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The enormity of the road problems and their national character gradually developed a recognition that Federal aid was the only solution. Groups, such as the National Good Roads Association, the American Road Builders, and the American Highway Association, were leaders in efforts to secure necessary legislation. As a result, during the first 6 months of the session of Congress which began in December 1911, over 60 bills were introduced providing for some form of direct aid by the national government. This concern led to the inclusion in the Post Office Appropriation Act for fiscal year 1913 of an appropriation of $500,000 to be expended by the Secretary of Agriculture, in cooperation with the Postmaster General, to aid in the improvement of post roads (roads which would be used by the Post Office in the delivery of mail) in rural areas. It provided “That the State or the local subdivision thereof in which such improvement is made under this provision shall furnish double the amount of money for the improvement of the be made under the supervision of the Secreary of road or roads so selected. Such improvement shall Agriculture.” The Act also provided for a Joint Congressional Committee “. . . to make inquiry into the subject of Federal aid in the construction of post roads and report at the earliest practicable date. . . .”

Among its other provisions, the 1913 Act also specifically directed the Joint Committee to consider the problem of maintenance of the roads constructed, no doubt remembering the disastrous experiences of the past Federal efforts, and particularly the National Road.

The significant features of the Act were:


 * It was a direct appropriation with authorization to proceed. There was no authorization in advance of an appropriation.
 * The Act authorized the Secretary of Agriculture and the Postmaster General to determine where the funds should be used. It did not specify how the funds were to be spread among the States.
 * The matching principle was established by prescribing that project costs be financed on a two-thirds State, one-third Federal basis.
 * The funds were available until expended.

No specific portion of the funds was made available for the costs of administering the program by the Office of Public Roads.

In the administration of the program launched by the 1913 appropriation the principle of “apportionment” was born. The $500,000 was allocated by making available $10,000 to each State (to be matched by at least $20,000 State and local funds), and $20,000 was reserved by the Office of Public Roads to supervise and administer the program. However, only 13 States and 28 counties participated, and approximately 455 miles of road were built.

While the Federal financial interest in other than demonstration and experimental roads was rekindled by this measure, the appropriation was made to the Post Office Department even though the work was to be administered by the Department of Agriculture. Congress was still concerned with the constitutional issue of Federal money going into construction of roads wholly within individual States. The national character of mail delivery provided a satisfactory rationalization, hence, the appropriation was made to the Post Office Department.

The Joint Committee made its final report on Federal aid in the construction of post roads on January 21, 1915. The report offered no particular plan for Federal aid in the cost of constructing roads but did strongly recommend such aid. Furthermore, it pointed out that a Federal-aid highway program would accomplish several objectives of the Constitution, namely, to establish post roads, regulate commerce, provide for the common defense, and promote the general welfare.

Federal involvement in roadbuilding was justified in 1912 because of the national character of rural free delivery of the mail. During the congressional hearings which followed the submission of the report, there was much debate but not too much opposition to the principle of 201