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4 cannot rest upon the expectation that the costs of constructing and operating such a system as a whole would be recoverable, in their entirety or in any large part from direct tolls collected from the users.

If, as an actual test of the feasibility of a limited mileage of toll roads, it is the desire of the Congress to make provision for the construction of a section of highway of substantial length upon which there is a reasonable prospect of the recovery of the costs through tolls, it is recommended that such provision be made applicable to a section of highway, properly located, and extending from an appropriate point near Washington, D. C., to an appropriate point near Boston, Mass.

The factual evidence presented in this report clearly indicates that the construction of direct toll highways cannot be relied upon as a sound solution of the problem of providing adequate facilities for the vitally necessary highway transportation of the United States, or to solve any considerable part of this problem.

While these conclusions are reached with reference to the limited question of financial feasibility of transcontinental superhighways and the possibility of toll collections to meet their cost, it is recognized that the report should be constructive rather than negative in character. Further, the Secretary of Agriculture is directed by the basic Federal highway legislation to submit reports or recommendations to the Congress on important highway matters. Conforming with this direction there is included in this report a discussion of the most important problems confronting both the Federal and State Governments and their subdivisions with respect to highway facilities.

From the discussion there emerges the general outline of what is in effect a master highway plan for the entire Nation. The carrying out of the plan in all its parts calls for appropriate action by the Federal and State Governments and all county and municipal subdivisions. As desirable joint contributions of the Federal and State Governments, the report lists several undertakings as follows:
 * 1) The construction of a special, tentatively defined system of direct interregional highways, with all necessary connections through and around cities, designed to meet the requirements of the national defense in time of war and the needs of a growing peacetime traffic of longer range.
 * 2) The modernization of the Federal-aid highway system.
 * 3) The elimination of hazards at railroad grade crossings.
 * 4) An improvement of secondary and feeder roads, properly inteerated with land-use programs.
 * 5) The creation of a Federal Land Authority empowered to acquire, hold, sell, and lease lands needed for public purposes and to acquire and sell excess lands for the purpose of recoupment.

The report emphasizes the difficulties encountered in the acquisition of adequate rights-of-way; and, in view of the fundamental necessity of such rights-of-way, proposes definite measures by which the United States could aid in the acquisition of suitable rights-of-way and simultaneously contribute helpfully to the solution of other urgent problems, especially certain problems confronting the larger cities.

RELIANCE UPON STATE-WIDE HIGHWAY PLANNING SURVEYS For the wealth of basic data, available in great detail for the purposes of the required investigation, especially data concerning the volume, character, and range of traffic, the condition of existing