change of these improvements has
and techniques for transportation systems and
often been so slow as to be almost imperceptible to
vehicles. Many of these advanced systems have re-
those not directly involved. In fact, it is the conten-
ceived much publicity and popular discussion: auto-
tion of some that the rate of population increase and
matic highways, electric cars, automated trains,
physical growth in our urban areas, and the corollary
passenger rockets, etc.; and many of the concepts
increase in demand for transportation facilities and
inherent in these advanced ideas will undoubtedly
services, have far outstripped the benefits available
be included as evolutionary improvements in our
to the public at the present rate of change of our
present modes of transportation as well as in new
transportation systems. It is also contended that, even
modes and systems which will be introduced at some
considering the significant improvements which have
time in the future.
been made, present efforts to satisfy our growing
The important word in considering future transpor-
transportation needs with more of the same facilities
tation systems is perhaps "evolutionary," since the
have only resulted in an acceleration of the rate at
introduction of most of these advanced concepts will
which we desecrate the landscape, destroy valuable
probably be on an incremental and gradual basis
community assets, and create noise and air pollution.
rather than as a sudden or rapid occurrence. There
The response of the transportation industry to these
have been progressive changes in many of our pres-
contentions is generally that financial constraints and
ent modes of transportation during the past several
the lack of technological breakthroughs restrict the
years. The railroads have introduced computers to
industry's ability to be responsive to these aesthetic
assist in their operational and management activities;
and environmental demands and problems.
automatic ticketing has become an integral feature
Perhaps an even greater cause of many of the direct
of many transit systems; computers are being widely
and indirect problems associated with the introduc-
used to evaluate the alternatives in route selection
tion of innovations into our transportation systems
and the design of freeways and highways; new and
can be found in the fact that the legislation which
increasingly sophisticated electronic equipment is
has created our public transportation agencies, and
being introduced continually in our aircraft and air-
government regulations and the profit-making moti-
ways systems; new types of cars and completely auto-
vations of our private transportation companies,
mated operations are included in the design of our
effectively restrict the latitude of the activities of
latest rapid transit systems; containerization of car-
these agencies. The successful implementation of
goes and introduction of highly mechanized cargo
innovations into the transportation system is ham-
handling equipment is common in many of our ports.
pered by existing restrictions, both statutory and con-
But these changes have evolved gradually over peri-
tractual, and by new restrictions which are developed
ods of several years, not overnight.
by governmental agencies or private interests. Indi-
The principal reason that these changes have taken
vidual agencies or firms are generally created for the
place slowly is basically one of economics, but it is
purpose of designing, constructing, operating, and
also a fact that even if limitless funds were available,
resolving the problems associated with a single mode
facilities and equipment cannot be constructed or
of transportation - frequently only a portion of a
modified, or operating personnel trained instantane-
single mode. Thus, though the majority of the effort
ously. No public or private entity has limitless funds,
related to a single mode may be performed in a
and for this reason expenditures for changes in trans-
highly professional and competent manner, the focus
portation systems, and the changes themselves, must
is always on a specific mode of transportation, and
necessarily be made incrementally, usually over a
not on the transportation system as an integrated
period of years. Even before there are any direct
entity.
expenditures for capital improvements, much time
The incongruous fact in this situation is that there
and money must be devoted to evaluating and justi-
is an abundance of systems-oriented technical capa-
fying the investment of the capital required. Invest-
bility, especially in California, which can analyze our
ment is an appropriate term whether public or private
transportation system as a whole and incorporate in
funds are being spent, since both public agencies and
such analyses social, aesthetic, and environmental
private business enterprises must be able to demon-
considerations as well as economic, engineering, and
strate that a return on the investment, in either dol-
technical aspects of both present and future transpor-
lars or social benefits or both, can be anticipated
tation systems. As indicated elsewhere in this report,
from the expenditures made for facilities or equip-
however, the State of California does not presently
ment.
possess an organization with the responsibility or
31
authority to mobilize our technical and industrial re-
difficulty lies in demonstrating that such advanced
sources to undertake such a comprehensive study
systems would really be superior, in terms of cost-
and analysis.
effectiveness and economic advantage, as an integral
C. Tomorrow's
Transportation
Systems and Equipment
part of a total system of transportation services.
Much has been written about tomorrow's trans-
Each new vehicle concept which is advanced is
portation equipment: vertical and short takeoff and
invariably proclaimed to be the vehicle best able to
landing (V/STOL) aircraft; air cushion vehicles; elec-
solve one specific problem - the individual com-
tric cars; automatic trains, buses, and personal vehi-
muter problem, the problems of mass movement of
cles; supersonic aircraft; horizontal "elevators"; tube
people, the intercity travel of the intercity traveler,
trains; skybuses; etc. Much additional material has
etc. Even though it seems technologically certain that
been written on advanced equipment concepts: sus-
efficient electric cars can be developed and produced
pension systems, propulsion systems, guideways,
in the relatively near future, we are unable to measure
power sources, control systems, etc. The specific
the applicability and compatibility of this type of
details of any of these advanced vehicle and equip-
vehicle in the coordinated system of transportation
ment concepts will not be dealt with here since so
planned for the future. Thus we do not immediately
much information has already been published and is
proceed to electrify our freeways, and probably
readily available. In addition, it was not the objective
rightly so, pending further study and analysis of the
of the Task Force to carry out detailed analyses of
overall problem.
the technical feasibility or applicability of spe-
This reiterates the point made earlier in this re-
cific concepts or techniques to future transportation
port and reflected in the specific recommendations
systems.
presented in the next chapter: The State of Califor-
A fundamental prerequisite of any of the concepts
nia urgently needs to develop the data and the or-
or equipments proposed for our future system of
ganization at the State government level to mobilize
transportation services, however, is its applicability
our existent technical capabilities in such a way that
to an integrated, statewide system of transportation.
we can tically evaluate the applicability of new
Many of the vehicles and much of the equipment
transportation concepts, or extensions of our present
proposed for tomorrow's transportation have been
modes of transportation, to tomorrow's transporta-
proven feasible on paper, and prototypes of some of
tion requirements.
the vehicles have been built, tested, and are now in
It-is generally accepted that revolutionary ad-
actual production. There are fundamental economic
vanced concepts of transportation will probably not
reasons why these different vehicles and concepts are
be of major concern to California in the near future.
in different stages of development - unless there is
Our immediate transportation needs must be satis-
an established requirement and a ready market for
fied with the basic modes of transportation service
the product, industry is not likely to commit itself to
which we know today, with numerous modifications
production of the vehicle or equipment. We are tech-
and improvements to render them more efficient,
nically capable of building transportation vehicles,
safer, more convenient, and less conducive to noise,
equipment, and systems which appear, at least at first
air pollution, urban congestion, and other such ad-
glance, to be far superior to those of the present. The
verse factors.
32
Recommendations
The following specific recommendations are sub-
local and regional agencies on a matching basis for
mitted by the Task Force on Transportation for con-
specific projects.
sideration and the initiation of appropriate
The Task Force recommends that the California
implementive actions by the Governor and the Legis-
Transportation Board consist of not more than seven
lature. The objective of the Task Force in proposing
members appointed by the Governor, with the ad-
these actions is that their implementation will estab-
vice and consent of the State Legislature, plus, as
lish a solid foundation of organizational structure and
ex-officio members, the Chairman of the Senate
policy analysis capability upon which a viable and
Transportation Committee and the Chairman of the
effective program for the continuing solution of the
Assembly Transportation and Commerce Committee.
transportation problems of California can be
The members of the Board should be Californians
founded.
who possess broadly based knowledge and compe-
The organizational proposals are encompassed by
tence. They should be selected from the business,
Recommendations 1 through 4, while specific items
professional, environmental, and transportation
of transportation policy which the Task Force recom-
fields, and should be appointed on a staggered-term
mends for immediate consideration are outlined in
basis.
Recommendation 5.
RECOMMENDATION 2 - ESTABLISH A STATE
The recommended organizational relationships
TRANSPORTATION PLANNING OFFICE
among the State Transportation Agency, the Califor-
nia Transportation Board proposed in Recommenda-
The Task Force recommends that an office be es-
tion 1, the State Transportation Planning Office
tablished, by the same legislation which establishes
defined in Recommendation 2, the Regional Trans-
the California Transportation Board, to coordinate
portation Districts described in Recommendation 3,
the planning, research, and analysis of statewide
and other elements of the State government are de-
transportation programs. This office should function
lineated in Figure 1.
within the State Transportation Agency as a technical
staff to the Secretary of Business and Transportation,
RECOMMENDATION 1 - ESTABLISH A
and should also provide technical staff support to
CALIFORNIA TRANSPORTATION BOARD
the California Transportation Board. It should be
The Task Force recommends that the Governor
responsible for the collection, analysis, and evalua-
propose that legislation be enacted to create a Cali-
tion of data and information necessary to define the
fornia Transportation Board. This legislation should
requirements for transportation in the State and for
prescribe the duties and responsibilities of the Board
the development of State policies, plans, and stand-
and should provide the means by which it will be
ards for transportation.
funded (see Recommendation 4).
The State Transportation Planning Office should
The initial functions and duties of this Board
coordinate its transportation planning activities with
should be to advise and assist the Secretary of Busi-
the State Office of Planning and other State offices
ness and Transportation in formulating State policy
and agencies whose functions involve statewide plan-
ning in areas relating to or affected by transportation,
and plans for transportation programs within the
such as finance, resources, economic development,
State; to develop and evaluate data and information
agriculture, and the natural environment of the State.
on the inter-relationships among the various present
It should compile and analyze transportation data,
and future modes of transportation of interest; to
evaluate alternative transportation plans and pro-
recommend the nature and extent of State partici-
grams, maintain liaison with local governmental
pation in the development of various transportation
agencies and with the private business sector, and
modes; and to advise as to the effects and implica-
coordinate applications for Federal aid to local and
tions of various alternative transportation plans on
regional transportation programs.
California's social and economic development.
In addition to these initial responsibilities, the
California Transportation Board should conduct a
continuing study and analysis of the needs and re-
quirements of the State of California in the transpor-
It is recommended that the nucleus of the State
tation field, particularly in terms of its organizational
Transportation Planning Office be created by the re-
and financial requirements.
assignment of selected members of the Urban Trans-
As soon as such studies indicate it to be practicable,
portation Section of the Urban Planning Department,
the Task Force recommends that further legislation
State Division of Highways, to this new office. Addi-
be enacted to assign additional powers, duties, and
tional specialists with capabilities in other modes of
responsibilities to the California Transportation
transportation and related social sciences should be
Board which will vest it with considerable autonomy
added to this core staff as soon as possible to pro-
and direct responsibility for the budgeting, alloca-
vide an appropriate mix of research and analysis
tion, and administering of State transportation funds
capability in all modes of transportation of interest
and resources, including funds to be provided to
to the State of California now and in the future.
35
FIGURE 1. RECOMMENDED STATE TRANSPORTATION ORGANIZATIONAL STRUCTURE
GOVERNOR
(Rec. 1)
CALIFORNIA
STATE
TRANSPORTATION
TRANSPORTATION
BOARD
AGENCY
DEPARTMENT OF FINANCE
RESOURCES AGENCY
AGRICULTURE & SERVICES AGENCY
HUMAN RELATIONS AGENCY
STATE
PLANNING
STATE OFFICE OF PLANNING
TRANSPORTATION
COORDINATION
PUBLIC UTILITIES COMMISSION
PLANNING OFFICE
COUNCIL ON INTERGOVERNMENTAL
RELATIONS
36
(Rec. 2)
ADMINISTRATIVE COORDINATION
PLANNING COORDINATION
DIVISION OF
DEPT. OF
CALIFORNIA
DEPT. OF
AERONAUTICS
PUBLIC WORKS
HIGHWAY PATROL
MOTOR VEHICLES
DIV. OF BAY
DIVISION OF
LEGAL
TOLL CROSSINGS
HIGHWAYS
DIVISION
REGIONAL TRANSPORTATION DISTRICTS
(Rec. 3)
RECOMMENDATION 3 - ESTABLISH REGIONAL
with the State Transportation Planning Office in or-
TRANSPORTATION DISTRICTS
der to assure maximum effective utilization of such
The Task Force recommends that regional trans-
Federal resources, and also to assure compatibility of
portation districts be authorized by the State Legis-
the programs within individual regions with the over-
lature so that every part of the State will be included
all State transportation policies and plans. Transpor-
in a regional transportation district. The actual estab-
tation planning is an on-going and necessary function
lishment of geographic boundaries for these regional
which must play a major role in the development of
districts should not be fixed in the initial authorizing
comprehensive plans, and which must proceed even
legislation.
during the development of such comprehensive
The Task Force recognizes the current existence
plans.
of groups of city and county representatives in the
While the activities of the Regional Transportation
State which have voluntarily undertaken programs
Districts should be coordinated and technically sup-
of continuous and cooperative planning. The exper-
ported by the State Transportation Planning Office
ience and capabilities of such regional planning
and the California Transportation Board, the Task
agencies (Association of Bay Area Governments,
Force believes that each regional district should be
Southern California Association of Governments, San
essentially autonomous with respect to the detailed
Diego County Comprehensive Planning Organiza-
implementation of transportation projects within its
tion, Sacramento Regional Area Planning Commis-
region. That is, each district should be a truly regional
sion, etc.) should be utilized wherever possible to
administrative entity in terms of the internal manage-
facilitate the establishment of logical groupings of
ment and governing of its own regional affairs, and
cities and counties into a series of regional transpor-
should not be a subordinate element of the State
tation planning bodies. Such regional agencies
Transportation Planning Office and the California
should also continue to be utilized wherever possible
Transportation Board.
to assure coordination of regional transportation
RECOMMENDATION 4 - FUND THE STATE
plans and programs with comprehensive regional
TRANSPORTATION ORGANIZATION
planning activities. Where regional transportation
planning organizations (e.g., Bay Area Transporta-
As proposed in Recommendations 1 and 2, the
tion Study Commission, Transportation Association
Task Force recommends that the State Legislature
of Southern California) currently are in existence,
appropriate certain sums annually to support the
these organizations should, wherever feasible, be
activities of the California Transportation Board and
appropriately continued or modified to satisfy the
the State Transportation Planning Office.
function proposed for the recommended transpor-
As a corollary recommendation, the Task Force
tation districts. The State Transportation Planning
recommends that these funds be appropriated from
Office and the California Transportation Board
the State Aeronautics Fund, the State Highway Fund,
should assist in the determination of the geographic
and the State General Fund.
boundaries of the regional districts utilizing wher-
ever possible the logical groupings of cities and
RECOMMENDATION 5 - DEVELOP A STATE
counties as established by existing regional planning
TRANSPORTATION POLICY
agencies, and should provide appropriate recom-
The Task Force recommends that the State trans-
mendations to the Secretary of Business and Trans-
portation organization as outlined in Recommenda-
portation and to the Legislature for their formal
tions 1 through 4 develop a comprehensive State
establishment.
transportation policy. Such a policy should provide
The major portions of detailed transportation pro-
the necessary framework of authority and direction
gram planning and implementation planning for the
within which the State can exercise its proper role
districts should be accomplished by the Regional
in the integrated planning and coordination of a
Transportation Districts, operating within the
multi-modal system of transportation services to
encompassing framework of overall State transporta-
meet the needs and requirements of industry, com-
tion plans and policies. Coordination and adminis-
merce, and the people of the State of California.
trative guidance should be provided to the district
It is recognized that there are a number of critical
organizations by the State Transportation Planning
transportation issues immediately facing the public,
Office and the California Transportation Board as
and therefore the Governor and the State Legislature.
appropriate. All applications for Federal aid in trans-
Each of the several modes of transportation, pub-
portation projects should be channeled and pro-
licly and privately owned, must be developed,
cessed through the Regional Transportation Districts
maintained, operated, and financed as effectively as
and coordinated with the regional planning agency,
possible if the social and economic growth of the
if one exists, as required under Title II of the Demon-
State are to be maintained. There are proper areas
stration Cities and Metropolitan Development Act of
for the participation and involvement of private en-
1966. Such applications should also be coordinated
terprise, privately owned transportation systems,
37
public-owned transportation systems, local govern-
transportation systems on an equitable basis. The
ment, regional bodies, the State government, and the
actual extent of such State involvement must be de-
Federal government in developing, organizing, fi-
termined in each individual case, and the primary
nancing, operating, and maintaining this total system
means of accomplishing that involvement should be
of transportation. To meet the changing needs and
through the Regional Transportation Districts, with
requirements of the people of the State for trans-
coordination and advisory support from the Califor-
portation services in the years to come, the State
nia Transportation Board and the State Transporta-
should develop and maintain a basic transportation
tion Planning Office.
policy.
B. CONTINUE DEVELOPMENT OF THE STATE-
WIDE SYSTEM OF HIGHWAYS, ROADS, AND
STREETS
The Task Force believes that the need for highway,
road, street, and parking facilities throughout the
State will continue to grow in the future. Therefore,
California must be prepared to continue its program
of facility construction, maintenance, and operation
at all levels of government. With the completion of
the Federal Interstate Highway System, the State
should seek a reduction in or elimination of Federal
It is recommended that the State Transportation
highway user taxes. The State should, however, insti-
Planning Office be directed by the Secretary of Busi-
gate increases in local and State revenues as neces-
ness and Transportation to develop and maintain a
sary to keep up with rising and critical demands for
comprehensive State Transportation Master Plan. This
construction and maintenance. These more broadly
master plan should be based on local and regional
based revenues should be based on the true need
needs and requirements, and should coordinate and
for funds to provide and maintain our system of
integrate such requirements to provide the basic
streets, roads, highways, and freeways.
policy and overall plan for the continuing evolution
of a statewide system of transportation services.
C. DEFINE THE ROLE OF THE STATE IN AIR
The Task Force further recommends that the fol-
TRANSPORTATION
lowing specific points be considered in the develop-
Every effort should be made to facilitate and com-
ment of a State transportation policy.
plete the comprehensive inventory of airway and
A. ENCOURAGE THE DEVELOPMENT OF URBAN
aviation facility requirements which the State Divi-
sion of Aeronautics is about to undertake. This in-
MASS TRANSPORTATION
ventory, and the resulting air transportation plan,
The State of California should encourage educa-
should be prepared utilizing to the maximum extent
tional and informational programs which will lead
the existing resources and studies of local, regional,
to a better public understanding of urban mass transit
State, and Federal agencies and of private enterprise.
needs. Although largely intraregional, urban mass
The plan should serve as the basis for an on-going
transportation systems do include substantial
airport planning effort. Further, it should define the
collector/distributor needs of intercity transportation
State interest in air transportation and in State and
functions. For this reason, and because urban mass
local financing, construction, operation, and main-
transportation is such a critical element in the total
tenance of appropriate parts of the air transportation
transportation requirements of California, the State
facilities in the State. This should include State parti-
has a legitimate responsibility, and must accept a
cipation, correlated with the Federal Aviation Admin-
key role, in assuring that the urban mass transporta-
istration, in the development of special local air
tion needs of the several metropolitan urban regions
in California are satisfied.
navigation facilities to alleviate air congestion prob-
The Task Force believes that the primary responsi-
lems. A regional (both intra-State and multi-state)
bility for financing, constructing, and operating urban
approach to airport development should be adopted
mass transportation systems must be assumed by an
by the State of California.
appropriate level of government. This level of gov-
D. ENCOURAGE THE DEVELOPMENT OF PORTS,
ernment may very likely be regional in scope if the
HARBORS, AND WATERWAYS
urban area involved extends beyond a single city,
which is typically the case in both the Bay area and
It is clearly in the interests of the State of California,
in Southern California. The State government, how-
its industries, commerce, and its people, to encour-
ever, must be prepared to encourage and assist local
age and assist the ports and harbors of California to
and regional groups as needed in the planning, fi-
remain dynamic, progressive, and efficient in their
nancing, construction, and operation of urban mass
operations. The State should involve itself to an ap-
38
propriate degree in the development of suitable fi-
can be met by transportation equipment and facilities
nancial arrangements to underwrite the necessary
should be encouraged. The extensive resources of
expansion, modernization, and improvement of the
California's private industry, colleges, universities,
facilities and services of the several ports, harbors,
and research institutions should be utilized fully in
and navigable waterways which serve to link the
this regard. Consideration should be given to the
commerce of California and the nation to the rest of
establishment of suitable incentives to encourage
the world. The several California port authorities
private funding and sponsorship of transportation
should be encouraged to continue in their present
research and development.
mode of operation as self-supporting, profit-seeking
organizations. As public corporations, however, care
F. REASSESS STATE TRANSPORTATION REGULA-
must be exercised to ensure that the competetive
TORY POLICIES AND RESTRICTIVE PRACTICES
activities of individual ports do not infringe on the
Our California transportation legislation is the
activities of privately owned enterprises, result in
product of an era in which carriers, both passenger
wasteful duplication or unprofitable operations, or
and freight, collectively enjoyed a virtual monopoly
otherwise work to the detriment of the public interest
on all intercity movements. This monopoly situation
and welfare.
has largely disappeared under the present day multi-
E. ENCOURAGE TRANSPORTATION RESEARCH
modal competition among for-hire and private car-
AND DEVELOPMENT
riers, thereby making a review of the transportation
regulations a necessity if a strong and healthy trans-
The Task Force recommends that the State of Cali-
portation system is to continue to develop. The Task
fornia adopt a policy, enact appropriate legislation,
Force recommends that a continuing assessment be
and take such other steps as may be necessary to
undertaken of State and local regulatory policies,
encourage beneficial research in all aspects of trans-
portation including its technological, economic, and
statutes, and practices, as well as of various restric-
sociological implications. Research and development
tive private practices, so that appropriate legislation
relating to vehicles, travel ways, energy sources, and
may be indicated which will eliminate superfluous
transportation techniques which will substantially
and costly regulatory effort and practices, and which
raise the environmental standards (e.g., reduced air
will bring regulation and practice into line with the
pollution and noise) and the safety factors which
technological and economic realities of modern
transportation.
39
Glossary of Terms
COORDINATION:
The act or process by which individual activities are unified or brought into a state of harmonious and
compatible functioning.
INTEGRATION:
The act or process by which various subassemblies or component elements are brought into a united,
complete, or perfect whole.
MASS TRANSPORTATION:
A form of passenger transportation intended to carry large numbers of public passengers on a regular and
continuing basis.
MODE:
A manner, method, fashion, or particular form of performing a function. A transportation mode is a particular
form, type, or system of transportation, such as a bus system, an airline, passenger automobile, etc.
PUBLIC TRANSPORTATION:
A form or mode of transportation which is available on a for-hire basis to the public; usually applied to modes
of transportation which carry passengers as opposed to freight. Buses, taxis, streetcars, rapid transit systems,
etc. are various modes of public transportation.
RAPID TRANSIT:
A mode of mass transportation characterized by higher relative speeds and with physical separation from
other transportation modes through the utilization of an exclusive, usually grade-separated, right-of-way.
SYSTEM:
A group of facilities, equipment, data, and personnel especially integrated to perform a specific function
or functions.
TRANSPORTATION:
The movement of people, goods, commodities, and/or freight from one place to another.
URBAN MASS TRANSPORTATION:
A system of mass transportation especially designed for a specific urban or metropolitan area or region.
40
APPENDIX I
Acknowledgments
The Members of the Governor's Task Force on
sizable normal work assignments. Among those who
Transportation are to be commended for the extent
have particularly contributed their time and energy
of their voluntary efforts in coming to grips with the
are Mr. Robert R. Irwin, Assistant to the General Man-
charge placed upon them by the Governor. They have
ager of TRW Systems Group, TRW Inc., who com-
pursued this task with interest and dedication, evi-
posed from a myriad of inputs the major portions of
denced by the fact that more than 85 percent of the
the Volume I Report; Professor Harmer E. Davis,
Members participated in each of the six principal
Director of the Institute of Transportation and Traffic
Task Force meetings. In addition, Task Force Mem-
Engineering of the University of California, who,
bers, each of whom served on one of four Panels and
among his many other contributions, drafted the
one of six Technical Committees, met some twenty
Foreword to the Volume I Report; and Mr. Charles G.
times in developing and evaluating the vast quanti-
Beer, Chief, Urban Planning Department, State Divi-
ties of information which constitute the background
sion of Highways, who was the principal compiler of
material from which this report and its recommenda-
Volume II of the Task Force Report. Special acknowl-
tions evolved. In addition, the Executive Committee
edgment should also be made to the Vice Chairman
Members deliberated for many hours in two separate
of the Task Force, Dr. Richard D. DeLauer, General
meetings prior to submitting the draft report to the
Manager of TRW Systems Group, who made avail-
Task Force. Throughout all of these meetings there
able the personnel and resources of TRW Systems for
was a lively exchange of ideas, concepts, philoso-
the design layout, photography, artwork, final edit-
phies, and opinions - evidence that considerable
ing, and typographical composition of Volume I of
study and preparation had gone into each Member's
the Report.
contributions at the meeting.
Invaluable contributions were also provided to the
Although many individual Task Force, Advisory,
Task Force by the Resource Members. The 200 mem-
and Resource Members and Project Directors should
bers of this group furnished the Task Force with
be noted for their particular efforts, specific recog-
expert advice, counsel, and suggestions on numerous
nition of all of these individual contributions must
aspects of transportation and its related socio-
necessarily be limited. Special note should be made,
economic considerations. Many individual Resource
however, that the Project Directors, who are all gov-
Members provided extensive contributions of data
ernment employees, pursued their Task Force re-
and material, much of which has been incorporated
sponsibilities with enthusiasm while continuing their
in the two volumes of the Task Force Report.
-W. L. Pereira, Chairman
41
APPENDIX II
Members of the
Governor's Task Force
On Transportation
EXECUTIVE COMMITTEE
William L. Pereira
CHAIRMAN
Dr. Richard D. DeLauer
William L. Pereira
Hon. Gordon C. Luce
VICE CHAIRMAN
J. Floyd Andrews
Dr. Richard D. DeLauer
Dr. Arnold O. Beckman
Hon. Ernani Bernardi
EXECUTIVE DIRECTOR
Nils O. Eklund
Hugh E. Mulholland
Francis T. Fox
Herbert Hoover, Jr.
Neil Petree
Shermer L. Sibley
James M. Udall
John V. Vaughn
TASK FORCE MEMBERS
J. Floyd Andrews, President
Francis T. Fox, General Manager
Pacific Southwest Airlines
Los Angeles Department of Airports
Albert W. Bayer, President
John P. Fraim, Jr., President
A. W. Bayer and Associates
Mutual Broadcasting Corporation
Dr. Arnold O. Beckman, President
Herbert Hoover, Jr.
California State Chamber of Commerce
Consulting Engineer
Hon. Ernani Bernardi, Councilman
John McDonnell
City of Los Angeles
President, Board of Directors
B. F. Biaggini, President
Alameda-Contra Costa Transit District
Southern Pacific Company
Edwin S. Moore, Executive Vice President
Richard R. Brown, Mayor
California State Automobile Association
City of El Cajon
William L. Pereira, F.A.I.A.
Asa V. Call, Honorary Chairman
William L. Pereira & Associates
Pacific Mutual Life Insurance Company
Neil Petree
Prof. Harmer E. Davis, Director
Chairman, Executive Committee
Institute of Transportation and Traffic Engineering,
Barker Bros.
University of California
Henry Roloff, Executive Vice President
Dr. Richard D. DeLauer
Pacific Coast Association of Port Authorities
Vice President and General Manager
Wade Sherrard, Managing Director
TRW Systems Group, TRW Inc.
California Trucking Association
Nils O. Eklund, Jr., Vice President
Shermer L. Sibley, President
Kaiser Industries
Pacific Gas and Electric Company
Albert J. Eyraud, President
James M. Udall, President
Southern California Rapid Transit District
James M. Udall, Inc.
Adrien J. Falk, President
John V. Vaughn, President
S. F. Bay Area Rapid Transit District
Dartell Laboratories Inc.
42
ADVISORY MEMBERS
Hon. Gordon C. Luce
Hon. Norman B. Livermore, Jr.
Secretary of Business and Transportation
Secretary of Resources and Development
State of California
State of California
C.G. Beer, Chief, Urban Planning Department
William R. MacDougall
Department of Public Works
General Counsel and Manager
State of California
County Supervisors Association of California
Richard Carpenter
Hon. Peter E. Mitchell, President
Executive Director and General Counsel
Public Utilities Commission
League of California Cities
State of California
Hon. Randolph Collier
Hugh E. Mulholland
Chairman, Senate Transportation Committee
Deputy Director
State Senator
Department of Public Works
Hon. John F. Foran
State of California
Chairman, Assembly Committee on Transportation
Rus Walton, Special Assistant
and Commerce
Secretary of Business and Transportation
State Assemblyman
State of California
Arthur C. Gooch, Consultant
Program and Policy Office
Department of Finance
State of California
PROJECT DIRECTORS
Samuel J. Cullers
Dana G. Pengilly
Chief, Urban Planning Section
Planning Engineer
State Office of Planning
Planning Department
State of California
Department of Public Works
Col. R. W. deLancy
State of California
Deputy Division Engineer
Albert C. Porter, Principal
U.S. Army Engineer Division, South Pacific
Special Studies Branch
Brig. Gen. John A. B. Dillard
Public Utilities Commission
Division Engineer
State of California
U.S. Army Engineer Division, South Pacific
G.L. Russell
Paul Dygert
Traffic Engineer
Assistant Research Economist
Traffic Department
Institute of Transportation and Traffic Engineering,
Department of Public Works
University of California
State of California
James K. Gibson
William F. Scheuermann, Senior Planner
Assistant Director
Transportation Studies
Transportation Division
Department of Public Works
Public Utilities Commission
State of California
State of California
Arthur Watson
Jack E. Peddy
Senior Structural Engineer
Asst. State Highway Engineer -
Civil & Professional Engineers Board
Program Management Function
Department of Professional and Vocational Standards
Department of Public Works
State of California
State of California
Richard M. Zettel, Director
Bay Area Transportation Study Commission
43
RESOURCE MEMBERS
Mr. Otar M. Aamodt
Mr. William A. Bugge
Mr. Robert N. Dick
Prudential Insurance Company
Parsons, Brinckerhoff-Tudor-Bechtel
Western Greyhound Lines
Mr. John F. Adair
Mr. Richard Canham
Mr. Forest S. Dickason
Kaweah Delta Gins Inc.
Standard Oil Company of California
County of Orange
Mr. Mihran Agbabian
Mr. Eugene T. Canty
Mr. Harry T. Dotson
Agbabian-Jacobsen Associates
General Motors Technical Center
Western Greyhound Lines
Mr. Hervey E. Aldridge
Mr. Ike Caraco
Mr. Anthony Downs
Federal Aviation Administration
Bechtel Corporation
Real Estate Research Corporation
Mr. Robert E. Alexander, F.A.I.A.
Professor John Carter
Mr. Henry Dreyfuss
Robert E. Alexander & Associates
Graduate School of Business Admin.
Henry Dreyfuss & Associates
University of California
Mr. Grant S. Anderson
Mr. Eric Duckstad
Los Angeles Department of Airports
Mr. Harry V. Cheshire, Jr.
Stanford Research Institute
Automobile Club of Southern Calif.
Mr. Richard C. East
Mr. Vernon W. Anderson
Mr. Robert Clement
San Francisco Municipal Railway
California Toll Bridge Authority
California Almond Growers Exchange
Mr. Virgil Anderson
Mr. Henry K. Evans
Mr. Victor E. Cole
Wilbur Smith and Associates
Calif. State Automobile Association
Kaiser Engineers
Mr. Joseph H. Famme
Mr. Henry A. Babcock
Professor Michael Conant
Rohr Corporation
Babcock & Hillendahl
University of California
Dr. D. Jackson Faustman
Mr. M. F. Bagan
Mr. Edgardo Contini
Consulting Traffic Engineer
SFO Helicopter Airlines, Inc.
Victor Gruen & Associates
Mr. Alex Gaeta
Mr. Richard M. Bartle
Mr. Vincent T. Cooper
Peerless Stages
Bartle-Wells Associates
County Supervisors Association of Calif.
Mr. Richard Gallagher
Mr. John Bate
Mr. Ray Costello
Southern California Rapid Transit Dist.
San Diego Yacht Club
Pacific Airlines
Mr. Wilmer J. Garrett
Mr. Roy Bayliss
Mr. George Cote
Fresno Municipal Airports
California Airport Executives Assoc.
Aircraft Dealers' Association
Mr. John F. Gensley, Jr.
Mr. Welton Becket
Mr. L. M. Cox
Bank of America
Welton Becket & Associates
Western Growers Association
Dr. Gayton E. Germane
Mr. Bryce Bennett
Mr. Robert W. Crommelin
Graduate School of Business
International Engineering Co., Inc:
Robert Crommelin and Associates
Stanford University
Mr. Don Benninghoven
Mr. Austin B. Croshere
Mr. Walter E. Gillfillan
League of California Cities
McDonnell Douglas Corporation
Institute of Transportation and Traffic
Mr. William H. Best, III
Mr. Herbert G. Crowle
Engineering, University of California
The Service Bureau Corporation
County of Alameda
Mr. Stanley Goldhaber
Mr. Charles Blair
Mr. Thomas Crowley
Ralph M. Parsons Company
Daniel, Mann, Johnson & Mendenhall
Crowley Launch and Tugboat Company
Dr. William Goldner
Mr. A. R. Bone, Jr.
Mr. W. R. Currie
Bay Area Transportation Study Com.
American Airlines
Department of Finance, State of Calif.
Mr. Sidney Goldstein
The Port of New York Authority
Mr. Martin J. Bouman
Mr. John Curtis
Planning Research Corporation
Southern California Rapid Transit Dist.
Mr. E. H. Graham, Jr.
Koebig and Koebig, Inc.
Mr. William D. Bourne
Mr. Milford Dahl
Rutan, Tucker & Associates
Mr. Eric P. Grant
Sacramento Transit Authority
Motor Vehicle Pollution Control Board
Mr. Clive Bradford
Mr. J. Thomas Dale
Dr. Homer H. Grant
General Motors Corporation
Air-O-Bee Corporation
Department of Industrial Engineering
Mr. Ely Brandes
Mr. Albin P. Davis
University of Southern California
Stanford Research Institute
Carnation Company
Mr. H. Vance Greenslit
Mr. C. F. Breidenstein
Mr. E. Sam Davis
National Association of Motor
Canners League of California
Alameda-Contra Costa Transit District
Bus Owners
Mr. Robert J. Bresnahan
Mr. James R. Davis
Mr. Donald B. Gutoff
Los Angeles Department of Airports
Converse Foundation Engineers
Wilsey & Ham
Mr. John O. Bronson
Mr. Douglas Day
Mr. Walter Hahn
California State Chamber of Commerce
Sunsweet Growers
City of San Diego
Mr. R. W. Brooks
Mr. Victor Dekath
Mr. Earl Hansen
Pacific Gas Transmission Co.
Forest Service, U.S. Dept. of Agriculture
Times Aero Club
Mr. Alan K. Browne
Mr. Kenneth Delaney
Mr. James Haugh
Bank of America
Los Angeles Chamber of Commerce
California Motor Express Ltd.
44
Mr. Charles Hedges
Mr. Herbert LaVigne
Mr. Jack Newville
Sacramento State College
Tudor Engineering Company
Engineering Service Corporation
Mr. Leslie Helgesson
Mr. D. R. Lewis
Mr. George Nicholaw
Tudor Engineering (Retired)
Southern Pacific Company
KNX, CBS Radio
Mr. Clark Henderson
Mr. John Lilly
Mr. Robert E. Nisbet
Stanford Research Institute
West Bay Rapid Transit Authority
Alameda-Contra Costa Transit District
Mr. James H. Hickey
Dr. Fred C. Lindvall
Mr. Ben E. Nutter
Association of Bay Area Governments
Division of Engineering and Applied
Port of Oakland
Professor George Hilton
Science
Mr. S. R. Oliver
University of California
California Institute of Technology
Bechtel Corporation
Mr. John H. Hilton
Mr. D. S. Loveless
Mr. Stan Ossman
Federal Aviation Administration
California Canners and Growers
Greyhound Lines, Inc.
Mr. Kingsley T. Hoegstedt
Mr. Leroy Lyon
Professor Dudley Pegrum
California Toll Bridge Authority
California Railroad Association
University of California
Mr. Wolfgang Homburger
Mr. John A. Maga
Mr. W. E. Pereira
Institute of Transportation and Traffic
Bureau of Air Sanitation
American Airlines
Engineering, University of California
State Department of Public Health
Mr. Herbert G. Petersen
Mr. George Hook
Professor Julius Margolis
Councilman, Redwood City
San Jose City Lines, Inc.
Stanford University
Mr. R. Max Petersen
Professor Robert Horonjeff
Mr. C. L. Mayfield
U.S. Forest Service
Institute of Transportation and Traffic
Diamond Walnut Growers
Mr. Frederick Pfrommer
Engineering, University of California
Mr. John McCallum
Mr. R. O. Hubbard
Bay Area Transportation Study
The Atchison, Topeka and Santa Fe
Commission
Railway Company
California Farm Bureau Federation
Mr. John McDonald
Mr. Robert B. Pitts
Mr. Kenneth J. Hull
Air California
Automobile Club of Southern Calif.
Department of Housing and Urban
Development
Mr. Fred Imhof
Mr. Milton McKay
Southern Calif. Rock Products Assn.
Southern California Rapid
Mr. Arlo Poe
Transit District
California Trucking Association
Mr. W. T. Immenschuh
Ryan Aeronautical Company
Mr. Irvan F. Mendenhall
Mr. Ernest Poole
Daniel, Mann, Johnson & Mendenhall
Consultant
Mr. Robert M. Ivie
Guild Wine Company
Mr. William Mentzer
Mr. Harrison A. Price
United Air Lines
Economics Research Associates
Mr. C. E. J. Jamart
DeLeuw, Cather & Company
Mr. Charles C. Miller
Mr. Norman A. Proffitt, Jr.
San Francisco Chamber of Commerce
William H. Best Co.
Mr. Conrad C. Jamison
Security First National Bank
Mr. David R. Miller
Mr. F. P. Pusateri
Daniel, Mann, Johnson and Mendenhall
Potato Growers Association of Calif.
Mr. Jack Jones
North American Aviation
Mr. E. Allen Mills
Mr. Henry D Quinby
California Grape and Tree Fruit League
Parsons-Brinckerhoff-Quade-Douglas
Mr. Warren Jones
Duncan-Jones Planning Consultants
Mr. George J. Mitchell, Jr.
Mr. Gerald Raff
Mr. Joseph Kaspar
SARC Incorporated
Department of Finance
California Trucking Association
Mr. John Moffatt
State of California
Mr. James Kell
Moffatt and Nichol Engineers
Mr. John T. Reed
Peat, Marwick, Livingston
Mr. Einar O. Mohn
California Manufacturers Association
Western Conference of Teamsters
Mr. Philip V. King
Mr. Bertram Rhine
Bureau of Engineering
Mr. Clifton A. Moore
California Council of Aviation
City of Los Angeles
Los Angeles Department of Airports
Associations
Mr. Keith Kirstein
Mr. J. Jamison Moore
Mr. Lachland Richards
California Grain and Feed Association
Modern Management
Lachland Richards & Associates
Mr. F. S. Kohles
Mr. S. A. Moore
Mr. Lewis W. Riggs
Valley Motor Lines
Kaiser Cement & Gypsum Corporation
Tudor Engineering Company
Mr. Ray Kusche
Mr. Harry Morrison
Mr. J.J. Rimel
Quinton Engineers Limited
Western Oil and Gas Association
Rimel, Harvey & Helsing
Mr. William Lane, Jr.
Mr. W.R. Murdoch
Mr. Jess Rosenberg
SUNSET Magazine
Interstate Commerce Commission
Western Highway Institute
Mr. Edgar J. Langhofer
Mr. David L. Narver, Jr.
Mr. Ken Ross
ICC Practitioner
Holmes and Narver, Inc.
Association of General Contractors
Mr. Stanley Lanham
Mr. John Neville
Mr. William N. Rowley
Consulting Engineer
Sylvania Electric Products, Inc.
United Aircraft Corporation
45
Dr. Karl M. Ruppenthal
Mr. Donald B. Smith
Mr. Donald C. Tillman
Graduate School of Business
Sacramento Municipal Airport
Chief Deputy City Engineer,
Stanford University
Mr. J. G. Smith
Los Angeles
Mr. A. M. Russo
Pacific Gas and Electric
Mr. Bert Trask
The Ralph M. Parsons Company
Mr. Wilber E. Smith
California Trucking Association
Mr. T. Claude Ryan
Southern California Association of
Mr. R. M. Van Cleave
Ryan Aeronautical Company
Governments
Interstate Commerce Commission
Mr. William Ryan
Mr. David K. Speer
Mr. George Vawter
Sunkist Growers
County Engineer, San Diego County
Sun-Maid Raisin Growers
Mr. James S. Saffran
Mr. D. J. Steele
Mr. Dick Volpert
Stone and Youngberg
U.S. Bureau of Public Roads
O'Melveny & Myers
Financing Consultants
Mr. Jim Stevens
Mr. Milton A. Walker
Mr. Victor W. Sauer
Cline, Fast, and Senning
Fibreboard Paper Products Corp.
Contra Costa County
Mr. B. R. Stokes
Mr. Murray Ward
Mr. E. W. Scammon
San Francisco Bay Area Rapid
E.F. Hutton & Company, Inc.
State Department of General Services
Transit District
Mr. Robert E. Welk
Mr. Warren Schmid
Mr. Ralph Stone
Santa Fe Railroad
Association of Bay Area Governments
Ralph Stone and Company, Inc.
Mr. E. F. Westberg
Mr. Harvey Scott
Mr. Eugene Swanz
California Retailers Association
California Bus Association
Pacific Southwest Airlines
Mr. Richard Whitehead
Mr. Thurman Sherard
Mr. Perry Taft
Western Highway Institute
County of Santa Barbara
Association of California
Mr. Melvin Shore
Mrs. Rene Margaret Wilson
Insurance Companies
Sacramento Port Authority
League of Women Voters of
Mr. Fred Taplin
Los Angeles
Mr. Gerard Shuirman
Los Angeles County Airport Director
Shuirman and Rogoway & Associates
Mr. Harry Wolfe
Mr. George M. Taylor
Arthur D. Little Company
Mr. Philip G. Simpson
Alameda-Contra Costa Transit District
Intergovernmental Council on
Mr. O. F. Yando
Urban Growth
Mr. Calvin Thomas
Ford Division of Ford Motor Company
Mobil Oil Company
Mr. Thor Sjostrand
Mr. Robert J. Zimmerman
Southern Pacific Company
Mrs. Grace Thomas
TRW Systems Group, TRW Inc.
Mr. Bernard J. Smith
City of Santa Monica Redevelopment
Consulting Engineer
Agency
46
APPENDIX III
Task Force Panels
EXECUTIVE COMMITTEE
Chairman
WILLIAM PEREIRA
DR. RICHARD DeLAUER
HON. GORDON LUCE
FLOYD ANDREWS
DR. ARNOLD BECKMAN
HON. ERNANI BERNARDI
NILS EKLUND
FRANCIS FOX
HERBERT HOOVER
NEIL PETREE
SHERMER SIBLEY
JAMES UDALL
JOHN VAUGHN
HUGH MULHOLLAND
Executive Director
TASK FORCE PANEL I
TASK FORCE PANEL III
HERBERT HOOVER, Chairman
NEIL PETREE, Chairman
FLOYD ANDREWS
HON. ERNANI BERNARDI
B. F. BIAGGINI
JOHN P. FRAIM, JR.
DR. RICHARD DeLAUER
EDWIN S. MOORE
A. J. EYRAUD
WADE SHERRARD
JOHN McDONNELL
JOHN VAUGHN
* DANA G. PENGILLY - DPW
* JACK E. PEDDY, DPW
Existing Conditions; i.e. information relative to currently
Financing, Legislation, Execution i.e., information rela-
operatinng systems and the successes and problems
tive to the evolutionary status of (1) financing the various
involved in the operations of these systems - all modes
transportation systems, (2) current legislative considera-
of transportation are to be included.
tions and programs which would or will affect transpor-
tation systems and modes, and (3) the changes, ranging
from the evolutionary to the near-revolutionary, which
TASK FORCE PANEL II
are occurring or are proposed in transportation equip-
FRANCIS FOX, Chairman
ment, systems, etc
RICHARD R. BROWN
ADRIEN J. FALK
TASK FORCE PANEL IV
HENRY ROLOFF
NILS EKLUND, Chairman
SHERMER SIBLEY
ALBERT W. BAYER
JAMES UDALL
DR. ARNOLD BECKMAN
* JAMES K. GIBSON - PUC
ASA V. CALL
PROF. HARMER E. DAVIS
Plans and Programs in Progress; i.e. such as BART, where
* C. G. BEER - DPW
construction is underway but actual system operations
have not begun; or, the Division of Highways, where,
Evaluate and collectively summarize the findings of the
though there are completed segments, the planning,
three Advisory Panels. Develop suggested alternate pro-
design and construction leading to the development of
grams which the State might undertake in attempting
a complete freeway system is still in progress.
to resolve overall transportation problems, or some of
them, and submit these suggested alternate programs to
*Project Director
the Vice Chairman's Technical Committee.
47
ORGANIZATION AND WORK FLOW CHART
TASK FORCE ADVISORY PANELS
TASK FORCE COMMITTEES
THE ASSEMBLING OF INFORMATION
RESOURCE MEMBERS AND
COMMITTEE EVALUATION
OF TECHNICAL ASPECTS
OF PROGRAMS
PANEL I
Existing Conditions
and Facilities
FINANCE COMMITTEE
TASK
FORMAL
PANEL II
PANEL IV
ECONOMIC COMMITTEE
EXECUTIVE COMMITTEE
FORCE
PRESENTATION
Plans and Programs in Progress
COMMITTEE
TO GOVERNOR
Evaluate Findings,
Draft Report
Summarize and Develop
and Develop
Adopt or Revise
Alternate Programs
Recommendations
ond Finalize
LEGAL-LEGISLATIVE
Recommendations
COMMITTEE
to Governor
PANEL III
Status and Progress
in Financing, Legislation,
48
Regulatory Policies, etc.,
PLANNING COMMITTEE
and Systems of the Future
PUBLIC INFORMATION
COMMITTEE
ENGINEERING COMMITTEE
STEP 1
STEP 2
STEP 3
STEP 4
STEP 5
STEP 6
APPENDIX IV
Technical Gommittees
Chairman
DR. RICHARD D. DeLAUER
Vice Chairman of the Governor's
Task Force on Transportation
Process alternate programs suggested by Task Force Panel IV. These committees will evaluate the technical
aspects of the various programs and will submit comments, including conclusions and recommendations
when applicable, relative to the technical feasibility, workability, compatibility, etc., of the different parts of
the programs. Comments, along with the originally suggested programs, will then be submitted to the
Executive Committee.
ECONOMIC COMMITTEE
GAL/LEGISLATIVE COMMITTEE
Dr. Arnold O. Beckman, Chairman
Hon. Ernani Bernardi, Chairman
B.F. Biaggini
Richard R. Brown
John McDonnell
Adrien J. Falk
*Paul K. Dygert
Neil Petree
*William Scheuermann
Evaluate alternate programs from the standpoint of their
effect on economic communities and the State economic
Analyze alternate programs from the standpoint of cur-
health; define economic communities for the benefit of
rent statutes, describe legislation which would be required
the other committees and the Task Force.
to effect changes in statutes if a particular alternate pro-
gram was to be put into effect.
ENGINEERING COMMITTEE
Shermer Sibley, Chairman
PLANNING COMMITTEE
Prof. Harmer E. Davis
John Vaughn, Chairman
Nils Eklund
Albert W. Bayer
Herbert Hoover
A. J. Eyraud
*Arthur Watson
Henry Roloff
*Samuel J. Cullers
Evaluate alternate programs from the standpoint of
current, near-current, and in-the-future equipment and
Evaluate alternate programs from the standpoint of their
systems.
effect on comprehensive planning programs at the local,
regional, and State level.
FINANCE COMMITTEE
Floyd Andrews, Chairman
PUBLIC INFORMATION COMMITTEE
Edwin S. Moore
James M. Udall, Chairman
Wade Sherrard
Asa V. Call
*Richard M. Zettel
Francis T. Fox
John P. Fraim, Jr.
Evaluate alternate programs from the standpoint of the
*Rus Walton
financial structure required to implement the programs.
Evaluate alternate programs from the public relations
standpoint: i.e., what type of public information programs
would be desirable to acquaint the public with the trans-
portation problem and the solution to it as envisioned in
*Project Director
each of the alternate programs.
49
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