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OF KENTUCKY presents its FINAL REPORT including “A THREEFOLD PROGRAM OF ACTION FOR THE COMMONWEALTH” to His Excellency GOVERNOR SIMEON WILLIS to THE LEGISLATURE and to THE PEOPLE OF KENTUCKY FRANKFORT, KENTUCKY 1945 e e º e cº The report of this Commission represents the majority of its membership and does not neces- sarily constitute the unanimous views of the individuals appointed to it. TABLE OF CONTENTS EXECUTIVE ORDERS..........................---------------------------------------------------------------- v-vii FINAL REPORT OF THE CHAIRMAN................................................................ ix A THREE-FOLD PROGRAM OF ACTION............................................................ X Private and Public Enterprise Program............................................ 3 Legislative Program ..........................................---------------------------------- 11 Financial Program .............................................................................. 19 COMMITTEE REPORTS .................................................................................... 21 No. I —Returned Veterans ............................................................ 23 No. II –Agriculture ........................................................................ 39 No. III —Education ................. ........................................................ 55 No. IV —Industrial Relations .......................................................... 81 NO. V —Industrial Plants and Opportunities.............................. 91 No. VI —Coordination of Federal, State, County, and City Governmental Activities .................................................. 139 No. VII —Natural Resources ............................................................ 187 No. VIII—Organic Laws and Legislation........................................ 201 No. IX —Transportation ................................................................. 211 PROCEDURE …..….........................................…................................ 295 Internal Operations of the Commission.............................................. 297 Report of the Committee on Public Relations and Publicity............ 301 Report of the Ways and Means Committee........................................ 305 Chairman’s Report—February .......................................................... 309 Organization Chart of the Commission.............................................. 314 Acknowledgments .................................................................................. 317 iii HIS EXCELLENCY, Gover NOR SIMEON WILLIS, GOVERNOR OF KENTUCKY EXECUTIVE ORDER Frankfort, Kentucky October 6, 1944. HONORABLE CHARLES K. O'CONNELL, Secretary of State By virtue of the authority vested in the Chief Executive, it is hereby ordered that a Commission to be known as Postwar Advisory Planning Commission be created to study and investigate the physical and human resources of the State, and to formulate plans and make recommendations for the full development of such resources for the aid of agriculture, labor, manufacture, mining, transportation, conservation, and all other interests of the State. The Commission will consider and coordinate the plans and recommendations of all other planning bodies, including private and governmental bodies, as related particularly to the opportunities and problems of Kentucky. The Commission will provide its own organization, plans of work, and financing, and it may create such committees and sub-committees as may be necessary to facilitate its work. Such committees may include any suitable persons, whether members of the Commission or otherwise. The Research Department of the University of Kentucky and all depart- ments and agencies of the State Government are requested to aid and co- operate in the work of the Commission. Committees appropriate for consultation with other bodies created by statute or executive order concerning any pertinent subject matter should be formed. The Executive will approve and commission any committees requested by the Commission. The Commission will make reports to the Governor from time to time with its recommendations, and a final report prior to the next session of the General Assembly. The following are hereby appointed to serve on the Commission: Rufus B. Atwood.......................................... Frankfort, Ky. Paul G. Blazer.................................................. Ashland, Ky. Roy Burlew.................................................. Owensboro, Ky. John N. Browning........................................ Maysville, Ky. Dr. H. L. Donovan........................................ Lexington, Ky. Robert S. Gruver.............................................. Ashland, Ky. Thomas Graham............................................ Louisville, Ky. E. J. Evans.................................................. Paintsville, Ky. William B. Harrison … Louisville, Ky. J. B. Hill.… Louisville, Ky. J. E. Johnson, Sr............................................... Hazard, Ky. John Wesley Marr........................................ Lexington, Ky. James O'Rear-----------------------------------------------. Frankfort, Ky. Rev. W. P. Offutt.......................................... Louisville, Ky. O. K. Pemberton............................................ Louisville, Ky. Fred L. Seale............................................ Middlesboro, Ky. E. E. Stokes.................................................. Covington, Ky. James C. Stone.............................................. Lexington, Ky. George E. Tomlinson.................................. Winchester, Ky. J. S. Watkins................................................ Frankfort, Ky. Tom Wallace.................................................. Louisville, Ky. H. F. Willkie.................................................. Louisville, Ky. Carl B. Wachs.............................................. Lexington, Ky. Freeman Webb.............................................. Olive Hill, Ky. J. R. Weyler.................................................. Louisville, Ky. Honorable J. S. Watkins is designated to call the first meeting at such place as he may deem most convenient for the members. SIMEON WILLIS, Governor. Vi EXECUTIVE ORDER Frankfort, Kentucky - January 29, 1945 HONORABLE CHARLES K. O'CONNELL Secretary of State Upon the request of the members of the Postwar Advisory Planning Com- mission, I am today enlarging that Commission. The following have been appointed and you will please commission them as members of the Postwar Advisory Planning Commission: Hon. Harold W. Cain, Somerset, Kentucky. Dr. Fred Mutchler, Bowling Green, Kentucky. Hon. Louis Igert, Sr., Paducah, Kentucky. SIMEON WILLIS, Governor. EXECUTIVE ORDER ſº Frankfort, Kentucky March 9, 1945. HONORABLE CHARLES K. O'CONNELL Secretary of State I have this day appointed and you will please commission Honorable John E. Ramsey, Route No. 1, Hopkinsville, Kentucky, as a member of the Postwar Advisory Planning Commission. SIMEON WILLIS, Governor. Vii H. F. WILLKIE, Chairman, Louisville FINAL REPORT OF THE CHAIRMAN A sound postwar plan must contain certain inherent features to be acceptable to the members of the economic system it embraces: It must be practicable. It must define responsibilities. It must inspire positive action. It must be democratic. To meet these qualifications, the Postwar Advisory Planning Com- mission of Kentucky has resolved the recommendations of its committee reports into a three-fold program of action, comprising Legislation, Finance, and Public and Private Enterprise. Thus the element of practicability is satisfied by straight-forward statements of the financial requirements of the program in the nature of the public investments—expenditures now in education, health, conserva- tion, and research for a promise of early success. The definition of responsibilities is set out clearly by specific recom- mendations to legislators, state officials, labor and business groups, and private citizens. Inspiration to action is anticipated from the ideological content of the committee reports as well as from the several statistical analyses showing the rank of Kentucky among the states. In this respect, the report of this Commission differs substantially from those of most of the states, due largely to the make-up of its membership and to problems peculiar to Kentucky. The report preserves a degree of democratic principle not customarily associated with “planning” in later years because it successfully avoids a framework of rigid control. Problems are defined, needs are stated, and solutions proposed consistent with the responsibilities and capacities of an existing statehood. This program is as strong as the people of Kentucky—stronger, then, than a planned economy. It is as virile as the Spirit of free enterprise— secure, therefore, against organized manipulation. It is a program of conservation and building rather than one of ex- pediency and erosion. It is a program that any native Kentuckian can understand, embrace, and accept soberly as a job of work to do. H. F. WILLKIE, Chairman. ix POSTWAR ADVISORY PLANNING COMMISSION'S REPORT Military Affairs and Returned Veterans Agriculture Education Industrial Relations Industrial Plants and Opportunities i Coordination of Federal, State, County, and City Governmental Activities 7. Natural Resources Organic Laws and Legislation 9. Transportation The numerals following the statements in “The Threefold Program of Action” refer to the Postwar Advisory Planning Commission’s final committee reports as numbered above A POSTWAR PROGRAM OF PUBLIC AND PRIVATE ENTERPRISE FOR KENTUCKY Postwar Advisory Planning Commission of Kentucky 1945 A POSTWAR PROGRAM OF PUBLIC AND PRIVATE ENTERPRISE FOR KENTUCKY NEW PROGRAMS AND ENDEAVORS Veterans There is a need for co-ordinating all agencies which render Service to returned veterans. It is recommended that Veterans’ Clearing-houses be set up at Louisville, Owensboro, Paducah, Bowling Green, Somerset, Lex- ington, Covington, Ashland, Pikeville and Harlan. All agencies Serving veterans in these communities and surrounding territory should be affili- ated with the Clearing-house. Veterans with problems would be referred by the Clearing-house to the member agency best fitted to solve the prob- lem. An association of Clearing-houses is projected to co-ordinate the program on a state-wide basis. This program is to be effected and financed by the citizenry of each locality.—1. New Educational Programs A study of the Commission’s reports show the desirability of initiating the following new educational program: Consolidate school districts in counties to reduce costs, avoid duplication, and provide better service; es- tablish regional exchanges in higher education with other states by reciprocal agreements in credits, costs, and facilities; provide courses in labor and industrial relations in the universities and colleges of the state; provide for the education of county farm agents in forestry; provide new features and courses in agri- cultural education at the high school and college levels; develop the educational and expositional values of state and county fairs; provide courses pertinent to aviation. —2; —3; —4; —7; —9. PUBLIC INTEREST PROGRAMS Health The 16 counties that are unorganized for health work should set up fulltime health organizations. The per capita expenditure for home health work should be gradually raised from the present 48 cents to one dollar. The TB Hospital co-ordination program should be completed as Soon as possible. Facilities for the early diagnosis and treatment of cancer, the third most frequent cause of death, should be planned. Pre- vention and control of venereal diseases should receive more attention. 3 A program to prevent and correct physical defects in children should be developed. An effort should be made to secure sanitary improvements. A better mother-and-child health protection program is needed. A special health program for the aging population should receive attention. It is recommended that a state-wide study of medical care problems should be undertaken so that an adequate program can be mapped out. —6. Recreation A vastly expanded program of game, waterfowl, and fish interests to provide recreational facilities, attract tourist trade, and increase state and private revenues, should be promoted. —7. Conservation The need for conservation and the elimination of stream pollution should be obvious to everyone. Citizens are asked to become acquainted with this problem and to support legislation which will correct abuses. –7. Adult Education A program of adult education that will keep Kentucky citizens well- informed, alert, and interested in local, state, national, and world prob- lems is needed. Such a program depends upon the individual citizen for participation and support. The expansion of present library and School Services are also bound up with this program. —2; —3; —4. Aviation Public awareness of air transportation and its many ramifications will lead to the support of necessary state and local air and zoning regulations to insure Kentucky her proper place in aviation. —9. Constitutional Convention The last session of the General Assembly went on record as favoring the convening of a Constitutional Convention. It seemed convinced that the present Constitution is not readily adaptable to the changing condi- tions of the present-day world. Such a convention should be approached in the Spirit of a dynamic future for the State of Kentucky. There must be eliminated from the Constitution various provisions which have Shackled to a large extent the business and public development of the State. The first step in convening the convention is under way. Under the present legislative program, the General Assembly in 1946 must concur with the actions of 1944 General Assembly. In 1947 the electorate will Vote on the proposition. If it is approved by the people, the General Assembly will propose a law in 1948 calling the Convention. In 1949 the electorate would then elect delegates to the Convention, and the State might have a new Constitution by 1950. It is up to the public to determine what is to be done. —8. Transportation During the war many wasteful transportation practices were dis- covered and overcome. It is hoped that the public, the shipper, and the transportation agencies will continue to co-operate so that these wasteful practices will not be resumed. —9. Amendment for Non-Diversion of Highway Users’ Tax from Road Fund In order to assure Kentucky's opportunity to use funds for road con- struction from Taxes paid by the highway users and match the Federal Aid Act of 1944, the people will have the opportunity to vote on an amend- ment to the Kentucky Constitution on November 6, 1945, which should determine by popular referendum the people's will as to the highway policy for the state. Sixteen states have adopted such amendments to their constitutions since 1920. Missouri adopted an amendment in 1928, and after 17 years of experience under the amendment, rewrote it into their new constitution which was ratified in March 1945. Four other states in addition to Ken- tucky have taken legislative action to submit such an amendment to their Voters. —9. EXPANSION OF STATE DEPARTMENTAL ACTIVITIES Medical Studies There is a need for extended medical service studies throughout the state to isolate both cases and causes of disease and ill health. It is hoped that these studies can be undertaken as soon as possible. —6. Working Conditions Survey The effects of working conditions on industrial efficiency are more often recognized than appreciated. Lip Service to sanitation, nutrition, lighting and ventilation, and employee service is not sufficient. It is recommended that a state-wide survey of manufacturing and Service plants be undertaken jointly by the Department of Health and Industrial Relations in order that an objective analysis of working conditions may be made available for corrective and preventive recommendations. –4. Employment Practices Discriminatory measures in employment should be guarded against by clean-cut legislative control and just social legislation. It is recom- mended that the State Department of Industrial Relations undertake a thorough study of employment practices and bring to the Governor by January 1946 such recommendations as are deemed desirable. —4. #5 Unemployment Compensation The present state laws concerning Involuntary Unemployment appear to provide all necessary machinery to administer, improve and expand this field of Industrial Relations. It is recommended that extensive use be made of the state and local advisory committees composed of repre- sentatives of management, labor, and government in order to bring these problems into focus before a balanced representation. —4. Old Age Benefits, Pensions, and Insurance It is recommended that the Department of Industrial Relations pre- pare an analysis of national, state and industrial programs of old age benefits, pensions, and insurance. —4. State Parks Kentucky has many scenic and historical places which could be de- veloped into state parks. It is recommended that a program of park development be undertaken so that the state’s economic and recreational welfare can be realized. —2; —9. Soil Maps Detailed and up-to-date soil maps for each county are necessary in the formulation of programs of soil building and land use. Only 20 Kentucky counties have soil maps. The soils of the state should be studied and mapped as soon as possible. —2. Natural Resources Maps Complete state and county base maps of natural resources are needed so that the development of these resources can be undertaken. The material presented in the program report of the 1935 Kentucky State Planning Board should be brought up to date. —7. Water Supplies For the past two years the Geological Department of the Department of Mines and Minerals has actively co-operated with the surface and ground-water divisions of the United States Geological Survey in Louis- ville. Results of ground-water studies in the highly industrialized areas of Louisville have been valuable and vital to the war effort. Approxi- mately $18,000 from the Governor’s emergency fund has been spent in these investigations. More large industries will not come into a new territory without accurate ground-water knowledge. This means that in order for Kentucky to receive her share of industrial development such information must be available. Therefore, it is imperative that the state continue a co-operative program with the surface and ground-water divisions of that survey. This is a program which must be aggressively 6 carried out in order to take care of the immediate post-war industrial development. The water supply problems for farms and municipalities are no less critical, and a state-wide investigation should be inaugurated at the earliest possible date. —7. Teachers Before the war, Kentucky’s minimum standard for teachers was two years or more of college preparation. It is hoped that this standard will be raised to a minimum of four years of college for all teachers. Now more than 4500 positions are being filled by teachers who have failed to meet the minimum standard for certification. A concerted effort must be made to regain our pre-war teacher standards and to strive for even higher ones. –3. Research $ Encouragement should be given for the wide use of the research facilities already established so that new industries may be developed within the state. —6. Highways . . ; It is recommended that a program of highway and parkway plans for the state be prepared; that the principal north-south, and east-west high- ways be improved; and that the secondary and rural road system be de- signed to permit year-round use. —6; —9. Airports - - - A comprehensive program for the development of state-wide airports which includes facilities for every section of the state has been devised. —9. INDUSTRIAL, AGRICULTURAL, AND COMMERCIAL EXPANSION State Chamber of Commerce It is recommended that a state-wide, privately-financed and privately- operated industrial development association or chamber of commerce be established and in operation by January 1, 1946. Failing this effort, the Commission recommends the establishment, by appropriate legislation, of a State Department of Industrial Development. —5. Technical Graduates Practically all of the technical graduates of the State’s University must leave the state to seek employment. This situation must be cor- rected if Kentucky is to advance. —4. Industrialization The quality and quantity of the labor supply are prime factors in in- dustrial development and high production. It is recommended that a 7 study of the industrialization of the state be undertaken with reference to the characteristics of the population. —4. - Unused Natural Resources The unused natural resources of the state should be developed so that they will support new industries within the state. Kentucky raw material is used by industries located outside the state. An effort should be made to locate such industries in Kentucky. —7. Industrial Training Program The Commission urges industrial and business management to provide in-service training and education programs on a paid-time basis, to im- prove the quality and stability of Kentucky labor. —4. Technical Advancement Industrial and business management should be encouraged to take advantage of technical advances under a program of freedom from hamp- ering labor legislation and administration. In return, management should be prepared to improve working facilities, labor opportunities, and plant environment. —4. Labor Participation in Training Program Labor should be encouraged to support and participate in programs of education, safety, sanitation, plant protection, and understanding of business organization and management so that its members may become more valuable employees. –4. Electrification Electrical and telephone service should be made available to the large majority of the farm population of the state which at present is without them. —2. Rural Medical and Veterinary Service Every effort should be made to correct the service deficiencies in rural medical service and veterinary care. —2. Farm Development Individual farm development programs leading to industrial usage of forest products, dairy products, and agricultural products in Kentucky should be promoted. —2. Tobacco New industrial uses for tobaccos and tobacco wastes, together with the development of new strains, should be undertaken. —2. 8 . Crop Processing Farm income can be increased materially and on a year-round basis if more emphasis is placed on processing after harvest in place of direct raw goods marketing. Pooled resources of groups of farmers can com- mand more favorable credit to provide physical processing facilities than can individual resources. In this way, canneries, freezing units, dehy- drating and preserving plants may be financed and operated in the com- munity interest. It is the role of the Agriculture Experiment Station, banking concerns, and industry jointly to aid the farmers in establishing economical processing plants. –2. º Agricultural Machinery and Mechanical Facilities The most important service to farmers that can be extended in the immediate postwar period is an organized technical Service providing both basic and specific designs for water supply, heat, electricity or other power source, maintenance instruction, building units for human, animal, product and machine shelter, sanitary facilities, and the like. Such a Service could emanate from several sources; co-operative farm pools, the Agriculture Experiment Station, a state bureau of agricultural and in- dustrial development, and an independent manufacturers’ association or State-wide chamber. —2. Farm Youth Activities The support and co-ordination of the 4H Club activities and other similar youth movements should be increased, together with encouragement from the leading agricultural authorities in preparing the future leaders of progressive agriculture. —2. Joint Transportation Rates Kentucky now enjoys joint rail-and-water service and rates to a limited degree. It does not have joint rail-and-motor rates even though there is an increasing interchange between these two types of service. It is esti- mated that there will be an increasing joint coverage requiring rail-motor- water rates, and where facilities are available, rates should be provided to meet actual needs as they may develop. —9. A POSTWAR LEGISLATIVE PROGRAM FOR KENTUCKY Postwar Advisory Planning Commission of Kentucky NEW LEGISLATION State Planning There is need for a permanent and continuing state agency to initiate, encourage and coordinate public planning activities. It is recommended that the General Assembly pass An Act Crediting a State Planning Agency. —5; —6; —8. Building Council and Code In order to establish maximum public safety at minimum building costs and to maintain structural stability, safety from fire hazards, proper lighting, ventilation, sanitation and all other desirable building practices, it is recommended that the General Assembly enact legislation providing for “A Building Code Council and for a sound building Code.” —6. Housing Commission Approximately 177,000 non-farm dwelling units in Kentucky do not meet standards for proper living. Two hundred thousand families are unable to pay rents which would procure standard houses in which to live. It is recommended that the General Assembly create a Kentucky State Housing Commission with power to aid local communities in the study and solution of their sub-standard housing problem. —6. Regional Educational Facilities There are many important educational services which states with limited revenues and Small populations can not economically provide, such as Schools of medicine, architecture, landscape and gardening, veterinary Science and other specialized services. Much thought should be given to the provision of regional programs in universities and colleges to meet these needs. For example, one of the universities of the southern region could maintain a school of veterinary science which, through contractual arrangements, the students of other states could attend. Students of all States in the region would be on an equal basis. It is recommended that the General Assembly consider an act providing regional educational facilities with reciprocal agreements with other States. –3. Natural Gas Natural gas is among Kentucky's resources. The Commission recom- mends that laws covering its production and making best use of it in 11 connection with oil production should be improved. It is claimed that the present stiff-penalty gas waste law is so drawn that guilt is not easily proved. —7. Reforestation of Coal Lands An act requiring afforestation of strip-mined coal lands is needed. —7. Aviation It is recommended that the tax collected on aviation gasoline should be used for aviation or that an equivalent amount should be appropriated for that purpose by the General Assembly from the general fund. —9. Inspection and Grading of Agricultural Products In order to give recognition to the varying qualities of agricultural products such as eggs, poultry and dairy products, it is recommended that the General Assembly enact legislation providing for a state inspec- tion and grading service for farm products. –2. Zoning Adequate facilities for the protection of the health, sanitation, safety, transportation, education, recreation, and appearances of the communities have not been fully provided for. It is recommended that a broad, uniform enabling act be introduced and passed by the legislature to provide that any city, or county, or any two or more counties, or any one or more cities and one or more counties may enter into an agreement to designate an area for planning and zoning purposes to create a planning and Zoning commission and board of zoning adjustment and appeals to prepare for adoption for the area so designated, a comprehensive plan and regulations necessary to carry out such plan. —6; —9. Forest Fire Protection Fees The present forest fire patrol law seems to lay an unnecessary burden of salesmanship and bookkeeping on the Division of Forestry whose time could be spent more profitably in fire control and forestry. The law is so drawn that many landowners who don’t cooperate for fire control get protection from fire. Statewide protection of timber from fire on an equitable basis is a major need of the Commonwealth. A better law would require counties to collect fire protection fees for the Forestry Division. Perhaps a small general timberlands levy might provide fire protection funds. This would eliminate difficulties arising from complicated ownership patterns. –7. Limit Private Transportation Taxes Legislation has provided for the building and maintenance of city Streets carrying through traffic at the expense of the state highway fund. 12 All cities have invoked personal property taxes and a few have special license levies on private transportation facilities. It is recommended that the General Assembly limit municipalities in their ability to subject private transportation to taxes other than general taxes. –9. Reciprocity Kentucky should enact legislation providing full reciprocity with other states on truck license fees. Forty-six states now have some form of reciprocity. —9. Frankfort Airport The state capitol needs an airport. It is recommended that it be State-Owned. —9. IMPROVEMENT OF EXISTING LEGISLATION Industrial Research It is recommended that the General Assembly make it possible for the University of Kentucky to increase its industrial research program. State-wide development will result and this will increase the prosperity of the people of the Commonwealth. —5; —6. Geological Surveys The state Geological Survey is active but hampered by limited funds. Its research work, field investigation, liaison work between the state and industries and between the state and the press requires more support. —5; —7. Water Resource Surveys Water of good quality is a most valuable asset to any community. It is recommended that a general water-resource investigation should be undertaken to supplement present programs of identifying and studying the behavior of our surface stream and underground water supplies. –5. Increase Minimum Wage Sub-minimum wages are prevalent in Kentucky in normal times as reflected in the wage orders under the Kentucky minimum wage law which specifies 20% an hour. Practically all states have a higher mini- mum wage. The federal minimum is 40% at present. It is recommended that 40% per hour minimum be substituted for the 204 per hour minimum under the present State law. —4. Educators’ Pay Kentucky has in most instances been fortunate in securing good edu- cational leadership; but short tenure, inadequate financial support, and 13 the low salaries required by law, have inevitably limited the service these leaders could render to the educational program of our state. Under present restrictions divisional heads may not receive more than $3900 per year. Men and women best qualified to render the specialized services needed in an efficient state department of education are difficult to obtain under such salary and tenure limitations The average teacher’s salary in the United States in 1939-40 was $1507. The average for Kentucky during the same year was $826. Only Seven states have lower average teachers’ salaries than Kentucky. Educators’ pay must be increased. —3. School Tax Limits County school districts cannot materially strengthen their educational program as long as they are prohibited by law from levying tax rates equalling only half those permitted some city school districts. The 75¢ maximum tax limitation for county districts should be removed immedi- ately. —3. - Conservationist’s and Forester’s Pay The head of the Conservation Department should be paid $5,000 a year. The present $4,000 reflects the public’s failure to realize that pro- tection of natural resources is as important as the work of any other government department. We pay seven men — ill-paid judges of the Appellate Court — $5,000 each to umpire disputes between citizens. We pay one man $4,000 to guard and develop resources upon which all citizens must live. And the $4,000 man loses his job before he develops highest usefulness because when a new administration comes in he goes out. The State Forester's $3,500 a year is pathetically inadequate. His Staff is underpaid. Cheap government departments reveal a State whose population’s concept of its opportunities and its responsibilities, is at fault. —7. Pollution Lawless exploitation of streams and pollution from various sources constitute appalling injury to aquatic values, immense waste of money values. It is recommended that closer regulation and enforcement be provided. —7. Game and Fish Conservation Game, like fish, has biological value as well as money value. The annual take of game, furbearers and fish, could be $15,000,000 a year in Kentucky, with breeding stock fully protected. The annual take of game and furbearers in Pennsylvania (Kentucky’s size and much more densely 14 populated) passed $10,000,000, under one of the best protective systems in the United States. It is recommended that regulation be tightened to insure fish and game conservation. —7 Agricultural Experiment Station The present experiment stations located in Caldwell County and Breathitt County, are insufficient insofar as decentralization and diversifi- cation for research and education in agriculture are concerned. It is sug- gested that additional sub-stations be established, when properly financed, and that they be administered entirely under the University of Kentucky. Sub-stations specializing in Pomology, Horticulture and Forestry, Animal Husbandry, Agronomy, Poultry, Dairying, Conservation of Soils and Ichythyology are recommended. —2. State and County Fairs It is suggested that a thorough investigation of the present status of the state and county fairs be made. The facilities of the fairs should be revamped and put on a more educational basis for promoting agri- cultural development. The fairs should be set up more from an exposi- tional standpoint than from the present selling standpoint. —2. Mediation and Arbitration The uncertainties and inadequacies in the law (KRS 3.36.130–40–50) regarding the rule of the Department of Industrial Relations in dealing with labor disputes should be so amended as to promptly and justly conclude all disputes. –4. Timberland Taxes A definite program of reforestation in each county should be organized, and all rough and uncultivatable lands or water sheds in the state should be planted to trees. There is some acreage on every farm which is un- cultivatable and unproductive, on which the owner is paying full state and county taxes. These taxes should be eliminated on all acreage of this kind which is planted to trees up to possibly 20% of acreage of the farm, to remain tax free as long as the land remains in trees and out of cultiva- tion. It would remain to the state, through the Forestation Institute, to disseminate the seedlings for the reforestation project. —2. Workman’s Compensation and Unemployment Compensation Laws Experience indicates existing laws have not satisfactorily met the pur- poses of their creation. It is suggested that the State Industrial Relations Department should review the existing laws and after thorough research recommend any desirable amendments. –4. Educational Facilities and Services An inventory of educational facilities and services for the children 15 of Kentucky at the elementary and secondary level only, equal to the aver- age now provided in the nation, would amount to $52,425,000 annually for current expenses, and $196,444,716 for school property. This would mean an increase of $20,504,432 in annual expenditure for education at these levels and an additional investment of $121,444,716 in new school property. —3. - Highway Usage Taxes All taxes collected in connection with motor vehicle usage should be used for Kentucky’s highway program. —9. Transportation Regulations Provide for fair and impartial regulation for all modes of transpor- tation without unjust discrimination, undue preference or advantages to any group at the expense of the remainder. —9. Auto Taxes A study of taxes, as they apply to automobiles, should be undertaken. Such a study should include the “policing” expense included in the cost of collection. —9. State Highway Police Kentucky should have a State Highway Patrol with police powers com- parable to organizations in neighboring states. Without adequate enforce- ment by a highly trained and well informed patrol, the economic loss will be more than the cost for maintenance. —9. Toll Bridges The program of freeing toll bridges in Kentucky should be accelerated So that all toll bridges are made free. —9. Busses Kentucky is handicapped by trade barriers because of inequitable regulation and taxation. We recommend an impartial study be made of such regulations and taxes as will best serve the common carrier motor- bus line to the end that Kentucky will be able to serve the public interest on a basis comparable with bordering states. –9. Trucks A review of the present size and weight limitations on highway users should be made. The General Assembly should be guided by the recom- mendations of the United States Public Road Administration and the State Highway Department. —9. 16 Department of Aeronautics A strong State Department of Aeronautics is recommended. A num- ber of bills giving federal aid to airport construction are pending in Congress. Planning necessary to make it possible to be ready to go for- ward with the national plan is immediately necessary. Lack of planning will deny Kentucky federal aid as set up in the national plan and militate against receiving her share in relation to comparable states. –9. TYPE OF LEGISLATION TO BE AVOIDED Management’s Right to Manage The right of a management to manage is a corollary of the right of labor to organize and bargain collectively. These rights are clear and unequivocal. The Commission being represented by labor and manage- ment, records itself as an adherent of these rights, and places this state- ment before the Governor and the Legislature for their guidance in affairs pertinent to this thesis. –4. Technical Advancement With regard to the encouragement of technical advancement, no legis- lation or state control through the Industrial Relations Department should be permitted which will hinder manufacturers in developing, acquiring, and maintaining technical progress. Specifically, no labor-management controversy should be under the jurisdiction of arbitrators which has to do with the installation and operation of new process and machinery. On the other hand, management should undertake to balance in advance the characteristics of employment dislocation and technological advancement. Closer ties within management need to be developed between research, engineering, and industrial relations in order that the equities of humans may be preserved against the economic forces of material progress. –4. CONSTITUTIONAL LAW The last session of the General Assembly went on record as favoring the convening of the Constitutional Convention. It seemed convinced that the present Constitution is not readily adaptable to the changing conditions of the present day world. Such a convention should be approached in the spirit of a dynamic future for the State of Kentucky. There must be eliminated from the Constitution various provisions which have shackled to a large extent the business and public development of the State. The first step in convening the convention is under way. Under the present legislative program, the General Assembly in 1946 must concur with the actions of 1944 General Assembly. In 1947 the electorate will -i ry -R 4 vote on the proposition. If it is approved by the people, the General As- sembly will propose a law in 1948 calling the Convention. In 1949 the electorate would then elect delegates to the Convention, and the state might have a new Constitution by 1950. —8. Amending the Constitution The state must have an intelligent and interested electorate if it wants to progress. The only way to achieve this end is through education which is a long-time pull. The question resolves itself, then, in what can be done now to break up the log jam created by the present Constitution and how to do it, so that it will be accepted by them. The present Constitution could be brought up to date by amending the amending provision. —8. Amendment for Non-Diversion of Highway Taxes from the Road Fund In order to assure Kentucky's opportunity to use funds for road con- struction from taxes paid by the highway users and match the federal Aid Act of 1944, the people will have the opportunity to vote on an amendment to the Kentucky Constitution on November 6, 1945 which should determine by popular referendum the people's will as to the highway policy. Sixteen states have adopted such amendments to their constitutions since 1920. Missouri adopted its amendment in 1928 and after 17 years of experience under the amendment rewrote it into their new constitution which was ratified by its citizens in March 1945. Four other states in ad- dition to Kentucky have taken legislative action to submit such an amend- ment to their voters. —9. 18 A POSTWAR FINANCIAL PROGRAM FOR KENTUCKY Postwar Advisory Planning Commission of Kentucky NEW INVESTMENTS AND EXPENDITURES Planning Board A permanent and continuing state agency to initiate, encourage and coordinate public planning activities would have an approximate annual cost of $75,000. —6; —5. Department of Industrial Development The Commission recommends the immediate establishment of a Ken- tucky Chamber of Commerce, sponsored by local support and to be in operation by January 1, 1946. Failing this effort as a hopeful route to the eventual formation of a strong State Chamber, the Commission has considered the establishment by appropriate legislative action of a state Department of Industrial De- velopment. It is estimated that this department would need an annual budget of $25,000. —5. Engineering Experiment Stations It is recommended that there be created a state-supported Engineer- ing Experiment Station for scientific research leading to the development of the natural resources of the State. Such a program would have an annual cost of $50,000. —5; —6. Building Code Commission The appointment of a Building Code Commission is recommended so that a sound building code may be formulated. This temporary body would cost approximately $13,000. —6. Housing Commission A State Housing Commission should be created to study the problem of sub-standard housing. This Commission would cost approximately $20,000. —6. Planning and Zoning Commission It is recommended that an Area Planning and Zoning Commission be created. The cost of such a program would be approximately $20,000. —6. EXPANSION OF EXISTING ACTIVITIES Geological and Water Resources Surveys The State Geological Survey and the Water Resources Survey need additional appropriations if the Commonwealth hopes to develop its natural 19 resources. This would take an annual appropriation of $40,000. —5. Medical and Health Program Rentucky has made outstanding progress in the field of public health, but it must make greater progress in the years to come if the people are to receive the full benefits of modern medical science. The annual cost to the state and local governments would be $1,200,000. —6. Department of Industrial Relations The State Industrial Relations Department should be strengthened both financially and administratively. It needs an expanded investigating staff, research facilities, and councils. This would call for an additional annual appropriation of $40,000. —4. Agricultural Experiment Stations Additional sub-stations in Pomology, Horticulture, Forestry, Animal Husbandry, Agronomy, Poultry, Dairying, Conservation of Soils and Ichthyology are needed. It is estimated that these sub-stations would cost $150,000. —2. Forest Protection In order to provide for adequate forest protection, to adjust salaries of forestry and conservation personnel, and to provide for surveys, an appropriation of $200,000 should be made. —7. Educational Program The task of lifting Kentucky’s educational program to the average of other states is staggering. It will take an additional annual appropria- tion of $27,000,000. —3. Aviation It is recommended that the State Department of Aeronautics be strengthened and that funds be made available to help communities build airports. The program calls for $600,000. —9. 20 COMMITTEE REPORTS 21 REPORT OF THE COMMITTEE ON MILITARY AFFAIRS AND RETURNED VETERANS Committee Report No. 1 Interim Report Submitted on January 9, 1945 Final Report Submitted on February 13, 1945 Final Report Accepted on February 13, 1945 Commissioners present on February 13, 1945: ATWOOD, R. B. BLAZER, P. G. BROWNING, J. N. BURLEW, ROY CAIN, H. W. DONOVAN, H. L. EVANS, E. J. GRAHAM, THOMAS GRUVER, R. S. HARRISON, W. B. MARR, J. W. WILLKIE, H. F. MUTCHLER, FRED OFFUTT, W. P. O’REAR, J. B. PEMBERTON, O. K. STONE, J. C. TOMLINSON, G. E WACHS, C. B. WALLACE, TOM WAT KINS, J. S. WEBB, FREEMAN WILLIS, GOV. SIMEON COMMITTEE ON MILITARY AFFAIRS AND RETURNED WETERANS The Problem: To integrate returning service men into the state economy with the minimum amount of confusion and red tape in the shortest possible time, and at the smallest cost; to cooperate with the Federal Government and its agencies, but not be dominated by them ; to coordinate, direct and train state and local agencies that have come into being or will come into being to handle veterans matters. The Solution: It is recommended that clearing houses be set up to handle veterans problems. A study of population, distribution of transportation facilities, the topography and the highway system, has lead the Committee to con- clude that the state should be divided into the following areas: Louisville Lexington Owensboro Covington Paducah Ashland Bowling Green Pikeville Somerset Harlan District No. 1 — Louisville County Population Jefferson ................................................................ 385,392 Oldham … 10,716 Trimble … 5,601 Carroll …~~~~ 8,657 Henry …~~~~ 12,220 Shelby ~…~~~~ 17,759 Spencer …~~~~~~ 6,757 Nelson ….…...............…. • * * * * * * * * * * * * * * * * * 18,004 Bullitt …~~~~ 9,511 Meade …~~~~ 8,827 Hardin …~~~~ 29,108 Larue …~~~~ 9,622 Total Population — 522,174 District No. 2 – Owensboro Webster ..........................................…................... 19,198 Daviess --~~~~~ 52,335 Henderson ................................................................ 27,020 Union ~~~~~~~~~ 17,411 County Population, Hopkins --------------------------------------------~~~~ 37,789 McLean ------------------------------------------------~~~~ 11,446 Ohio ----------------------------------------~~~~ 24,421 Hancock ------------------------------------------------~~~~ 6,807 Breckinridge ---------------------------------------------............... 17,744 Grayson ~~~~~~~~ 17,562 Total Population — 231,733 District No. 3 — Paducah Fulton --~~~~~ 15,413 Hickman ------------------------------------------------------------------- 9,142 Carlisle --~~~~~~~~~ 7,650 Ballard ------------------------------------~~~~ 9,480 McCracken --------------------------------------------.................... 48,534 Graves ~~~~~ 31,763 Marshall ------------------------------------------------------------------ 16,602 Calloway ---------------------------------------------------------------- 19,041 Livingston ---------------------------------------------------------------- 9,127 Crittenden --------------------------------------.......................... 12,115 Lyon ~~~~ 9,067 Caldwell -----------------------------------------------------------------. 14,499 Trigg --~~~~~ 12,784 Total Population — 215,217 District No. 4 — Bowling Green Christian --------------------------------------------… 36,129 Todd --~~~~ 14,234 Muhlenburg .............................................................. 37,554 Logan …~~~~ 23,345 Butler …~~~~ 14,371 Simpson … 11,725 Warren -----------------------------------------… 36,631 Edmonson ................................................................ 11,344 Hart --~~~~~~~ 17,239 Barren …~~~~ 27,559 Allen …~~~~~~ 15,496 Total Population — 245,627 District No. 5 – Somerset Monroe ---------------… 14,070 Metcalfe .................................................................... 10,853 Cumberland .............................................................. 11,923 Green …~~~~ 12,321 COunty Population Taylor ~~~~~~~~~ 13,556 Marion ~~~~ 16,913 Adair …~~~~~ 18,566 Boyle …~~~~~~~~ 17,075 Casey …~~~~ 19,962 Russell --~~~~ 13,615 Clinton ~~~~~ 10,279 Wayne …~~~~~~ 17,204 McCreary .................................................................. 16,451 Pulaski … 39,863 Lincoln …~~~~ 19,859 Rockcastle ................................................................ 17,165 Laurel …~~~~~~~ 25,640 Jackson … 16,339 Clay …~~~~~~~~~~ 23,901 Total Population — 335,555 District No. 6 — Lexington Robertson -----------------------------------------------.........…... 3,419 Washington .............................................................. 9,997 Mercer … 14,629 Anderson ---------------------------------------------------------------- 8,936 Franklin .................................................................... 23,308 Woodford .................................................................. 11,847 Jessamine ................................................................ 12,174 Madison …..................................................... 28,541 Garrard … 11,910 Fayette … 78,986 Scott …~~~~~~~~~~~ 14,314 Harrison .................................................................... 15,124 Bourbon …..................................... 17,932 Nicholas .................................................................... 8,617 Bath --~~~~~ 11,451 Montgomery ............................................................ 12,280 Menifee ….…....... 5,691 Powell … 7,671 Estill …~~~~~ 17,978 Lee …~~~~ 10,860 Wolfe … 12,965 OWsley … 8,957 Clark …~~~~~~~~ 17,980 Total Population — 365,567 26 District No. 7 — Covington COunty Population, Gallatin --~~~~~~~ 4,307 Owen …~~~~ 10,942 Grant …~~~~ 9,876 Boone …~~~~ 10,820 Kenton ~~~~ 93,139 Campbell .............……….... 71,918 Pendleton .................................................................. 10,392 Bracken --------------------------------------------------------------- 9,389 Mason ~~~~ 19,066 Total Population — 239,849 District No. 8 – Ashland Fleming -------------------------~~~~ 13,327 Lewis …~~~~~ 15,686 Greenup ------------------------------------------------.................... 24,917 Boyd ~~~~ 45,938 Carter ~~~~~~ 25,545 Rowan …~~~~ 12,734 Elliott --~~~~~~~~~ 8,713 Lawrence --------------------------------…. 17,275 Morgan …~~~~~~~~~ 16,827 Total Population — 180,962 District No. 9 — Pikeville Martin …~~~~~~~~~ 10,970 Johnson --------------------------------------… 25,771 Magoffin ----------------------------....................................... 17,490 Floyd ~~~~~~~ 52,986 Pike ~~~~ 71,122 Knott --~~~~~~~ 20,007 Breathitt .................................................................. 23,946 Perry …~~~~ 47,825 Letcher …~~~~ 40,592 Total Population — 310,709 District No. 10 — Harlan Leslie --~~~~~~ 14,981 Harlan …~~~~ 75,275 Bell …~~~~ 43,812 Knox --~~~~ 31,029 Whitley …....…...................... 33,186 Total Population — 167,254 27 These clearing houses would be within fifty miles of practically every service man in the state. The following plan is suggested for the organiza- tion of the various areas: Purpose: The purposes of the area association are to cooperate with and supple- ment the work of the existing federal and state agencies in meeting the problems of all persons who served in the armed forces of the United States—to assist, counsel and advise service men and women in need of mental and physical rehabilitation or vocational training—to prevail upon employers for understanding and cooperation in the reemployment of vet- €I’a,IlS. Membership: The membership of the area’s association should include all interested agencies and individuals. A suggested group would be: |UNITED STATES EMPLOYMENT SERVICE |UNITED STATES WETERANS EMPLOYMENT SERVICE LABOR ORGANIZATIONS AMERICAN LEGION OF KENTUCKY VETERANS OF FOREIGN WARS DISABLED AMERICAN VETERANS KENTUCKY STATE WOCATIONAL REHABILITATION AMERICAN RED CROSS UNITED STATES CIVIL SERVICE SOCIAL SECURITY SELECTIVE SERVICE DEPARTMENTS OF PUBLIC WELFARE WAR FUND – COMMUNITY CHEST JEWISH VOCATIONAL SERVICE UNIVERSITIES OR COLLEGES IN THE AREA CITY AND COUNTY BOARD OF HEALTH TUBERCULOSIS ASSOCIATION SMALLER WAR PLANTS CORPORATION SALVATION ARMY COUNCIL OF CHURCHES SOCIAL LUNCHEONS CLUBS |UNITED STATES WAR MANPOWER COMMISSION BOARD OF TRADE APPRENTICE TRAINING — U.S.E.S. AREA DEVELOPMENT ASSOCIATION BAR ASSOCIATION AMERICAN WAR DADS 28 FARM ORGANIZATIONS Y.M.C.A. This is not a complete list and should include all interested groups. Functions: It will be the duty of the members of the association to study the many and varied problems that will arise in connection with the return of our veterans to civilian life and advise in regard to them—to handle the prob- lems arising from the necessity of conserving our national effort in the prosecution of the war—to maintain a coordinated Service and assistance for all veterans to readjust themselves into a useful civilian life—to in- terpret the problems and needs of the veterans to the community at large. Elected Officers: The following officers should be elected each year: CHAIRMAN 1ST VICE CHAIRMAN 2ND VICE CHAIRMAN SECRETARY TREASURER Committees: The following committees are necessary for the organization and the work of the association and to develop interest among members. BY-LAWS COMMITTEE : To recommend rules and procedure for the work of the association and its future expansion. LEGISLATIVE COMMITTEE : To make a study of city, county and state legislation pertaining to the present activities and for the future work of the association, and to sponsor constructive legislation for the benefit of the veterans and their families. PUBLICITY COMMITTEE: To secure all the necessary publicity on the radio, in the newspapers, and to organize a speaker’s bureau for the pur- pose of telling of the work of the association. PLANNING AND ACTIVITIES COMMITTEE: To suggest and study plans and activities in which the members of the association should enlarge the Scope of their usefulness in assisting the returning veterans—to organize and suggest a plan for the opening of a central clearing house or informa- tion center to be sponsored by the association—to promote and study the various plans by which the members of the association can activate the purposes of the organization. 29 EXECUTIVE COMMITTEE FOR THE INFORMATION CENTER: This commit- tee is to operate the Veterans Information Center for such services and benefits which are afforded by the community to assist the veterans to re- adjust themselves into civilian life and a useful citizen of the community. DIGEST COMMITTEE: To prepare a loose-leaf digest record of the serv- ices and benefits of all agencies, organizations, and institutions which can, in their particular way, perform some service for the returning veteran. Other committees will be appointed from time to time as circumstances require for the best interests of expediting the purposes of the organization. General Remarks: It is the purpose of this association to be equipped with all the services and benefits available which a community can offer in assisting the re- turning veteran to civilian life after his or her discharge from the armed forces of the United States. It is the intention of the association to function regularly and to de- velop its study and research for the benefit of the veteran and his or her problems as long as the need exists as a community responsibility and Se]"VICe. Proposed By-Laws: 1. The name of this organization shall be The.............................................. Area Veterans Clearing House Association. 2. This Association shall be composed of representatives of agencies, groups and organizations who are interested in the problems of the services needed by ex-service men and women and/or their depend- ents. The membership of this organization shall not exceed................ members. Each agency, group or organization shall on every ques- tion submitted be entitled to one vote. 3. The purpose of this Association shall be to cooperate with, advise with, and supplement the work of Federal, State, Municipal, and other agencies in returning to employment and rendering other services necessary for return to civilian life for all persons who served in the armed forces of the United States. 4. The affairs of the association shall be conducted by a Chairman, a Vice Chairman, a Secretary, a Treasurer and an Executive Commit- tee, not to exceed five members, including the elective officers of the Association. The office of Secretary and Treasurer may be held by one and the same person. 5. The officers of the Association shall be elected annually. 6. There is hereby created a committee to be known as the Executive Committee for the Information Center whose duties shall be to su- 30 10. 11. pervise and control the activities of the Information Center, and said committee is hereby authorized and empowered to any and all things necessary and legal to achieve one of the objectives of this Associa- tion, namely conducting a well regulated and competent Information Center for veterans and their dependents and/or families. The Ex- ecutive Committee for the Information Center shall consist of six (6) members as follows: 1. The Chairman of The.......................................... Area Veterans Clearing House Association, 2. One person representing the local Veterans Committee (War Manpower Commission) (Vet- erans Administration) (and Selective Service), 3. One person repre- senting the public agencies, 4. One person representing the War Fund —Community Chest, and 5. two persons appointed by the Chairman of The.… Area Veterans Clearing House AS- Sociation; all of whom shall be members of the association. The committee for the Veterans Information Center shall serve for a term of one year from the date of their appointment, and shall continue so to serve until their successors are appointed and qualified. Any vacancies occurring on said committee shall be filled by appoint- ment by the Chairman of The .................................................. Area Vet- erans Clearing House Association. In making said appointments the chairman shall be guided by the qualifications as set forth in this article. The officers of the Association shall perform such duties as are nec- essary to conduct the business of the Association in order to achieve the purposes for which the Association was organized. The chairman may appoint any committee or committees which, in his judgment, he deems necessary for the purpose of accomplishing the purposes for which the Association was organized. Twelve (12) representatives of the several agencies, organizations or groups, members of the Association, shall constitute a quorum for the purpose of transacting any business during a meeting, either regular or special. On the question of the admission of a new member to the association a majority vote of the membership of the organization shall be re- Quired. This constitution and by-laws may be amended or revised by a ma- jority vote of the membership of the association at any regular meet- ing. In order that there may be a definite and clear understanding of the agencies, groups, or organization members of the association as of this date, a list of same is attached hereto and made a part hereof. 31 12. The ---------------------------------------------- Area Veterans Clearing House Asso- ciation shall meet at least once a month, the date and time to be designated by the members at a previous meeting. Special or extra meetings may be called by the Chairman or on request of ten (10) members. Written notice shall be sent to each member in advance of the calling of the meeting. VETERANS INFORMATION CENTER — PROSPECTUS It is to be remembered that the following Prospectus is estimated on the current demand and need for the Veterans Information Center and that the possiblities for increased facilities will be determined by the de- mand for the services. Purpose: The Veterans Information Center provides one central location where the veteran discharged from the armed forces of the United States may secure advice and information, and be directed to the proper agency for assistance on the problem confronting him or her upon their return to civilian life; such as employment, vocation training, education, medical, Social and welfare, etc. To establish a clearing house of information provided by all govern- ment and state agencies, city, county, and state welfare organizations, labor unions, health centers, medical clinics, legal aid, or any agency or organization whose services or benefits will assist the returning veterans to readjust themselves to civilian life. Length of Operation: Only time and necessity will determine the length the Veterans Infor- mation Center will function. A thought to be carefully considered is the advantage of the perpetua- tion of this central clearing house beyond the veteran need to coordinate the many services of the city and county welfare agencies—a civilian in- formation center to route cases without unnecessary delay and overlapping. Location and Space: This center should be located independently of all other organizations and agencies. This will prevent any one organization or agency from ex- pecting too much attention and from exacting too much influence in the operation of this Center. For the present, the location should provide sufficient space for One good sized waiting room, one good sized private office or consultation 32 suºquº 0 w01101w.10 ſu I 40 pļºſ ſuņ114AA puſſ, I suolº 19A VHOAVI Jo aesºnanoo onou，I- ·lºquº,) w04 10：10 ſu I suſ). 1949 A 100!!0!fi, I, o 10 3189 (I woņdº，993|| 91/, I, v Ho Avº 1. Jo Asºſanoo oqoqaeſ- room, and sufficient space for additional counsellors as the demand neces- sitates. Equipment: The waiting room should be equipped with sufficient furniture, etc., to create a welcome and warm atmosphere. The private office shall be fur- nished in the same manner. A complete mimeograph outfit and supplies should also be furnished. Personnel: The office shall be in charge of a competent person of pleasing person- ality; either male or female. Such a person should have humanitarian instincts and be able to understand the problems of the individual; also able to advise and direct him or her to the agency or organization best Qualified to render the service needed or required. One assistant, at the present time, qualified to take dictation and do typing ; also experienced in filing and have some inclination as a recep- tionist. If, at any time, additional assistance is required, the various member Organizations and agencies will be asked to provide volunteer workers whose duties shall be assigned by the Director of the Center. Duties of Personnel: The director of the Center shall interview all persons or applicants to the Information Center, and direct that applicant to that organization or agency which can best solve the particular problem of the applicant. A complete information file shall be kept on all applicants showing nature of request and what disposition was made of that request. The records shall be kept in such manner that complete statistical re- ports can be given upon request, only to persons directly concerned. The personnel shall be answerable and responsible only to the Execu- tive Committee of the Information Center representing the ......................... area involved. Other details of duties shall be developed as necessity and demand requires. Official Committee: The official Committee or local Veterans Committee composed of one member each from the Veterans Administration, Selective Service, and the War Manpower Commission, appointed as the result of a directive issued by General Hines of the Veterans Administration, and concurred in by the Director of National Selective Service and the War Manpower Commission, is affiliated or associated with this Association. This com- 35 mittee was organized and set up for the purpose of establishing informa- tion centers and for the performing of other services for veterans in the various local communities. Executive Committee: This committee shall assume the duties of an Executive Committee of the Veterans Information Center. The Executive Committee shall be responsible for the supervision of the center and will in turn make their reports to the members of the association. The Executive Committee shall consist of the following members: 1. Chairman of the association 2. Chairman Of the Official Committee 3. Representative of the Public Agencies 4. Representative of the War Fund—Community Chest 5. Two members to be appointed by the Chairman of the association Financing: Since this undertaking is strictly a responsibility of the various com- munities in caring for its returning veterans, the venture should be financed jointly by the communities in the area, the counties in the area, and the local social agencies. State Committee: It's recommended that a state committee, known as The Kentucky Association of Veteran’s Clearing Houses, be formed. This Committee would act as a clearing house for information for the entire state and would coordinate the activities of each area. Each area clearing house would be represented on the committee by three elected members. The organization of the state committee would parallel that of the area as- Sociations. The state committee would work out procedures, set up train- ing courses for the Information Center directors and take care of all veteran matters that require state-wide attention. The above program places the responsibility for rehabilitating veterans directly upon the people of the Commonwealth. This is democracy in action because only the people in the various locals know the problems of that local. Military Affairs: The commission is of the opinion that Chapters 36, 37, 38, and 39 com- prising Title 5 of the Kentucky Revised Statutes, adequately provides for Military Affairs. These chapters were critically examined and brought up to date by the 1942 legislature. 36 COMMITTEE ON MILITARY AFFAIRS AND RETURNED VETERANS E. E. STOKES, Chairman, Covington W. D. ANDERSON, Covington LT. COL. ARTHUR J. DALY, Cincinnati, Ohio T. X. DILLON, Covington C. W. DUE, Covington HARRY H. JEFFRIES, Louisville BRIG. GEN. G. H. MAY, Frankfort HERBERT MICHAELS, Cincinnati, Ohio DON W. NICHOL, Covington O. K. PEMBERTON, Louisville P. G. VONDERSMITH, Covington J. R. WEYLER, Louisville spºuqußnowo (J. ſtºłºwąwayſ *ſoous pus plºgne o jo ºsaſunod oſouci- REPORT OF THE COMMITTEE ON AGRICULTURE Committee Report No. 2 Interim Report Submitted on February 13, 1945 Final Report Submitted on March 13, 1945 Final Report Accepted on March 13, 1945 Commissioners present on March 13, 1945: ATWOOD, R. B. STOKES, E. E. CAIN, H. W. STONE, J. C. DONOVAN, H. L. TOMLINSON, G. E. EVANS, E. J. WACHS, C. B. GRAHAM, THOMAS . WALLACE, TOM MARR, J. W. WATKINS, J. S. OFFUTT, W. P. WEYLER, J. R. O’REAR, J. B. WILLKIE, H. F. RAMSEY, J. E. A G R I C U L T U R E Your Committee on Agriculture, from its study of Kentucky’s prob- lems, has come to two basic conclusions which must bear the full emphasis of this report. Any of the programs which we recommend are resolved by these two considerations: 1. Improvement in the lot of the majority of our people can be achieved only through further education of the individual. That is, we cannot utilize the economy of road improvements, land use, conservation, diversified production, crop processing, etc. without bringing to bear an aroused intelligence on the significance to successful farming of such programs. 2. The individual farmer must adopt a directional purpose for all of his activities. He should cease to operate loosely under the influence of chance plantings and soil characteristics, and instead establish his farm on a business basis. Every crop he plants, every animal he raises, every improvement he contemplates must serve to advance the par- ticular production program he has laid out. In this way he will pre- serve his freedom and integrity against undue socialization. By eliminating ignorance he will resolve the “why” of his efforts; by diminishing chance through purposeful planning and control, he will articulate the “how” of methodology of his operations; and by adopt- ing the principles of business management he will not only realize the profits of his endeavor, but will contribute practical research data to the largest and most basic of all industries — agriculture. I. Agricultural Education A number of lines of coordinated effort in agricultural education vary- ing from refresher courses for farmers to advanced research studies in the College of Agriculture at the University of Kentucky and its experi- ment stations will be required in the postwar years. Kentucky has made a good start in agriculture through necessity alone, but the indices of farmer welfare — per capita income, taxable values, the presence or ab- Sence of electrical, sanitary, communication, labor-saving, and water facili- ties, marketing values, land use factors, etc.” — reveal that the state has much progress to make before the benefits of successful, balanced agri- culture may be realized. Farming, more than any other vocation, calls for individual experience backed by fundamental research. Family life on the farm is more im- mediately affected by the level of communal cultural activity than it is in urban centers. Both the vocation and the family life depend on the quality and extent of education available to individuals. The following program is urged for adoption as soon as practicable. *See Opportunities in Kentucky Agriculture, Circular 404, University of Kentucky, 1945 40 A. Establishment of courses on the conservation of land in each high school in the state, in both agricultural and industrial counties. For example, a course in Rural Civics for each high school would achieve the purpose of a study of soil conservation for land use. Each student would be assigned a definite farm area or farm product for study with regard to past use, present condition, and projected plans. In this way a study of rural land use and pro- duction for Kentucky will be achieved with a speed, accuracy, and cost not paralleled by any other state. In addition, it will give the most valuable sort of education to the coming farm and industrial generation. The interdependence of agriculture and industry will be established in young, receptive minds. B. Establishments of two-year courses at the agricultural colleges in addition to the regular curricula. For example: Management and Farm Accounting Agricultural Economics Agronomy - Animal Husbandry Soil and Fertilizer i Forestry Thus, fundamental farming principles could be established at an age and within a period of time compatible with the development of young farmers. C. Assignment of certain specialties in parts of the state where these crops are most suitable. The only two sub-stations the state sup- ports at the present time, those located in Caldwell County and Breathitt County, are insufficient insofar as decentralization and diversification for research and education in agriculture are con- cerned. It is suggested that additional sub-stations be established, when properly financed, and that they be administered entirely under the University of Kentucky. For example: 1. Pomological, Horticultural, and Forestry Institute to be located in the northeastern part of the state. a. A combined state-supported school and experimental sub- station nearest the fruit-growing area is recommended. 2. Animal Husbandry — dairy and beef cattle, hogs, and sheep — to be located at the University of Kentucky in Lexington. 41 Agronomical and Poultry Institute to be located in the east- central part of the state. Studies should be devoted to corn, small grains, feeds, and poultry raising. Dairy Products Institute—cheese, milk, butter, ice cream, by- products—to be located in the western part of the State. Establishment of an experimental sub-station to increase activ- ity and financial support for agricultural department of State College for Negroes at Frankfort giving equal opportunity for colored population to obtain higher agricultural education. Conservation of Soil Institute to be located in the south-western part of the state. Ichythyological Institute to be located in the south-eastern part of the state—to include fish farming, model ponds, fish by- products such as oil, fertilizer, feeds, etc. Vocational Education 1. The published work of experiment stations, described in bul- letins, should be distributed on a larger scale and distributed voluntarily rather than at the request of the farmers. Once the literature is distributed, the county agents should organize meetings of farmers to discuss and explain fully the contents of the bulletins. Short reviewing courses (three to four days) at the various sub-stations should be established for the benefit of farmers. Recent developments of the sub-stations would furnish material for the courses. Safety, first aid, and farm sanitation programs should be estab- lished. There is at present no actual safety program for rural areas either in Kentucky or in the nation at large. Yet the most Serious casualties, fires, and mortalities are incident to farm life. It is probably the most hazardous occupation in which we engage. Farm sanitation has been carried on with- out any adequate facilities; yet it affects the food and beverage production of the nation. Youth Movements The support and coordination of the 4H Club activities and other Similar youth movements should be increased, together with en- couragement from the leading agricultural authorities in prepar- ing the future leaders of progressive agriculture. 42 II. Soil Improvement A. Land, being a basic asset, requires conservation in the broadest Sense, and conservation is a practice characterized by its timeliness and continuity. Thus, detailed and up-to-date soil maps for each county are necessary in the formulation of programs of soil build- ing and land use. Today only twenty counties (16.6 per cent) have Soil maps, many of which are non-specific or out of date. The following table reflects this unsatisfactory situation: Year Report County Published Agency 1. Union ............ 1902 U. S. Bureau of Chemistry and Soils 2. Scott .............. 1904 & & 3. Mason ............ 1904 & 4 4. Madison -------- 1905 6 & 5. Warren ---------- 1905 & & 6. McCracken ....1906 & 4 7. Rockcastle ....1910 & 4 8. Webster -------- 1912 Kentucky Experiment Station 9. Christian. ....1912 U. S. Bureau of Chemistry and Soils 10. Franklin -------- 1912 Kentucky Experiment Station 11. Graves.. ........ 1913 & 4 12. Jessamine. ---- 1915 U. S. Bureau of Chemistry and Soils 13. Shelby -----------. 1916 U. S. Bureau of Chemistry and Soils and 14. Logan ............ 1919 Kentucky Experiment Station 15. Muhlenberg .1920 & & 16. Garrard ........ 1921 & & 17. Mercer .......... 1930 & & 18. Fayette ---------- 1931 & 6 19. Calloway, field work finished ........ “ and T.V.A. 20. Marshall, field work in progress.... & ‘ (Calloway County) Your Committee recommends the resumption and completion of these studies as a “first” in postwar planning for agriculture. Conservation and erosion study leading to the introduction of new plants, such as kudzu, is of first importance. Contour, terracing, and strip farming should be studied and es- tablished to take advantage of natural precipitation and continu- ous protection. 43 fiºſon, wayſ uoſ ºu maen, I wºp 100 V-0000qo/L （ſoous pub plaunuo jo ºsaſunoo onoq：I- Improvement of soil by the proper sequence of crops is imperative. D. E. It should be emphasized that soil characteristics have an influence on the nutritional quality of crops. F. The state should insist that the government-established emergency ammonia plants remain in the state after the war to be maintained for production of fertilizers for farms. - G. Studies of correct application of the proper fertilizer for each soil and crop should be expanded, published, and distributed widely. H. There should be further development of lime, super-phosphate, and other deposits suitable for fertilizer. III. Improvement of Yields and Development of Supplies for the State Industry An organized program to improve the yields of all agricultural prod- ucts should be instituted. Grain particularly has a potential and com- pletely unused market in our own state's industries. The average produc- tion of corn is now approximately 30 bushels per acre. If this yield could be raised 25%, a sufficient amount could be purchased in Kentucky by industry to meet their requirements, and the protein enriched by-products, now forced by milling and transit rates to be shipped back out of the State, could be utilized by Kentucky farmers to increase their livestock nutritional needs, which, in turn, would produce more and better milk, fatter and healthier livestock of all kinds. IV. Agricultural Machinery and Mechanical Facilities Productivity on the farm is too frequently limited by the shortage or inadequacy of manual energy. On the other hand, over-ambitious mecha- nization has been the cause of unsafe credit practices and duplication of services within the farm community. The most important service to farmers that can be extended in the immediate postwar period is an organized technical service providing both basic and specific designs for water supply, heat, electricity or other power Source, maintenance instruction, building units for human, animal, product, and machine shelter, sanitary facilities, and the like. Such a Service could emanate from several sources: cooperative farm pools, the Agriculture Experiment Station, a state bureau of agricultural and in- dustrial development, and an independent manufacturers' association or Statewide chamber. These should work together to bring into focus the Service needs of agriculture and the service facilities of contractors, pre- fabricators, and equipment producers under a program of strict economy 45 and mass distribution. Until a substantial alleviation of outright physical effort is realized by the farmer, he will continue to operate his plant on an expedient day-to-day basis in lieu of a self-planned, purposeful production program. V. Processing, Marketing, and Distribution of Agricultural Products Successful farm operation is achieved best on a year around, cash in- come basis. To accomplish this, farmers must first produce in Such a manner that processing and marketing will no longer be seasonal and discontinuous, or there must be provided warehousing, dehydrating, or refrigerating services to tide over the seasonal crops for continuous marketing. This presupposes that each farm has its progress directed toward this method of planning its year's operations. Such a program will give direction to the farmer and make possible the capitalization of group or cooperative marketing facilities. A. Careful study should be made of the marketing and distribution of agricultural products, of cooperative organizations, of ware- houses, and of transportation. B. Cooperative price stabilization should exist to eliminate rushing to market to take advantage of peak prices, the farmer thereby losing deserved yields. The element of competition and uncertainty introduced by peak seasonal marketing and weather conditions must give way to competition based on quality of production and balance of supply throughout the year which would automatically determine the price. C. Marketing programs should be expanded to give recognition to the variating qualities of products such as eggs, poultry, and dairy products. Federal and state inspection and grading service, and greater market reporting would help in disposal of farm products. D. Storage facilities should be made available on a cooperative basis to aid in more equal distribution of marketable products. VI. Cooperative Processing of Food Stuffs and Other Products Farm income can be increased materially and on a year-round basis if more emphasis is placed on processing after harvest in place of direct raw goods marketing. Pooled resources of groups of farmers can com- mand more favorable credit to provide physical processing facilities than can individual resources. In this way, canneries, freezing units, dehy- drating and preserving plants may be financed and operated in the com- munity interest. As by-product recovery methods become simpler and 46 pwocł w wolae ſºſomąwayſ 1004 dae, I, Y –Photo courtesy of The Louisville Courier-Journal 4-H Club Girls with Champion Ewe at the State Fair more extensively developed, smaller plant units will come into use So that processing at point of production may be practiced, eliminating waste at the source, saving on shipping costs, and providing industry with more valuable produce. It is the role of the Agriculture Experiment Station, banking concerns, and industry jointly to aid the farmers in establishing economical processing plants. VII. Farm Credit A. Credit for agriculture should continue on a sound basis, free of socialization and broad enough to finance farm activities. B. Farm credit extended to farmers who are entitled to it should be at rates equally as good as industrial credit rates when collateral justifies. VIII. Further Development of Secondary Roads A. Kentucky’s secondary road system should be greatly improved in order to make farm products more accessible to existing markets. This would aid in the handling of the more perishable products which, at present, do not receive proper marketing facilities. At the same time, an improved road system would make possible the necessary expansion of rural education and medical care. B. The present fund for farm-to-market road improvement should be increased, and more emphasis should be placed on secondary roads. IX. Electrification and Communications Electrical and telephone services should be made available to the large majority of the farm population of the state which at present is without them. X. Farm Buildings The need for improvement of farm architecture with respect to func- tionalism, flexibility, and economy is becoming well recognized. Publi- cations of the Kentucky State Agriculture Experiment Station have delineated with these needs very adequately. It remains for builders, bankers, and farm groups to get together on feasible plans for design, fabrication, and financing. XI. Tobacco Improvement and Investigation of Other Uses for the Crop A. Revival and further development of studies of improved types of tobacco for Kentucky are recommended, together with the study of tobacco by-products’ utilization, in order to put in more intensive practice existing knowledge. 49 1. Process of obtaining citric acid from tobacco and tobacco by- products should be considered first. 2. Investigation of the possibilities of increasing the varieties of tobacco that could be grown should be made 3. Development of tobacco with an increased nicotine content for the production of nicotine as an insecticide is recommended. XII. Stock Breeding and Services A. There is need for improvement of the dairy cattle and calves to establish Kentucky as a dairy state. This is a definite possibility as there are many varied types of pasturage available. B. A general veterinary service should be more readily available in the state along with improved qualification for personnel. This would include all types of vaccination. C. Facilities such as the establishment of cow-testing associations con- nected with the Dairy Herd Improvement Association would be invaluable. D. The climatic conditions of Kentucky would make for potential ex- pansion in the dairying industry equivalent to that in the states of Wisconsin and New York. Kentucky is an ideal state for dairy- ing and dairy products. At the present time, dairy states such as Wisconsin and New York use 3.6% and 4% of the total milk pro- duction for calves, whereas Kentucky uses only 1.3%. The re- Sults are obvious. Improvement should be made in the feeding methods. E. Artificial insemination for controlling and improving breeds is recommended. F. Individual studies on feed practices for the purpose of changing from the antiquated traditional rations to more efficient practices, which have been proved by recent research should be made to im- plement the better breeding program recommended in the fore- going paragraphs. XIII. State and County Fairs It is suggested that a thorough investigation of the present status of the state and county fairs be made. The facilities of the fairs should be revamped and put on a more educational basis for promoting agricultural development. The fairs should be set up more from an expositional standpoint than from the present selling standpoint. The Committee recommends that the appointment of the State Fair Board be governed by similar principles to those governing the appointment of the members of the Board of Trustees of the University of Kentucky. A separate 50 study of State Fair organizations is being conducted by the Louisville Area Development Association from which recommendations for financial and administrative reorganization soon will be forthcoming. Visits have been made to midwestern and northern states for the purpose of inter- viewing responsible officials in departments of agriculture and their sub- sidiary State Fair staffs. Significant information has been secured and is being evaluated for adoption to Kentucky’s State Fair problems at an early date. XV. Rewards to Progressive Farmers The state should recognize and appreciate all examples of resourceful- ness and ingenuity on the part of Kentucky farmers in the interest of both the state and nation with regard to the furthering of progressive agriculture. An expansion of the present press program, underwritten by the state, should be initiated. XVI. Park and Recreational Facilities Because the parks utilize part of the land, there needs to be a closer understanding between the Department of Conservation, the Department of Public Works, and the Department of Agriculture. The subject of land use is intimately concerned with preservation of rural beauty. Your Committee on Agriculture is deeply interested in cooperating with the Committee on Natural Resources and the Committee on Public Welfare in the revamping of the park and recreational facilities to bring about the cleaning, beautification, improved facilities, just prices, and, finally, the popularization of this tremendous asset of the state. XVII. Reforestation A definite program of reforestation in each county should be organized, and all rough and uncultivatable lands or water sheds in the state should be planted to trees. There is some acreage on every farm which is un- cultivatable and unproductive, on which the owner is paying full state and county taxes. These taxes should be eliminated on all acreage of this kind which is planted to trees up to possibly 20% of acreage of the farm, to remain tax free as long as the land remains in trees and out of cultiva- tion. It would remain to the state, through the Forestation Institute, to disseminate the seedlings for the reforestation project. Your Committee has undertaken the study of farm labor. This is a difficult problem and should be more thoroughly investigated by the Labor Committee, but, at the same time, it must be emphasized that the living and sanitary conditions for farm labor should be improved. It is felt that the apparent unbalance of rural populations in Kentucky can best be rectified by community growth leading to diversified industry. Good roads 51 will spread the distribution of urban centers, making new opportunities for the marginal group which now shifts aimlessly with each economic dislocation between farm and city. Education, undertaken in community groups and consistent with our cultural characteristics, together with studied vocational guidance, will bring these new opportunities before the uncertain fringe of rural population. It will provide a moral growth and a civic stabilization of a great number of our people. Finally, the technological alliance of agriculture and industry, based On Such programs of research and development as laid out above, will Secure for Kentucky a position of eminence in the nation economically, culturally, and morally. COMMITTEE ON AGRICULTURE JAMES C. STONE, Chairmam, Lexington JOHN H. BROWNING, Maysville THOMAS P. COOPER, Lexington JOHN E. BROWN, Shelbyville DR. PAUL J. KOLACHOV, Louisville JOHN W. MARR, Lexington DR. FRED MUTCHLER, Bowling Green 52 –Photo courtesy of University of Kentucky Memorial Hall at the University of Kentucky ſtºſomaeuº y ſo ſiųsuºnywſ ºu I, 10 ſupplynºſ 90w910S 10046010481 *ſoous puae prºgnºo jo «sºſanoo onoria- | || ， ! | |- | |- | |-， ！ │ │ │ │·|： | |-ſ-|- REPORT OF THE COMMITTEE ON EDUCATION Committee Report No. 3 Interim Report Submitted on February 13, 1945 Final Report Submitted on March 13, 1945 Final Report Accepted on May 8, 1945 Commissioners present on May 8, 1945: ATWOOD, R. B. BLAZER, P. G. BROWNING, J. N. CAIN, H. W. DONOVAN, H. L. EVANS, E. J. GRAHAM, THOMAS GRUVER, R. S. HARRISON, W. B. HILL, J. B. MARR, J. W. OFFUTT, W. P. O’REAR, J. B. RAMSEY, J. E. STOKES, E. E. STONE, J. C. TOMLINSON, G. E. WACHS, C. B. WATKINS, J. S. WEBB, FREEMAN WEYLER, J. R. WILLKIE, H. F. EDUCATION Kentucky has many pressing educational problems. Rapid changes in our social and economic structure, together with the conditions which have resulted from the war, are making demands upon the Schools which can be met only with the united support of all of our citizens. Some of these problems are intensified by a reluctance to change ways of doing things, others by shortsightedness or lack of vision as to what should be done. The problems discussed in this report are the major ones which are of great concern to educators and laymen alike. 1. A Better Coordinated and More Effective Administrative Staff Because of constitutional and legislative restrictions, Kentucky has never had an efficient state administrative organization for public edu- cation. The chief state school officer is selected for political reasons rather than for professional and administrative qualifications; his term of con- tinuous service is limited to four years; and his salary, as well as the salaries of his professional assistants, is restricted by contitutional and legislative enactments. Moreover, financial support for the State De- partment of Education is inadequate. Any one of these conditions is serious enough to limit the effectiveness of a state administrative organiza- tion. In combination they provide an insurmountable barrier to the de- velopment of an efficient educational system. No one would expect a business organization to survive if its management had to be changed every four years and if its organizational machinery were obsolete. Yet we permit the most important business of our state—that of educating our children and youth—to be handicapped by antiquated restrictions which prevent efficient management. Kentucky’s constitution, written more than fifty years ago, provides for the election of our chief state school official by popular vote, prohibits that he succeed himself in office, and limits his salary to $5,000 a year. The state, by legislative act, further limits the 'salary of the super- intendent of public instruction to $4,000. Many local superintendents in Kentucky receive larger salaries. Certainly the man who administers the educational program of 700,000 Kentucky children should receive a salary comparable to that paid any educational executive in the state. The average salary of the forty-eight superintendents is more than $6,000, or fifty per cent more than Kentucky pays its chief state school official. Thus, by law, continuity of service is prohibited, adequate compensa- tion is denied, and selection on the basis of recognized competency is made impossible. Under such restrictions no state superintendent, however competent he may be, can build an efficient state administrative organiza- 56 tion or can project and carry through a long-time program for the im- provement of education in Kentucky. Kentucky has in most instances been fortunate in securing good edu- cational leadership; but short tenure, inadequate financial support, and the low salaries required by law, have inevitably limited the service these leaders could render to the educational program of our state. Under present restrictions divisional heads may not receive more than $3,900 per year. Men and women best qualified to render the specialized services needed in an efficient state department of education are difficult to obtain under such salary and tenure limitations. Professional ardor is dampened by the realization that carefully planned programs may be interrupted by change in administration at the end of a four-year period. Lack of adequate financial support to the State Department of Educa- tion has further handicapped its effectiveness. In 1935 the appropriation for operation of the department (other than vocational education and rehabilitation) was $80,000. Since that time many new duties and re- sponsibilities have been added to the department, such as supervision of attendance records, administration of the equalization funds, and the dis- tribution of free textbooks. To compensate for these new responsibilities the appropriation has been increased only three per cent. The result is that many important functions cannot be performed. There is at present no division of the State Department staffed to give leadership in research and planning, School architecture, library service, physical education and recreation, business education, music, art, or guidance. The divisions which are maintained are understaffed. The first major problem of education in Kentucky is to secure an en- larged state department of education, under the direction of a superin- tendent free from constitutional limitations as to tenure, selection, and salary. This problem can be solved only by an enlightened public. A major goal for education should be a campaign in the immediate future to remove the constitutional and legislative restrictions which hamper the development of a strong State Department of Education. Considera- tion should be given to a plan whereby the Superintendent of Public In- struction would be selected by the State Board of Education, be given con- tinuous tenure and adequate salary, and be charged with the responsibility of reorganizing the State Department of Education in line with current educational thought and best practices. 2. Coordinating the Program of Higher Education Kentucky should work out a plan for coordinating the programs of state-supported institutions of higher education. Institutions of higher education tend inevitably toward expansion of their programs. Alert leadership always sees needs far beyond the services it is rendering. Pres- 57 sure is exerted for increased course offerings, new curriculums, and pro- grams leading to higher degrees. The desire to grow sometimes leads to undesirable competition for students and to duplication of services. Furthermore, institutional expansion without adequate resources leads to ineffective service to the students. The state is interested in obtaining the greatest possible quantity of essential and effective educational service for the money it provides and in distributing this service to the greatest possible number of people. Unless the state can secure coordination of the programs of education in its institutions of higher education, costly duplications will occur and other important services may be neglected or be performed in a mediocre Iſla III.162]". A number of states have in recent years found it advisable to place all of their state-supported institutions of higher education under one ad- ministrative board, and, in some cases, under one executive officer. North Carolina, Oregon, and Georgia are examples of states which now have this type of centralized control. It may be time for Kentucky to at least examine the relative merits of such an organization. Twelve years ago the General Assembly of Kentucky created the Council on Public Higher Education in the hope that this organization would become an over-all governing body which would coordinate and unify the efforts of the institutions of higher education effectively. The Council has never exercised its full powers; each college has been allowed to develop its program according to its own interests, desires, and re- sources. The Committee on Education believes that serious consideration should be given to the creation of a single board of control for higher education or to a revision of the membership, powers, and duties of the Council. 3. Providing Regional Programs in Universities and Colleges There are many important educational services which states with limited revenues and small populations cannot economically provide, such as schools of medicine, architecture, landscape gardening, veterinary science, and specialized services in other areas. Much thought should be given to the provision of regional programs in universities and col- leges to meet these needs. The Conference of Southern Governors is now at work on this problem. Under one plan now being considered, the states would allocate a particular type of service to the institution within the region best equipped to provide such service; the other states would contribute to the financial support of the service. For example, one of the universities of a Southern region would maintain a school of veterinary science which, through contractual arrangements, the students of the other states in the region could attend; students of all states in the region 58 would be on an equal basis. Another state university would provide a different type of service under similar arrangements. Through these cooperative procedures many services now being denied the youth of the 'region would be made available and other services now being inadequately provided would be strengthened. . 4. Larger Units for School Administration Kentucky has too many school districts. The small, independent ad- ministrative units constitute financial handicaps, and interfere with con- solidation of attendance areas. There are now thirty-three complete county units in Kentucky. No doubt, as the county districts develop stronger educational programs, independent units in other counties will merge with the county system. County units cannot materially strengthen their educational programs, however, so long as they are prohibited by law from levying tax rates only half those permitted some city school districts. The 75 cent maacimum taa; limitation for county districts should be removed immediately. In some cases it would be advisable to merge two or more counties into one administrative educational unit. Such a step should be taken only after careful study of the situation. The extent to which educational programs of such units would be strengthened or handicapped through such consolidation is a question which a strong research and planning division of the State Department of Education could aid in determining. 5. Better Educational Opportunities for Rural Children One of the major educational problems of Kentucky is to provide educational opportunities for rural children equal to those for urban children, especially in regard to length of school terms, school plants, instructional materials, library facilities, and teachers’ salaries. Accord- ing to the report of the Superintendent of Public Instruction for the year ending June 30, 1943, there were 29 county districts in Kentucky in which Schools were open fewer than 140 days, and 52 in which schools were open fewer than 150 days. A majority of county districts in Kentucky still maintain only a seven-month term in their rural schools. The typical rural School plant in Kentucky is far from adequate. In general, the worst situations are found in the one- and two-teacher schools, of which there are still approximately 4,000. Practically all of the build- ings are of wood construction, in need of paint inside and out, unattractive in appearance, and lacking in functional design. They have unsuitable Seating equipment, insufficient light, and inadequate heating facilities. Library facilities and supplementary teaching materials are lacking; play- 59 grounds are small and devoid of equipment. There is little to attract children to attend a typical one- or two-teacher school in Kentucky. Despite the fact that the compulsory attendance laws of Kentucky require every child between the ages of seven and sixteen to attend school regularly unless excused for specified reasons, facts released by the State Department of Education reveal that during the present school year twenty-seven per cent of Kentucky children of school age are not en- rolled in the public schools, and that 1,848,002 pupil days were lost by those enrolled in a test period of 48 school days. Anyone familiar with the facilities provided for the education of our rural youth is not sur- prised that twenty-seven per cent of the children stay at home. It is remarkable that seventy-three per cent are enrolled. In 1942–43 the aver- age daily attendance for the state as a whole was only fifty-six per cent of the school census. Many superintendents complain of lack of cooperation from the courts in enforcing the laws. Public opinion is a strong factor in the enforce- ment of any law. The responsibility for creating favorable public opinion for the enforcement of the compulsory attendance laws rests with Ken- tucky's professional and lay leadership. One great reason for unsatisfactory school attendance in Kentucky is the failure of the educational program to meet the needs of the child. The best guarantee of regular attendance is to make the school program so interesting and important to the child that he will want to attend School. Still another reason for unsatisfactory attendance, particularly in high school, is non-availability of schools. It is useless to hope for good School attendance in Kentucky until schools are made available to all children and until the educational offerings can be made to seem worth ſwhile to children and parents. 6. The Problem of an Educational Program Better Adjusted to the De- mands of the Times There is need for a re-evaluation of our educational programs—new ºways of living demand new types of education. Along with the mastery of the fundamental knowledges and skills children should be taught every- day problems of living. Life and education should go hand in hand; learning from books should be supplemented by real life learning situa- tions. More attention should be given to the interdependence of agri- culture, business, labor, and government. Too frequently the formal education of our children and our youth is limited to what can be learned from textbooks. Some textbooks, unfortunately, offer little help in the Solution of children’s life problems Every community is rich in educational opportunities for learning. The bank, the stores, the local hospital, conservation of natural resources, 60 farming practices, home beautification, health, government, and com- munity organizations are only a few of the many resources available to the alert teacher. These resources, although anchored in the local com- munity, reach out to all countries around the world. There is need for continued emphasis on the Social studies, Sciences, mathematics, the language arts, and all of the other subjects that make understanding citizens and give a background for continued study. There is also need for the kind of education that will fit everyone for Some phase of useful work. In Kentucky the formal education of 95 per cent of the people ends at the secondary level. In a democratic Society these people need as much of general education as possible, but they should also have an opportunity to acquire knowledges, habits, and skills that will enable them to perform some kind of work well. Vocational education must be made available to everyone who can profit from it. 7. Making Secondary Education Available to All Children Secondary education must be made available to all children. Thousands of Kentucky’s children today are denied the opportunity of attending high school. While one or more high schools are maintained in every county of the state, unless transportation is provided their services are limited to only a small proportion of the high school population of the county. A high school located at the county seat is not available to a child ten or fifteen miles away unless transportation is furnished. According to a study of United States Census reports, Kentucky ranks at the bottom of the list of 48 states in the percentage of population 25 years or older who have completed four years of high school. Kentucky’s percentage is only 8.4. Arkansas, which ranks even lower than Kentucky on many other points, is above us in the percentage of adults who have completed high School. Alabama, Mississippi, Georgia, and Louisiana, with their large Negro populations, are ahead of Kentucky. During the year 1943, only 27 per cent of all youth from fourteen to seventeen years in the county districts of Kentucky were enrolled in high school, while independent dis- tricts enrolled in high school 63 per cent of these age groups. There are counties in Kentucky which have less than 5 per cent of the school census enrolled in high school. The principal reason for this low enrollment is that high Schools are not available to a large percentage of our youth. The problem of making high schools available to all the children of the State is not an easy One. Kentucky is a state with extremes in wealth and population. In general, the sections which possess the least wealth have the most children. For example, Elliott County, with an assessed Valuation of $372 per pupil has 1,184 children for each 1,000 adults; while Woodford County, with a property assessment of more than $11,000 per 61 pupil, has 657 children for each 1,000 adults. Leslie County, with a $500 assessed valuation per child, has 1,526 children per 1,000 adults, while Fayette County, with a property assessment of $6,400 per child of school age, has only 395 children per 1,000 adult population. So long as local districts must provide a large proportion of the funds to support educa- tion, high school advantages will be denied to children in many counties in Kentucky. The quality of even the elementary schools in many counties will remain poor. 8. Providing Adequate Supervisory Service for All the School Units of the State Kentucky has never had an adequate program of supervision. Most of the teachers of the state receive no supervision other than that given by the principals or superintendents. This is usually of a general nature and is not sufficient to help the teacher overcome her most serious de- ficiencies or to encourage her to develop her major assets in teaching. The need for supervision has always been great. It is now more urgent than ever because of the large number of emergency teachers employed in our schools. Supervisory services, however, should not be considered as an emergency program to be discontinued when better qualified teachers are obtainable. No pre-service educational program, however efficient, can completely equip a prospective teacher to meet all the problems which arise in connection with her teaching duties. Teachers must learn while they work if they are to become really efficient. Supervision should help teachers to learn more quickly and to learn effectively. The value of a good supervisor in the improvement of instruction is inestimable, and yet very few school systems employ supervisors. The need for spe- cial Supervision is particularly great in the one- and two-teacher schools, because such schools have no supervising principals. 9. Providing Vocational Education for All Kentuckians Who Need to Prepare Themselves for the World of Work Most people have to work for a living. Only those who work contribute to the progress of the community, state, or nation. A vocation represents a central purpose in life. Every person has the right to be efficient in Some vocation. The responsibility for providing the type of education which will develop vocational efficiency is an obligation which society 7must accept. Those directing the educational experiences of our youth must give such guidance as will enable them to choose the type of pro- fession or vocation for which they are best suited and from which they will derive the greatest satisfaction. Rapid changes in the occupational needs and opportunities in our country make guidance an essential part of our educational program. 62 Educational institutions must give consideration to terminal courses on both the secondary and the college levels. Not all persons who enter high School or college may be expected to complete the curriculum ordi- marily prescribed for graduation. Our secondary schools and our junior and Senior colleges have an obligation to provide programs of study that will prepare such persons for useful employment. 10. Providing a Program of Adult Education That Will Keep Kentucky Citizens Well-Informed, Alert, and Interested in Local, State, National, and World Problems The school has been slow to recognize its responsibility for adult edu- cation. The idea that the school is for children only is so well entrenched that suggestions for expansion to meet adult interests and needs are often considered an imposition rather than an opportunity. And yet the School is filling only a part of the educational meeds of the people when it confines itself solely to the school-age group. Changes in Social, political, and economic structures are taking place so rapidly that continuous study is necessary if we are to keep informed on problems that vitally affect our lives. Lack of understanding of these problems leads to apathy, or even to the development of anti-social attitudes. Lack of interest in politics is one of the most common characteristics of our citizens; only 56 per cent of the voters of the country cast their ballots for congressional candidates in 1942, and still fewer voted in state and local primaries. If our democracy is to fulfill its possibilities, our citizens must be informed of its processes. They must understand local, state, national, and world problems well enough to vote and to vote intelligently. The development of a program of adult education should include ex- pansion of library services. Only a small percentage of Kentuckians have access to libraries. The rural areas of our state have practically no library Service. Planning for extension of library facilities to the school population as well as to the adult population of Kentucky is a dual responsibility of the public library services and the schools. Public schools should use the facilities of public libraries whenever possible to enrich their services to the children of the community. Public libraries should cooperate with Schools in working out plans for larger services to the adult population of the communities in which the schools are located. There are vast op- portunities for community service through a well-selected and well-ad- ministered School-community library program. Public forums offer another opportunity in adult education that should be extended to many communities. The University of Kentucky for the past two years has sponsored a series of forums in connection with school Systems in the State. The forum offers an opportunity to the citizens 63 of the community to discuss vital issues that affect local, state, national, and international problems. Kentuckians would be better informed if every school system in the state sponsored a forum for the citizens of its community. They are an inexpensive, effective means of adult education. 11. The Problem of Buildings, Equipment, and Supplies Necessary for the Expanded Educational Program As has previously been indicated in the report, Kentucky School plants are not adequate to meet the demands of an expanded educational pro- gram. A great majority are inadequate even for the present limited program. In the report of the Kentucky Education Commission sub- mitted to the Governor in 1933 the following interesting statement ap- pears: “Since this date (1907) schoolhouse planning and construction have been widely discussed and the impor- tance of proper arrangement and construction has been emphasized. Therefore, it would naturally be supposed that most of the buildings would meet modern demands for proper schoolhouses, but such is not the case. The fact is that most of the small rural schools of the state are poorly planned, box-like structures with windows On both sides and a flue in the center. In many instances the School building consists of four bare walls with no provision for pupils’ wraps or built-in shelving or any Other Special features so essential to a desirable school program . . . . The old-fashioned, unjacketed stove placed in the center of the room is still the principal source of heat. The school sites are invariably small. Very often School ground is acquired simply because its char- acter renders it worthless for any other purpose.” During the past twelve years some improvement has been made in the Small rural school buildings of our state. In general, however, the description given in 1933 is still applicable. - Even our better types of buildings have for the most part been con- Structed without thought to service to out-of-school population. Surveys show that school auditoriums, libraries, and gymnasiums are seldom open for public use. If the school is ever to become a community center, a place where adult groups may meet to discuss local, state, and national problems, a place where school and out-of-school people can find recrea- tion, a place where parents may go for information needed in the solution of their problems, space and the necessary equipment must be provided. The problem of supplies and equipment is even more acute than the 64 problem of housing. Only a few of our schools are equipped for the tasks they are now attempting to perform. Extending programs designed to meet the needs of all pupils and of the out-of-school population will require additional supplies and equipment in practically all Schools. The rural schools are the most meagerly equipped. In the typical rural ele- mentary school, particularly the one- and two-teacher schools, there is practically no equipment except desks and seats, a stove, and a galvanized water bucket. State-adopted textbooks too frequently constitute the Only materials of instruction. One of the important problems the state must consider as it plans its postwar program for education is that of providing better housing and equipment for Kentucky’s public elementary and secondary school chil- dren. 12. The Problem of a Properly Qualified Staff In 1940, with an oversupply of teachers with two years or more of college preparation, Kentucky was seriously considering raising the mini- mum standard to three years of college preparation for elementary teachers. It was predicted that by 1946 the minimum standard of prepara- tion could be raised to four years of college for all teachers. Now, low salaries in the teaching profession, the rise in the cost of living, competition for teachers’ services by governmental agencies and private industry, together with inductions of teachers into the Armed Forces, have so depleted the supply of qualified teachers that during the current school year more than 4,500 positions are being filled by teachers who have failed to meet the minimum standard for certification. Many of these emergency teachers are boys and girls just graduated from high school. It is difficult in some counties to secure enough teachers of any kind for the Schools. The low salaries fail to attract even new high school graduates. Sixty per cent of the persons with emergency permits for the 1942–43 school year did not apply for reinstatement of their permits the following year. They could earn several times as much in war work as they could in the schoolroom and at the same time feel that they were contributing directly to the war effort. The median salary for elementary teachers in Kentucky in 1942 was $676 and the median for high school teachers was $1,139. The median Salary for all teachers in the state elementary and high schools combined was $898, or less than $75 per month on a twelve month basis. The average teacher's salary in the United States in 1939-40 was $1,507. The average for Kentucky during the same year was $826. Only Seven states of the Union had lower average teachers’ salaries than Kem- tucky. 65 13. The Problem of Financial Support Adequate for the Educational Needs of the State Kentucky must re-earamine its structure for financing education. The present plan was developed many years ago when the economy of the state was quite different from that at present. When property consisted largely of real estate, the property tax constituted a reasonably equitable source of revenue for school support. The situation is quite different today. The development of large industrial centers has stimulated the flow of wealth and population from rural to urban centers. The trans- formation of our economy from agricultural to industrial has created a large source of intangible wealth unevenly distributed within the state. The result is that some sections of the Commonwealth have adequate re- sources to support good educational programs for their children while other sections have little wealth to tax. A system of school finance should make possible the financing of art adequate basic school program in every locality of the state without placing too great a burden upon the local units. At the same time the localities should have leeway to improve upon the basic programs, supply- ing any additions they desire or for which there is a need. An examination of Kentucky’s program for financing education, in the light of the above principle, reveals that our system of School support falls far short of the above criterion. There are many local units in Kentucky which cannot maintain an adequate basic program under the present plan of support without undue burden. The state now provides about 48 per cent of the total cost of elementary and secondary education. The other 52 per cent is provided by the local School units. During the past year Kentucky increased its common school fund by about 50 per cent. Included in this increase was an equalization fund of $1,500,000 to help raise the standards of education in school districts with low property valuations. Despite this increase in state Support, there are still many school districts in Kentucky which cannot provide acceptable twelve-grade educational programs for all of the chil- dren of their districts. In 1942 there were thirty-eight administrative school units in Ken- tucky in which the assessed valuation per child of school age was less than $1,000. During the same year there were 5,940 teachers in Ken- tucky whose annual salaries were $600 or less. Average expenditure per pupil in average daily attendance in the United States for the year 1940 was $94.03. The average for Kentucky was $48.09. State averages, however, fail to give a true picture of school Support in a state where wide variations exist in wealth and school popula- 66 tion and where a large proportion of school support is derived from local taxation. To make the problem more difficult, the laws of our Commonwealth set the lowest maximum tax rates on the districts where the need for revenue is the greatest. County districts, which usually have less wealth than independent districts, are permitted to levy maximum tax rates of only 75 cents on each $100 of taxable property, while independent districts may levy maximum rates of from $1.00 to $1.50, depending upon the class of city included. County districts, because of the sparsity of their population, must either maintain small, expensive schools or transport their pupils to larger units. The unfair discrimination against county districts in taaying privileges should be removed. The people of Kentucky, if properly informed, would undoubtedly instruct the legislature to eliminate this injustice. There is a growing conviction among those who study Kentucky’s financial situation that the state should support a basic program of edu- cation for every child within its borders. The term basic program is interpreted to mean at least a twelve-grade program of elementary and secondary education, available to every child, with a School term of nine months, an adequately prepared teacher, and a physical environment which meets standards generally recognized as necessary for an efficient system of education. Local units should have Opportunity to provide such service above the minimum as the wealth of the community permits and the people desire. This conviction is based upon the principle that the maintenance of certain minimum educational standards is the concern of all the people within the state. A. How much money is spent on Kentucky education at the present time 2 1. The latest year for which complete data are available in pub- lished form on expenditures by local boards of education for public elementary and secondary education including local, state and federal funds, is the school year 1942-43 which ended on June 30, 1943. The following data for the year 1942-43 are taken from the Report of the Superintendent of Public Instruction, published in December 1943. Purpose of Eacpenditure Total Earpenditure (a) General Control ........................................................ $ 1,200,205.96 (b) Instruction ................................................................ 17,610,742.00 (c) Operation ................................................................. 1,906,352.91 (d) Maintenance ............................................................ 658,117.61 (e) Fixed Charges .................................................... -* * * * * * 406,417.27 Purpose of Earpenditure Total Earpenditure (f) Auxiliary Agencies (primarily transportation and national defense costs).................................... 3,977,724.78 (g) Transfer Tuition to Other Districts (merely an exchange of funds from one district to another) 422,633.58 (h) Capital Outlay ........................................................ 1,343,219.66 (i) Debt Service ............................................................ 4,395,154.11 Total Disbursements for Elementary and Sec- ondary Education .................................................... $31,920,567.88 2. Expenditures by the state for free textbooks and teacher re- tirement, 1942–43. (a) Free Textbooks ........................................................ $ 484,843.00 (b) Teacher Retirement ................................................ 559,673.00 Total …~~~~ $ 1,044,516.00 3. Expenditures by the state for total educational administrative services, 1942–43. (a) Superintendent of Public Instruction.................... $ 59,629.00 (b) Certification ............................................................ 14,798.00 (c) Free Textbooks (administrative expense) ............ 14,797.00 (d) State Board of Education (printing).................. 14,809.00 (e) Vocational Education ............................ (approx.) 44,189.00 (f) Vocational Rehabilitation .................... (approx.) 25,000.00 (g) Teacher Retirement Fund (administrative ex- Pense) --~~~~… 22,164.00 Total … $ 195,386.00 4. Expenditures by the state for special schools, 1942-43. (a) West Kentucky Vocational Training School (Negro) ….......................................... $ 39,417.00 (b) Mayo State Vocational School................................ 34,882.00 (c) Kentucky School for the Blind (1944-45 ap- propriation) ............................................................ 97,100.00 Total .............................. ~ $ 171,399.00 (a) (b) (a) (b) (c) Expenditures by the state for special higher education, 1942-43. Purpose of Earpenditure Total Erpenditure College Tuition for Negroes .................................. $ 6,792.00 War Orphan Scholarship ...................................... 75.00 Total …-------------------------------------------------------- $ 6,867.00 Summary Total Expenditures by Local Boards of Educa- tion for Elementary and Secondary Education $31,920,568.00 Total Expenditures for Free Textbooks and Teacher Retirement ....................................-------- 1,044,516.00 Total Expenditures for State Educational Ad- ministrative Services .......................................... 195,386.00 Total Appropriation for Special Schools............ 171,399.00 Total Appropriation for Special Higher Educa- tion …~~~~~~ 6,867.00 Total …~~~~ $33,338,736 Appropriations by the state for higher education, 1944-45. University of Kentucky Division of Colleges ................................................ $ 1,026,300.00 All other purposes .................................................... 449,400.00 Teachers Colleges Eastern State Teachers College.............................. 280,000.00 Morehead State Teachers College.......................... 234,000.00 Murray State Teachers College.............................. 254,000.00 Western State Teachers College............................ 365,000.00 Kentucky State College for Negroes...................... 150,000.00 Total …~~~~~~~ $ 2,758,700.00 Grand Total Expenditures for Education............ $36,097,436.00 Actual expenditure items have been used except in the case of Vocational education, vocational rehabilitation, the School for the Blind, and institutions of higher learning. For these items state appropria- tions were used because of the difficulty of separating the funds. Although expenditures for 1942-43 have been used because later data were not available, the only significant difference is the increase 69 in appropriations for education at the elementary and secondary level for 1944-45, approximately five million dollars. B. How is that money disbursed ? All educational funds are disbursed through the regular agencies designated by law for the disbursement of such funds. Local boards of education spend the funds for the elementary and secondary schools. The Board of Trustees for the University of Kentucky and the boards of regents for the teachers colleges spend the money appropriated for institutions of higher education. The State Board of Education spends the funds for the special vocational schools, Kentucky State College for Negroes, Kentucky School for the Blind, and the State Department of Education, as well as the special funds appropriated for tuition for war orphans and Negro scholarships. A board of trustees spends the funds appropriated for teacher retirement. C. How is that money raised ? The money for public education is raised by taxation. The state appropriation for all educational purposes for the year ending June 30, 1943 was $15,106,738, or 32.2 per cent of the total state disbursements. Out of a total expenditure of nearly thirty-two million dollars by local boards of education for elementary and secondary education in 1942–43 approximately $11,000,000 was appropriated by the state, $1,500,000 came from the federal government for national defense purposes, $2,- 500,000 was derived from temporary loans, and the remaining $17,000,- 000 was raised by local taxation. D. What is the present inventory of educational facilities? For the present School year, 1944-45, Kentucky employs approxi- mately 17,500 teachers. Of this number more than 4,000 cannot meet the minimum standards for certificates and are employed on an emer- gency basis. There are 1,600 school buses in use in Kentucky. Of this number 751 are owned by local boards of education and 849 are privately owned. These buses transport approximately 126,000 pupils daily. There are at present 5,914 school buildings in Kentucky, of which 3,838 are one-room buildings, 852 are two-room buildings, and 185 are three-room buildings. The remainder range from 4 to 101 rooms. Some of these School buildings are mere shacks and some are modern school buildings which fairly well meet academic standards. According to the United States Office of Education, the value of all public school prop- erty in Kentucky for the school year 1941-42, the latest year for which data are available, was $101 for each child five to seventeen years of 70 age, inclusive. The total value of all property used for elementary and secondary school purposes in Kentucky was approximately $75,000,000. Most of our rural schools are inadequately supplied with libraries and teaching materials. Very few of them are equipped with adequate water supplies, toilet facilities, and storage space. In 1941-42 Ken- tucky’s rank among the states of the Union in this respect was 45th. Only the states of South Carolina, Arkansas, Tennessee, and Alabama ranked lower than Kentucky. E. What would be an ideal inventory? A desirable educational program would provide educational services and facilities for all educable people—children and adults—in the state. Such a program would embrace nursery school and kindergarten Serv- ices, elementary and secondary school programs, institutions of higher education, and a broad, comprehensive program of adult education. Such a program would enable Kentucky’s children to compete on an equal basis with the citizens of other states in all industrial, economic, political, social, and cultural activities. An ideal inventory of elementary and secondary education in a Ken- tucky community would consist of : a safe, sanitary, and serviceable school building with sufficient playground and recreational facilities; adequate equipment, library facilities, and supplies; safe and convenient transportation facilities for all who do not live within walking distance of school; school lunch services; well-educated and efficient teachers; and a comprehensive curriculum which meets the needs of every per- son in the community which the school can serve. An ideal inventory of facilities and services for higher education in Kentucky would con- sist of adequate facilities to provide for the varying needs, interests, and services which the state’s institutions of higher education are designed to provide. And unless Kentucky provides a program of adult education which will meet the needs of the out-of-school population, its program of education will be incomplete. In 1942-43 the per capita current expenditures for education in Kentucky based on average daily attendance was $58.52. During the same School year the per capita expenditures in the entire continental United States were $104.85. Kentucky ranked 42nd among the states in this item. New York ranked first, with a per capita expenditure for education of $178.56. In Kentucky and the seven bordering states per capita expenditures for education in 1942-43 were as follows: Kentucky ...................... ---------------------------- $ 58.52 Missouri .................................................... 94.29 Illinois …................................ 138.98 Indiana … 91.17 West Virginia .......................................... 77.61 Virginia .................................................... 64.37 Tennessee .................................................. 54.81 In 1942–43 the average salary per member of the instructional staff in the schools of Kentucky was $1,014. During the same year the average salary in the continental United States was $1,599. Kentucky Yanked 41st in this item. New York ranked first with an average salary of $2,697. In Kentucky and the seven bordering states the average salary for 1942-43 was as follows: Ohio ~~~~ ---------- $1,889 Illinois ….................….....…... 1,817 Indiana ................ ~ 1,686 West Virginia ............................................ 1,279 Missouri ...................................................... 1,253 Virginia ...................................................... 1,151 Kentucky .................................................... 1,014 Tennessee .................................................... 963 In 1942-43 the average length of the school term was only 159.3 days in Kentucky. The average for the continental United States was 175.5 days. Kentucky ranked 48th on this item. Illinois ranked first with 186.6 days. The average length of the school term in Kentucky and the seven bordering states for the school year as follows: Illinois .............................................. 186.6 days Virginia ............................................ 180.0 days Ohio ~… 179.9 days Missouri ............................................ 176.2 days West Virginia .................................. 170.9 days Indiana .............................................. 170.0 days Tennessee ........................................ 163.5 days Kentucky .......................................... 159.3 days In 1941-42, the latest year for which comparable data are available, each child enrolled in School in Kentucky attended school an average of Only 128.8 days. The average for the continental United States was 149.6 days. Kentucky ranked 47th in this respect. Michigan ranked first with an average of 169.9 days. The average number of days of 72 school attended by each child enrolled in school in 1942-43 in Kentucky and the bordering states follows: Ohio ------------------------------------------------- 166.4 days Illinois --------------------------------------------- 162.5 days Virginia -------------------------------------------- 155.9 days West Virginia .................................. 153.7 days Indiana ---------------------------------------------- 145.1 days Missouri -------------------------------------------- 141.6 days Tennessee ------------------------------------------ 137.1 days Kentucky -------------------------------------------- 128.8 days F. What is an estimated cost of this ideal program 2 Probably the best measure of an ideal program is found in the state providing the greatest advantages for its children. This state is New York. In 1942–43 the average current expenditures per child in aver- age daily attendance in New York schools amounted to $178.56. If Kentucky were to spend a comparable amount for education, an annual outlay of $89,280,000 would be required. In 1941–42 the average value of school property per child five to seventeen years of age in New York amounted to $511. If Kentucky were to attempt to provide school facilities comparable to those in New York, an immediate outlay for new school buildings and equip- ment of $300,967,228 would be required. A more reasonable goal for Kentucky at present would be to pro- vide educational opportunities equal to the average for the nation. Assuming that Kentucky had 80 per cent of her school population in average daily attendance, this would mean an average daily at- tendance of 560,000 children (80 per cent of 700,000 census). It is estimated that 60,000 pupils are either enrolled in private schools or have completed their high school education before reaching eighteen years of age. This would leave 500,000 school children in average daily attendance in the public schools of Kentucky. Applying the average current expenditure for education in the United States in 1942–43, $104.85 for each child in average daily at- tendance, we find that the current cost of such a program in Kentucky would amount to $52,425,000. Actually the total expenditure for ele- mentary and secondary education in Kentucky in the school year 1942– 43 was $31,920,568. THUS, $20,504,432 MORE IS NEEDED AN- NUALLY THAN IS NOW BEING EXPENDED TO BRING THE STATE UP TO THE NATIONAL AVERAGE. Even then it should be remembered that half of the states of the Union are at present pro- viding better programs. 73 The situation is much the same in attempting to set up an inventory of school property in Kentucky equal to the average in the nation. In 1941–42 the total value of school property in Kentucky was approxi- mately $75,000,000, or $101 for each child five to seventeen years of age. The per capita value of school property in the continental United States for the same year was $267. Multiplying the number of chil- dren five to seventeen years of age in Kentucky, 735,748, by the value of school property for each such child in the United States, $267, we find that the total investment of Kentucky in school property would have to be increased to $196,444,716 if Kentucky’s children were to have physical facilities comparable to those enjoyed by the average in the United States. Subtracting the present value of school property in Kentucky from the cost of the average facilities provided in the United States, we find the additional cost would amount to $121,444,716. It has been estimated by school officials that a schoolhouse construc- tion program of approximately $25,000,000 will be urgently needed in Kentucky immediately after the war, because of the postponement of maintenance and new construction during the war emergency. To summarize, an inventory of educational facilities and services for the children of Kentucky at the elementary and secondary level only, equal to the average now provided in the nation would amount to : $ 52,425,000 annually for current expenses, and $196,444,716 for school property. This would mean an increase of $20,504,432 in annual expenditure for education at these levels and an additional investment of $121,444,716 in new school property. Another approach to estimating the cost of an educational pro- gram in Kentucky equal to that provided by the average state in the Union would be to use the cost per classroom unit. This device was used by John K. Norton in a study published by the American Council On Education. According to the data submitted in Norton’s study, the current expenditure per classroom unit in the continental United States was approximately $1,600. This did not include transportation Or capital outlay. Kentucky would need an additional $16,242,700 to bring all of her Schools up to the national median, if money were dis- tributed only to the School districts which are below the median for the nation. Such a method of distribution, however, is at present impossible under the provisions of our state constitution. Using this approach to the problem, the total additional revenue needed annually to bring Kentucky up to the national average for expenditures for elementary and secondary schools would be as follows: 74 Current expenses exclusive of transportation ------------------------------ $16,242,700 Estimated costs of transportation.... 4,000,000 Debt service and capital outlay........ 6,800,000 TOTAL...............................----------. $27,042,700 Kentucky has never adequately supported its institutions of higher education. Many of our institutions of higher learning are handi- capped with inadequate buildings and equipment, and faculty salaries are low. The appropriation to the University of Kentucky, to the Ken- tucky State College for Negroes, and to each of the Teachers Colleges should be increased to 50 per cent. In addition, the University of Kentucky would need a minimum appropriation of $500,000 annually for a period of years for the purpose of erecting new buildings and modernizing old buildings which have been neglected for many years. The amounts needed would be as follows: University of Kentucky.................................. $2,713,550 Kentucky State College for Negroes............ 300,000 Eastern State Teachers College.................... 420,000 Morehead State Teachers College.................. 351,000 Murray State Teachers College.................... 381,000 Western State Teachers College.................... 547,500 TOTAL...................................................... $4,713,050 If the school districts of the state were to undertake a school build- ing program to bring the physical facilities provided the school chil- dren of Kentucky up to the average for the nation, they would have to borrow approximately $120,000,000. Assuming that bonds were floated for that amount bearing an average interest rate of three per cent and maturing in 25 years, the average annual debt service to liquidate the entire amount in that period of time would amount to approxi- mately $6,800,000. This annual debt service added to the additional annual current expense of a reasonably satisfactory school program, $20,504,432, gives a total of $27,304,432 of additional funds needed annually to raise public elementary and secondary education in Ken- tucky to the average of the nation. Combining with this amount the additional financial needs for higher education, a grand total increase in revenue for public education of $27,000,000 is indicated.* Thus, the recommended total annual revenue for all education in the state may be estimated at $68,000,000. *Assumes and includes continuance of $5,000,000 increase in appropriations for elementary and secondary education made in 1944-45 (see page 19). 75 14. Needed Research Facilities for Education This report on public education in Kentucky makes a strong plea for strengthening the state's educational administrative machinery by placing greater weight upon research. We cannot keep our perspective clear and give purpose to our actions unless we redefine and restate our problems in the light of continuous, intelligent, and vigorous research. The State Department of Education should have the funds with which to maintain such a research program. It is the function of research to assemble the facts which will guide the superintendent and the State Board of Educa- tion, and other school officials concerned, in defining the problems and prosecuting a vigorous program of education. The 1946 Legislature should be asked to appropriate a sufficient fund to maintain adequate research facilities in the State Department of Edu- cation, and the highest type of leadership should be employed to make research function in the interest of redirecting the educational program to meet the needs of the times. We must not wait for the Legislature. The need is now—this year. Since there are no public funds available for this purpose, private foun- dations should be asked to come to the rescue. No single business enter- prise should be asked to support this cause. On the other hand, a foun- dation should be set up in the state for the purpose of assisting in raising the level of education in Kentucky from its present lowly state. Business in general should be asked to support such a foundation under the control of a board. From this foundation’s fund, aid should be granted to the Superintendent of Public Instruction for the employment of a trained research director and staff. During the life of the Postwar Advisory Planning Commission this person, working under the direction of the State Department of Education, should assist in providing additional facts upon which the Commission can base its recommendations. It should be understood that the function of such research agent is to produce the factual basis for a program but that the projection of the program is an administrative function of the state. J 15. More Adequate Support for Public Higher Education in Kentucky Kentucky must be concerned not only with the program of education in elementary and secondary schools, but also with the program of public higher education. The state supports four state teachers’ colleges, the University of Kentucky, and Kentucky State College for Negroes. Upon these, and the other institutions of higher learning, rests the responsibility of providing teachers for the elementary and secondary Schools of the state, a responsibility greatly increased in the past few years because of the war. 76 Kentucky normally needs about 1,700 new teachers each year. Now the state needs 6,000 additional qualified teachers to staff its schools under the minimum requirements as prescribed by the State Board of Education. The task of preparing these teachers will require more faculty members, more buildings and equipment, and more laboratory and library facilities. The problems facing the state today increase the need for strong, alert educational leadership. If the state is to give its chil- dren the kind of teachers and the number of teachers they need, it must Supply adequate support for the colleges which educate teachers. Kentucky has great need of leadership in all other fields—agriculture, government, commerce, industry—as well as education. We need Spe- cialists in the use of resources, who can show us how to conserve and restore and develop industry to the best advantage of the state. We need intelligent and unselfish leaders in every phase of government. The University has the responsibility for providing leaders in these fields, and in others requiring technical preparation. The whole economy of the state can be improved through adequate support of the University’s program for the development of social and economic leadership. The University is also responsible for programs of research and ex- perimentation which contribute to the social and economic welfare of Our people. Work done in such research units as the Bureau of School Service, the Bureau of Business Research, and the Bureau of Government Research, help to improve Kentucky and Kentuckians. Such special func- tions of the University deserve adequate support from the state. Though our need for higher education is so great, we have never adequately financed the colleges and the University. All of the states Surrounding us are more generous in supporting their universities than We are. In any discussion of higher education in Kentucky, it is impossible to overlook the contribution of the non-state-supported institutions. Ken- tucky has today twenty-two private and three municipal institutions, a majority of which were established to foster liberal education. They should receive the greatest possible support from their constituencies, so that they may continue their excellent services to Kentucky. 16. Special Problems of Negro Education in Kentucky While each item in this report is as applicable to the education of the colored child as it is to that of the white child, and while both races are included in the problems herein discussed, there are some recognized problems in Negro education which deserve special mention. These prob- lems arise from the uneven geographical distribution of the Negro popula- tion and the maintenance of separate schools for white and Negro races. The Sparsity of Negro population in some areas of Kentucky makes it 77 difficult to provide high schools within the reach of Negro pupils. The Negro population in some counties is so scattered that the maintenance of elementary schools is expensive because of the Small enrollments. In addition to these general problems, administrative practices in some systems discriminate against the Negro. Inequalities exist in hous- ing facilities and equipment, in training facilities for Negro teachers, and in some instances in salaries paid for instructional services. Discrimina- tory practices against a minority race are professionally unsound and socially undesirable. They should be discontinued, as opposed to the democratic principles which form the basis of free public education. There is much evidence of improvement of race relationships in Ken- tucky. Educational statesmanship recognizes that good citizenship is equally as important for the Negro as for the white man, and the proc- esses of developing good citizenship are in no sense different for the two races. The fact that separate schools are maintained for the white and the Negro races does not imply that there should be differences or inequalities on any educational level. On the contrary, equality of Op- portunity should be provided for every Kentucky child, white or colored. 17. Liberal Education Essential The cultural level of our people in Kentucky should be raised. This should be a mission of all schools—public and private, elementary, Sec- ondary, college and university. Our people need more general education. The liberal arts are not luxuries; they are disciplines that free the minds of men. The future of Kentucky depends on brains—cultivated and dis- ciplined minds. The undeveloped mind is like any other undeveloped natural resource. It may possess potential capacity, but like the rushing mountain stream that is never harnassed, it does not develop power and energy to serve mankind. We need in our state a multitude of liberally educated citizens. The fine arts have been neglected in our Kentucky schools. We have arrived at a time in our civilization when we can afford to place more emphasis on art, music and drama, as well as on mathematics and science. The quality of our culture—whether it is dominated by the material or the Spiritual—depends to a degree on our interest in the fine arts. At this time we need, not less of vocational training, but more of liberal education. The late Wendell Willkie in his great address on liberal education at Duke University said: “So important are the liberal arts for our future civilization that I feel that education in them should be as much a part of our war planning as the more obvi- ously needed technical training . . . the preservation of 78 Our cultural heritage is not Superfluous in a modern civilization; is not a luxury. That it is in fact what gives meaning to that civilization . . . The vast Ameri- can educational system has set men free—free not alone to serve, but free also to lead. Education is the mother of leadership.” The problems in Kentucky, though serious, are problems that can be Solved by the concerted efforts of all people interested in the welfare of their children. The people of Kentucky believe in education, and they will, when properly informed, vote for measures to improve public edu- cation. The responsibility for informing the people about educational affairs rests primarily upon the enlightened citizens of the state. COMMITTEE ON EDUCATION DR. H. L. DONOVAN, Chairman, Lexington DR. R. B. ATWOOD, Frankfort H. P. FOWLEY, Louisville DR. FRANCIS S. HUTCHINS, Berea DR. L. E. MEECE, Lexington ROLAND ROBERTS, Nicholasville W. T. ROWLAND, Lexington DR. W. S. TAYLOR, Lexington DR. W. H. VAUGHAN, Morehead CARL B. WACHS, Lexington JOHN FRED WILLIAMS, Frankfort 79 Quality and Quantity of Labor are Prime Factors in Kentucky's Industrial Development REPORT OF THE COMMITTEE ON INDUSTRIAL RELATIONS Committee Report No. 4 Interim Report Submitted on February 18, 1945 Final Report Submitted on April 10, 1945 Final Report Accepted on May 9, 1945 Commissioners present on May 9, 1945: ATWOOD, R. B. OFFUTT, W. P. BLAZER, P. G. RAMSEY, J. E. CAIN, H. W. STONE, J. C. EVANS, E. J. WACHS, C. B. GRAHAM, THOMAS WATKINS, J. S. GRUVER, R. S. WEBB, FREEMAN HARRISON, W. B. WEYLER, J. R. HILL, J. B. WILLKIE, H. F. INDUSTRIAL RELATIONS Your Committee on Industrial Relations and Labor, after considera- tion of the Commission’s deliberations on its report of April 10 and in the light of national expressions of accord between labor and manage- ment, submits the following condensed statement for approval. Support- ing evidence and surveys from which recommendations were derived are deleted in the interest of clarity and brevity. STATEMENT OF PURPOSE Your Committee has selected as the basis of its approach to state problems of industrial relations the labor-management charter formu- lated by the Congress of Industrial Organization, the American Federa- tion of Labor, and the United States Chamber of Commerce on March 28, 1945. While we have avoided reference to foreign trade and inter- national relations (set forth in this charter) as being outside the Sphere of our state Commission, we have held to the other five points on domestic affairs because we wish to express a vote of confidence in the charter and because the principles are broad enough to encompass even the detailed and local problems of industrial relations within the Commonwealth of Kentucky. The charter points under consideration are listed below for reference. We have placed a broad construction on these over-simplified statements in the interest of retaining the integrity of the (domestic) charter and in the absence of more specific definitions by the signatories to it. a. Encouragement of productive efficiency and technological advance- ment with a view to steadily improving standards of living. b. Recognition of the right to organize and bargain collectively with- out hindrances. c. Cooperation in protection of the individual against involuntary unemployment and the hazards of old age and physical impair- ments. d. Respect for the rights of private property. Recognition of management’s right to manage. I. Encouragement of Productive Efficiency and Technological Advance- ment with a View to Steadily Improving Standards of Living The elements of productive efficiency concerned with industrial rela- tions are employment practices, wages and incentives, working conditions, and the quality and quantity of labor. Industrial relations play the same part in the human elements of industry that production control plays in the physical elements. 82 Thus employment practices should be conducted on a correspond- ing business and ethical plane as procurement policies. Discrim- inatory measures in employment should be guarded against by clear- cut legislative control and just social legislation. On this basis your Committee recommends that the State Department of In- dustrial Relations undertake a thorough study of employment practices and bring to the Governor by January 1946 such recom- mendations as are deemed desirable. Sub-minimum wages are prevalent in Kentucky in normal times as reflected in the wage orders under the Kentucky Minimum Wage Law which specifies twenty cents an hour. Practically all states have a higher minimum wage. The federal minimum is forty cents at present. As one of the most important steps towards the rehabilitation of the state your Committee recommends the Substitution of a forty cent per hour minimum for the twenty cent per hour minimum under the present state law. The effects of working conditions on industrial efficiency are more often recognized than appreciated. Lip service to sanitation, nutri- tion, lighting and ventilation, and employee services is not sufficient. It is recommended that a state-wide survey of manufacturing and Service plants be undertaken jointly by the Departments of Health and Industrial Relations in order that an objective analysis of working conditions may be made available for corrective and pre- ventive recommendations. The quality and quantity of the labor supply are prime factors in industrial development and high production. As to gross quantity of labor, there is clearly a sufficiency. Other reports have indicated the high incidence of seasonal labor, the volume of returning Veterans, and the potential increase of population based on birth rate. Other sources indicate decreases in population due to emigra- tion. It is this latter factor that affects the average quality of labor. The loss of trained and educated people to other states is high; the gain from other states is extremely low; the replace- ment from within the state is sub-standard due to an inadequate educational system. Your Committee urges the following solution: 1. Organized labor to set higher standards of membership based On educational acquirement and on demonstrated skills con- sistent with modern materials and methods. 2. Management to give attention to making available paid train- ing time on a regular weekly basis for participants in an in- Service educational program and wherever practicable to pro- 83 vide all additional training aids and services for its specific needs. - 3. Educators, through school and public library facilities and through adult education programs conducted in public and academic buildings, to provide what talents and training aids may be required by industry. By no more effective means than education can the quality of labor be permanently and progressively improved. E. II. With regard to the encouragement of technical advancement, no legislation or state control through the Industrial Relations De- partment should be permitted which will hinder manufacturers in developing, acquiring, and maintaining technical progress. Spe- cifically, no labor-management controversy should be under the jurisdiction of arbitrators which has to do with the installation and operation of new process and machinery. On the other hand, management should undertake to balance in advance the char- acteristics of employment dislocation and technological advance- ment. Closer ties within management need to be developed be- tween research, engineering, and industrial relations in order that the equities of humans may be preserved against the economic forces of material progress. Finally, Kentucky employers should seek to hire the professional graduates of its universities much more generally than is now the case. Labor and management both have an important stake in the group of men who have been trained at their joint expense, by taxation, to fit them for industrial leadership. Recognition of the Right to Organize and Bargain Collectively. With- out Hindrances The securing of this fundamental and hard-won right to labor can best be safeguarded by the state support of an effective Department of Industrial Relations. A. Your Committee recommends strengthening the State Industrial Relations Department both financially and administratively. The statutes provide adequate authority for the Commissioner to dis- charge his responsibilities under the chapter with two eaceptions and provided that appropriations for the department are made available in proportion to the needs of the state. One exception is the lack of provision for a research staff in the department. The work of your Committee in seeking to obtain factual data reflects this need in a striking manner; although the statute provides for the collection and dissemination of data, there exists no staff to correlate, evaluate, and issue reports for reference 84 III. A. and guidance. As a result, your Committee is not satisfied with its analysis of the industrial relations and labor conditions in the state and is moved to recommend the provisions of effective re- search facilities and personnel adequately financed for the Depart- ment of Industrial Relations. It is believed that an additional appropriation of forty thousand dollars a year will suffice to estab- lish the department on an effective basis. The scope of its activi- ties shall include farm labor. The second exception relates to uncertainties and inadequacies in the law regarding the rule of the Department of Industrial Rela- tions in dealing with labor disputes. This law, KRS 336.130-.140- .150, if not now sufficient, should be so amended as to promptly and justly conclude all disputes. Cooperation in Protection of the Individual Against Involuntary Un- employment and the Hazards of Old Age and Physical Impairments The primary protection of the individual against involuntary unem- ployment is the development of the individual into a versatile and well equipped employee. This is a protection or defense requiring the utmost of cooperation between management, labor, and the individual as indicated in Section I of this report. The foregoing statement describes a strong preventive measure as protection against involuntary unemployment. As a corrective or ameliorative measure, unemployment compensation has been widely adopted. However, there is dispute among state leaders in labor and industry as to the effectiveness of the existing system. Employers hold that far too many cases are settled on behalf of employees who are not entitled to draw on the pool fund and that the intricate job classification system of the United States Em- ployment service permits individuals to draw benefits under con- ditions which promote self-imposed idleness instead of supressing it. Labor, on the other hand, objects to the over-vigorous protests by management of the majority of cases brought before the Un- employment Compensation Commission and feels that an abolition of the merit system would remove this incentive to protest. Further- more, labor protests that the compensation is inadequate with re- Spect to quantity and duration. Your Committee submits that insufficient data have been pre- sented to support these various theses and that the study is in the province of the State Department of Industrial Relations. The chapter, KRS 342, appears to provide all necessary machinery to administer, improve, and expand this field of industrial relations. However, the Committee makes one pressing recommendation: that 85 |- ºw!） pwww.you,I pyo， wo woņonu, sur ſuņa yaoºaeſ ssolo10 w04 100mpºſ 904， º Sºw I 104，48 mpw I w ſy an extensive use be made of the state and local advisory commit- tees (KRS 346.170) composed of representatives of management, labor, and government in order to bring these problems into focus before a balanced representation. It is felt that the problems are not well understood, or only from interested viewpoints, and that they change drastically with economic events. Frequent meetings of the advisory councils will bring unification of means as well as ends and provide the Unemployment Compensation Commission itself with the best advisory service. Until and unless this is done, your Committee does not feel that recommendations as to ad- ministration, rates, reciprocal agreements, merit ratings, etc., will be generally acceptable to all parties concerned. The machinery exists; it need only be set in motion. C. A third protection against involuntary unemployment is provided by old age benefits, insurance programs, and retirement plans. The first is under federal jurisdiction; the last two are the con- cern of individual employers and/or collective bargaining groups. None of these is felt to be within the jurisdiction of this report. However, we believe that statistical information concerning these Safeguards should be collected and distributed by the Department of Industrial Relations. D. The fourth cause of involuntary unemployment arises from In- dustrial injuries. The state provides elective coverage for em- ployers and employees under its Workmen’s Compensation Laws. Experience indicates existing laws have not satisfactorily met the purposes of their creation. The State Industrial Relations depart- ment should, after thorough research, recommend any desirable amendments. IV. Respect for the Rights of Private Property This subject not only signifies labor’s repudiation of sit-down strikes involving the seizure and destruction of property, but also implies an understanding of the place of capital, of management, of labor, and of the individual in the industrial-economic-legal framework. Labor thus commits itself to recognize the legal property rights of capital in the physical plant and to uphold the maintenance of that property by active support of safety programs, sanitation features, fire protection, and the prosecution of vandalism and pilferage. Management, under the human law of property rights, must use its facilities as constructive aids to labor and not withhold them for bargain- ing purposes. - We do not construe this mutual relationship as a state problem re- Quiring legislation or administration, but we do recognize it as a funda– 87 mental industrial relations problem and as such we seek wide and specific endorsement of this charter point by capital, labor, and management. Many of our state activities arise from the imbalance of these rights, and in the interest of curtailing unnecessary controls, your Committee feels it is not out of order in bringing this subject matter into its report. W. Recognition of Management’s Right to Manage Recent national court interpretations have accentuated the need for retrenchment by labor in its demands for participation in management. Without doubt, this problem will speedily be brought to the state and local levels with the result that our Commissioner of Industrial Relations will be called upon for interpretation and ruling. It will be helpful to him, as well as a support to the national charter which your Committee Seeks to implement, if Kentucky labor and management will agree that the former must not seek to preempt the sphere of authority delegated to the latter by capital. The right of management to manage is a corollary of the right of labor to organize and bargain collectively. Despite any court decision, these rights are clear and unequivocal. Your Committee, being represented by labor and management, records itself as an adherent of these rights and places this statement before the Governor and the Legislature for their guidance in affairs pertinent to this thesis. Finally, your Committee adds its voice to those of other Committees calling for a judicious industrialization of the state. Just as the factors of water supply, natural resources, transportation, and markets are studied to determine industrial locations, so, too, the supply of labor must be taken into account if we are to avoid undue migrations, stabilize property values, and build citizenship. Your Committee brings to the attention of this Commission and subsequent proponents of industrial development, the necessity of studying existing population characteristics as described by the Kentucky Agricultural Experiment Station, with an eye to choosing plant locations where a balance of physical and human facilities can be maintained or evolved. Unless this study is made in each case, the prob- lems of state industrial relations are likely to become more acute by reason of dislocations rather than improved by economic rehabilitation. COMMITTEE ON INDUSTRIAL RELATIONS O. K. PEMBERTON, Chairman, Louisville MISS ETHEL B. DUPONT, Louisville FRED FOSS, Louisville REV. W. P. OFFUTT, Louisville EDWARD H. WEYLER, Louisville J. R. WEYLER, Louisville ROBERT WOERNER, Louisville 88 -Photo courtesy of University of Kentucky Research Laboratory at The University of Kentucky Kentucky Needs More Engineering Eaſperiment Stations Similar to This Aeronautical fiºſomųwayſ ‘fiqumoO vºodº II wiſ ºw!!！!!u odsuom1.ſ flºwwºw 0 \!!?!...I, REPORT OF THE COMMITTEE ON INDUSTRIAL PLANTS AND OPPORTUNITIES Committee Report No. 5 Interim Report Submitted on April 10, 1945 Final Report Submitted on May 8, 1945 Final Report Accepted on May 8, 1945 Commissioners present on May 8, 1945: ATWOOD, R. B. BLAZER, P. G. BROWNING, J. N. CAIN, H. W. DONOVAN, H. L. EVANS, E. J. GRAHAM, THOMAS GRUVER, R. S. HARRISON, W. B. HILL, J. B. MARR, J. W. OFFUTT. W. P. O’REAR, J. B. RAMSEY, J. E. STOKES, E. E. STONE, J. C. TOMLINSON, G. E. WACHS, C. B. WAT KINS, J. S. WEBB, FREEMAN WEYLER, J. R. WILLKIE, H. F. COMMITTEE ON INDUSTRIAL PLANTS AND OPPORTUNITIES SUMMARY COMMITTEE The factual material assembled herewith covering Kentucky’s in- dustrial development and opportunities, cites the need for a permanent organization, dedicated to the industrial development of the state. Likewise investigations of the Commission have developed the neces- sity of increased industrialization to aid agriculture, education, to in- crease incomes and public revenue, to support public welfare and to stabilize employment. All available information on Kentucky's resources, industries, materi- als, markets and labor, indicated herein, backed by the enlarged research and publicity resources recommended in this report of the University of Kentucky and various state departments, should be used to promote Ken- tucky industrially. Its chief value in the hands of the alert user is the ability to furnish prompt, intelligent and adequate answers to questions. These are the questions usually posed by competent industrial operators, and they require answers based upon cold fact as opposed to local pride. In the past there have been numerous efforts to organize a Kentucky State Chamber of Commerce. Such an organization would seek to pro- mote the State's economic interests at the state level, and among its most significant functions would be that of industrial development. It is a logical instrument through which to utilize the factual data at hand. It would have the responsibility of constantly developing that data and keeping it up to date. Beginning as far back as thirty years, there have been several at- tempts to form a State Chamber, or at least a working association of local Chambers. In each instance the attempt has met with failure. The reasons are numerous, and some are distasteful. Among them are sec- tional jealousies, local indifference, poverty and weakness of local cham- bers, intrusions of controversial subjects, political suspicions, geographic barriers, lack of strong, disinterested leadership, and general apathy. In these respects, the prospects of a State Chamber are no better today than they have been in the past. This comment is not directed to any indi- vidual or group. All of us have been guilty on one or more of the counts. At the Commission's meeting of April 10th reference was made to the Governor's Cabinet (Section 11.060 K.R.S.) and the part it might play in the state's industrial development, as well as in proposals for various planning bodies which other reports on other phases of state develop- ment have recommended. The Governor's Cabinet is composed of “the heads of the constitutional and statutory administration departments enumerated in K.R.S. 12.020” 92 and includes some 27 state authorities running all the way from the Governor to the 'Board of Election Commissioners. Undoubtedly the Cabinet is charged with general planning authority. To that extent it may be said to be an accredited State Planning Commission. Under the embracive phrase “affecting the general health and welfare” it can be said to cover planning for the State’s industrial future. However, the make-up of the Cabinet is a departure from the usual concept of state planning commissions. Such bodies engage in study and research and come up with recommendations to department heads, fre- quently in the form of proposed legislation. Planning Commissions initiate. Department heads implement. Our Cabinet is composed en- tirely of department and agency heads. Presumably they are busy with their normal functions. It is doubtful whether they are in position to do a sustained job of planning, except as they may be called in from time to time for consultation by a Planning Commission constituted along the more tested lines. It is worth while here to repeat that planning bodies do the research, the study and the initiating. Other agencies—both public and private— translate the proposals, if acceptable, into continuous action. It is some- thing like the diagnostician, who locates the trouble, and the family physician who carries on the treatment. For these reasons, it does not appear that a State Department of Development could function as an arm of the Governor’s Cabinet, or any other planning body. This is not intended as a thesis for planning, but is a concept of what planning is. Some examples of state planning bodies follow. Indiana The Indiana Economic Council was created by an Act of the 1943 General Assembly. It is charged with the long range as well as the immediate postwar planning for the State. The subjects covered are natural resources, and problems of agriculture, industry, population and allied matters. It is required to make “a thorough study and investiga- tion” of these, and then “to formulate plans and make recommendations.” It will be noted that the Council’s report on industry “Hoosiers at Work” was turned over to the Indiana State Chamber of Commerce for publication, distribution and use. The council consists of 22 members, six of whom are ex-officio mem- bers and heads of State Departments, including the Governor; four mem- bers represent both houses and both parties of the General Assembly and 93 the remaining twelve are appointed at large, representing agriculture, business, labor and local government, as well as the two State Universities. Tennessee The State Planning Commission was created by the General Assembly in 1935. It is charged with the preparation of a general state plan for the physical development of the state and with studying and reporting to the Governor and General Assembly on any subject relating to the plan- ning of the economic, social, governmental, cultural or welfare condition and problems of the people of the state. Very recently the Commission undertook an industrial development program. In their own language, the Planning Commission entered this field because “There is neither a State nor a private organization covering the State,” doing such a job. Their program embraces (a) an inventory of industrial resources (b) an analysis of these resources and (c) the recommendation of a definite and consistent program to implement the work of existing agencies. The Commission consists of nine members, the Governor and eight private citizens. North Carolina The State Planning Board was created by the State Legislature in 1937. Its function is “to serve as an advisory body and make specific Tecommendations to the Governor, Legislature and other State Depart- ments on matters pertaining to the long range development and conserva- tion of the human and natural resources of North Carolina.” Again, the emphasis is on basic research and recommendation. A statement of policy reads “Insofar as possible, the planning projects which the Planning Board may advocate should be executed by the de- partments, divisions, agencies, and institutions most directly concerned. The extent to which the Planning Board can stimulate and encourage and facilitate this planning within other agencies rather than to attempt them itself should constitute the final measure of its value to the State.” The Board consists of nine members, none of them public officials although the State University is represented. INASMUCH as it does not appear feasible that the Governor’s Cabinet could function effectively as a State Department of Development, and INASMUCH as the need for an independent State Chamber of Commerce is reflected in our failure to meet requests by out-of-state interests for information relative to suitable locations and facilities, and 94 INASMUCH as coordination between existing local chambers of commerce, civic groups, and local govern- ments is lacking, and INASMUCH as all have agreed that a ready ac- ceptance and support of a state chamber is widely de- sired, Your committee recommends the immediate estab- lishment of a Kentucky Chamber of Commerce, spon- Sored by local support and to be in operation by Janu- ary 1, 1946. Failing this effort, as a hopeful route to the eventual formation of a strong State Chamber, your committee has considered the establishment, by appropriate legislative action, of a State Department of Industrial Development. We are aware of the objections that will be raised to the creation of another public office. We feel the same reluctance. We can only weigh the potentialities for good inherent in such a Department against the complete lack of anything resembling a co-ordinated state effort to improve ourselves industrially. In the event of failure to secure a functioning state chamber of com- merce by January 1, 1946, the state's industrial development can be served by the repeal and re-enactment of the section of the statute (KRS 146.060) which creates a Division of Publicity and by providing that this division be superseded by a Division of Industrial Development, the duties of which will include: 1. Collection, maintenance and dissemination of in- dustrial data affecting every county in Rentucky (as- Suring that appropriate information shall be placed in the hands of industrial and business executives who probably can profit from a Kentucky location); 2. Creation of an interest in, and paving the way for, a self-supporting state chamber of commerce, which would eventually take over the functions and expense of the Division of Industrial Development. In the event a state sponsored promotional agency is established, its director will of necessity have to engage in negotiations with individual concerns for Kentucky locations. It must be recognized that many political hazards may thus be presented and that a state government agency charged with such duties might well embroil itself in sectional politics. This can largely be avoided if the director will confine himself 95 to informing prospective manufacturers of all the communities which have facilities that reasonably meet the particular requirements of the manufacturers. We are conscious that shifts of political administrations are likely to interrupt the continuity of the Division’s work especially by personnel changes. Surely, in a job so vital and in one requiring peculiar talent, some means can be found to assure continuity if the work is well done. In the light of the foregoing, if an effective, privately sponsored state chamber of commerce is not in operation by January 1, 1946, we recom- mend for your earnest consideration the authorization of a State Division of Industrial Development in accordance with the general purpose and plan already outlined. COMMITTEE ON INDUSTRIAL PLANTS AND OPPORTUNITIES SUB-COMMITTEE No. 1. SURVEY EXISTING PLANTS ROBERT MONTGOMERY, CHAIRMAN Your committee recognized that, in the time allotted and under war conditions, it would be impossible to conduct an adequate census or survey of the industrial plants now operating in Kentucky. Even if it could have been made, such a census would have been a useless duplication of effort, as the basic information, in authoritative form, already exists. We refer to the following official report: Sixteenth (1940) Decennial Census of Manufacturers, U. S. Department of Commerce, Bureau of the Census (pp. 351-371). This report, most comprehensive in nature, gives a detailed picture of Ken- tucky industry, county by county. It is further broken down into industry groups, into male and female employment, into values of product, into values added by manufacture, etc. Summarized, it shows the following: Total industrial establishments.................... 1,640 Value of products (1939) ----------.................. $481,029,771 Value added by manufacturer (1939) ........ $187,400,426 Wage Earners (1939) ----------------.................. 62,784 Wages (1939) ................................................ $ 61,902,354 Many other detailed and informative breakdowns are furnished. The report shows, interestingly enough, that Kentucky was one of few states to better her 1929 industrial output. Industrially, the state ranked twenty-fifth in the union. Undoubtedly the war has brought sharp dislocations to some of the statistics presented in the census, but the underlying plant is still there and, plus those wartime installations that can be made use of, it furnishes a working picture of what Kentucky has available for postwar industry. 96 A description of most of the new wartime plants in Kentucky can be found in “Advance Listing of Industrial Plants and Plant Sites to be Disposed of by Defense Plant Corporation,” a recent publication of Surplus War Property Division of Defense Plant Corporation, Washing- ton 25, D. C. (pp. 40–42). Both of these public documents are incorporated into and made a part of this report by reference. (Because of war distortions and safety restrictions, the Bureau of the Census has omitted its 1943 census of manufacturers.) In 1928, the Louisville Gas and Electric Company employed a New York firm to make an extensive electro-chemical survey of the Louisville district and a copy of this 300-page report is on file at the Louisville In- dustrial Foundation. For the most part, it applies to Kentucky as a whole, showing the availability in Kentucky and in adjoining states of certain raw materials which are of interest to certain electro-chemical industries, viz.: coal, coke, oil, high calcium limestone, fluorspar and Quartz, etc. These and similar statistics are always of interest, but their true value lies in translating them into action. Attention is, therefore, called to the report of Sub-Committee No. 6, in which a continuing, state-wide agency for the prime purpose of industrial development is suggested. In conclusion, may we offer this comment on our postwar industrial prospects. It is our observation that many people are in a state of panic or fear that we are facing an economic collapse after the war. There is no justification for it except as the state of mind may produce just such a calamity. Through the efforts of the Committee for Economic Development, and other like organizations, the manufacturers of Ken- tucky and of the nation have long ago made their plans for postwar activity. Almost without exception these plans call for smartly expanded production and employment. It is true that in pre-war years industry furnished only 24% of the nation’s employment, but it is equally true that a high rate of industrial production is coincident with a high rate of employment in agriculture, and in the distributive and service groups. To the extent that it contributes to the whole, industry—and industry in Kentucky—is enthusiastically ready and waiting and able to do its full part. 97 COMMITTEE ON INDUSTRIAL PLANTS AND OPPORTUNITIES SUB-COMMITTEE No. 2, CONVERSION OF WAR PLANTS ROBERT S. GRUVER, CHAIRMAN The conversion of war plants to fit into the post-war economy is a part of the problem of post-war planning that is difficult to consider as a specific subject, without taking into consideration its inter-relation with the many other phases of the transition from war to peace. The various phases of the problem have been given much consideration in the press, in commercial publications, and also in all types of industrial planning and governmental commissions. The purpose here is to outline the prob- lem with general reference to the national importance and with specific reference to the phases of that problem as they affect Kentucky industry and Kentucky’s future. The primary objective in the conversion of war plants is to get the industrial machine Operating at top speed within the shortest possible Space of time after such war plants or their production facilities are no longer needed to produce war goods. In reaching this objective, the need for a plan of action is not con- fined to the Federal Government alone. The success of the transition will depend largely upon the willingness of the private economic groups of the Nation—business, agriculture, and labor—to set aside their desire for temporary advantage to the greater advantage of restoring a healthy and durable prosperity. In approaching the problem of reconversion of war plants it seems necessary and logical to consider the problem first, from a national stand- point, and the resultant effects of government planning in relation to our local problems. A great amount of time and effort in research has been Spent on this subject by various agencies and commissions. Summarizing the results and findings of this research, three main elements stand out as essential and fundamental before any detailed local plan can be ac- complished. These elements are: Rapid termination of war contracts. A plan for the disposal of surplus goods. A plan for the disposition of war plants and equipment. It is not the purpose, or within the scope of this report to cover national policy, but it seems advisable that the influence of individuals and groups within Our Commonwealth should be used to see that national policy is formulated that will result in the satisfactory liquidation of war production. 98 Through the Contract Settlement Act of 1944, machinery is provided for settlement of contracts on what appears to be a reasonably adequate and Satisfactory basis. It should be emphasized, however, that the utmost Speed is necessary in resolving these problems in an orderly and efficient manner, So that reconversion to peace-time production can be made as Quickly as possible. In considering the problem on a statewide basis, plants producing war materials may be divided into two main categories: 1. Those which prewar were established in the produc- tion of civilian goods. 2. Those which have been built or converted since the war, purely for the production of specialized war materials. For those plants which prewar were established in the production of civilian goods, the problems of conversion are, for the most part, being Solved or will be solved as a regular phase of industrial management. Contacts with representative Kentucky firms have shown that clearly defined plans have been formulated that will solve their individual and Specific conversion problems. It is the thought of the Committee that Such individual planning is the only realistic approach to the problem, and that detailed recommendation for individual companies would be out of order in this report. With regard to the plants built purely for the production of war materials, Table A, appended to this report, summarized from the “Ad- vance Listing by the Surplus War Property Division of the Defense Plant Corporation,” indicates the relative importance of this problem in Kentucky. A further sub-division of this listing, to separate from it those structures or machines built on private property or loaned to private companies, and which are reasonably expected to be absorbed in the process of conversion, reduces still further the magnitude of the prob- lem. The proportion of the Kentucky warbuilt plants located in Jeffer- son County is such that the plans for their disposal can well be indicative of the action being taken in the State as a whole. It has been found that local organizations in Louisville have very actively and capably considered the problems involved and have developed plans for the required action. The fact that the Louisville organizations have included, in their surveys, considerations of the adjoining counties in Indiana is important. It is recommended that this type of local approach should be the pattern for Other communities in the State in solving their problems of reconversion. Conversion within any particular locality is important not only to those people within that section, but also to all types of Commercial en- deavors within the surrounding districts. The importance of this point 99 in Kentucky lies in the fact that Kentucky employs a large proportion of its people in the primary occupations, such as agriculture and mining Outlets for the goods or products of these primary occupations can be provided by a well-balanced distribution of industries. In connection with this particular point, while the conversion of plants within the confines of Kentucky is the major topic of this report, it should be noted that the Kentucky conversion is not the sole issue, inasmuch as commerce is both nationwide and worldwide. Of prime importance to Kentucky is the continuation and expansion of industries in the adjoining States, particularly those along the borders of the State itself. Kentucky’s Interest in industries along its borders is not only with the materials and products that can be supplied to these firms, but also in the people from Kentucky that may be employed by them or that may benefit through the provision of services to their employees. It is not to be implied that the problem of conversion can be solved by legislative action or by executive orders. It is a problem that must be handled through individual initiative, and, as such, a large amount of stress must be placed on the approach to a solution through the local communities and counties. The State's responsibility in the Solution is that of providing the environment within which healthful and progressive industrialization can thrive. It must be recognized that the conversion of war plants is not an isolated problem but merely one phase of our total economic and social picture. The related programs concerning legislation, transportation, finance and banking, with particular emphasis on private risk capital, taxes, education, industrial relations, agriculture, national resources, pub- lic welfare, public relations, and utilities and service, all have an essential bearing on the solving of this one part of our problem. It is not thought that all these parts can be fitted into their proper place immediately, but it is important that the long range programs consider their final inter- relation. However, it is important to realize that conversion for the most part has definite time limits. It has been pointed out a great many times that speed will be vital in solving the problems of the transition of industry. Summary 1. The background for the reconversion of war plants must be set by national policies regarding— a. Termination of war contracts. b. A plan for the disposal of surplus goods. c. A plan for the disposition of war plants and equipment. 100 The primary objective should be to get the industrial machine operating at top speed in the shortest possible time after such war plants are no longer needed to produce war goods. The influence of individuals and groups within the Commonwealth should be used to see that proper national policies are formulated to bring speedy and efficient transition and reconversion. For those plants which prewar were established in the production of civilian goods, the problem of reconversion should be an indi- vidual problem to be solved by the management of each industry. For those plants built purely for the production of specialized war materials since the war, it is recommended that a local or sectional approach to the problem should be followed similar to that adopted by Louisville. Reconversion cannot be solved by legislation or executive orders. Individual initiative should be stressed as the key to the problem of reconversion. Kentucky should provide an environment in which healthful and progressive industrialization can thrive. This involves a realistic and practical approach to the related programs and plans in regard to taxation, transportation, industrial relations, education, agricul- ture, legislation, and other related subjects. 101 Table A KENTUCKY INDUSTRIAL PLANTS AND PLANT SITES TO BE DISPOSED OF BY Defense Plant Corporation* COmp ny Sq. Ft. Floo?" A red LOC (!tion, American Rolling Mill Co................................. 10,600 Ashland Ashland Oil & Rfg. Co....................................... 91,900 Catlettsburg Republic Steel Corp........................................... 46,300 Elkhorn National Carbon Corp......................................... 2,100 Louisville National Carbon Corp......................................... 5,700 Louisville Reynolds Metals Co............................................. 53,300 Louisville Reynolds Metals Co............................................. 170,000 Louisville Reynolds Metals Co............................................. 248,000 Louisville Natl. Syn. Rubber Corp..................................... 119,800 Louisville Mengel Company ................................................ 249,900 Louisville E. I. du Pont de Nem. Co................................... 301,100 Louisville Carbide & Carbon Chem................................... 313,800 Louisville B. F. Goodrich Co............................................... 391,000 Louisville Curtiss-Wright Corp. ........................................ 1,130,600 Louisville Corod Minerals Corp......................................... 10,100 Marion Heckett Corp. ...................................................... 700 Newport Andrews Steel Def. Co................................ -- - - - - - - 267,200 Newport Commercial Cred. Corp..................................... 27,500 Winchester Summary LOC(ttiOn Listings % of Total Area No. of Co.'s Sq. Ft. Floor Area Louisville ............ 11 2,985,300 86.79 8 All Others .......... 7 454,300 13.21 7 Total .................... 18 3,439,600 100.00 15 * Advance Listing by Surplus War Property Division of Defense Plant Corp. MATERIALS AND MARKETS Prepared By Natural Resources Committee (Part 1A) Lyle R. Dawson, Head of Chemistry Department, University of Ken- tucky. Arthur C. McFarlan, Head of the Department of Geology, University of Kentucky. 102 J. V. B. Wells, Engineer, United States Geological Survey, Water Re- Sources Branch. Agriculture Resources and Markets Committee (Part 1B and II) Dana G. Card, Assistant Professor in Agricultural Economics; As– sistant in Markets, Experiment Station, University of Kentucky. Marshall D. Ketchum, Associate Professor of Economics, University of Kentucky. James W. Martin, Professor of Economics; Director, Bureau of Busi- ness Research, University of Kentucky. Edgar Z. Palmer, Professor of Economics, University of Kentucky. H. Bruce Price, Professor of Agricultural Economics, Head of the De- partment of Markets and Rural Finance, University of Kentucky. M. R. Sullivan, Associate Professor of Economics, University of Ken- tucky. Daniel V. Terrell, Professor of Civil Engineering, Head of the Depart- ment of Civil Engineering, Assistant Dean of the College of Engineer- ing, University of Kentucky. Edward Wiest, Professor of Economics; Dean of the College of Com- merce, University of Kentucky. 103 RECOMMENDATIONS: A PROPOSED LONG-RANGE PROGRAM Examinations of the possibilities of Kentucky’s economic future under- score the need for sustained investigation. The most important under- taking for the Postwar Advisory Planning Commission of Kentucky in this connection, therefore, is to suggest means for the prosecution of a long-range program (a) of investigation and (b) of the dissemination of acts. To make possible a sensible consideration of implementing a continuous program, the nature of the problem should be closely examined. A. Research Program As to investigations essential to an industrial development program there are three primary stages: 1. Basic scientific research It is a problem of physics, chemistry, biology, and geology to ascer- tain the basic nature of our physical resources. For example, a chemist breaks down coal by-products and discovers the properties of each of several useful things which can be fabricated from the Original coal. One item thus discovered is nylon. Before this discovery, there could have been no point in an investigation regarding the appropriate kind of plant for turning nylon into stockings or for marketing such stockings. 2. Economical method of production After a basic discovery, the problem still remains of finding an eco- nomical method of producing the possible product. This may involve not Only designing processes and plant for producing the item discovered but also working out techniques and machinery for converting the product into practical form. For example, after discovery of nylon, it was es- sential for du Pont Company to design procedures and plants for pro- ducing it. It was also necessary to have the textile engineer prepare or adapt machinery for the fabrication of the finished directly usable textile. 3. Business management After a product has been discovered and economical means of fabri- cating it into an ultimately useful item have been worked out, there is still the problem of business planning and control needed to place the useful commodity on the market. This involves both analysis of funda- mental economic factors bearing on the exploitation of the product and business Organization and management issues which must be met in pro- duction and in placing the goods in the hands of users. Included in the case of manufacturing are methods and means of financing both fabri- cation and marketing; factory management as such; handling personnel problems; designing technical accounting and statistical control plans; 104 marketing, including not only market analysis but also purchasing, ad- vertising, and salesmanship activities; designing and operating credit and collection policies; and performing other business functions. Many of the tasks incident to each of these three kinds of investiga- tion work must be done by each individual business for itself; many of them can be and are done publicly in the interest of encouraging the spread of greater prosperity. Study falling in each area can be ignored in particular cases. For example, the basic research for many sorts of manufacturing has already been done, so that this phase is complete be- fore an industrial location issue arises. By the same token, the engineer- ing processes essential in a particular manufacturing project may have been completed. Likewise, the economic and business management needs may for the moment have been met. For two reasons, however, these possibilities do not eliminate the need for continued work by the scientist, the engineer, the economist, or the business analyst. In the first place, there is always the possibility of discovering an improved product, a better method of production, a more effective adaptation to economic conditions, or a superior method of business management (including a new market possibility). Either or all of these will greatly enhance profits, increase wages, or otherwise contribute to greater prosperity. In the second place, there are always alternative production possibilities which ought to be subjected to a continuous process of analysis. Some of these will involve new products; some, new methods; others, new markets or other new business control possibilities. In Kentucky a state agency in which the laboratories, libraries, and professional manpower for such an understanding in behalf of the com- monwealth can be found already exists in the University of Kentucky. The University is an institution for all the people of the state. It is recommended, therefore, that the Commonwealth make financial pro- vision for an industrial research program at the University which will be designed to implement the interest of the Commonwealth in State-wide development looking toward the increased prosperity of the people, a broader tax base for the public, and a consequent lower tax rate for the taxpayer than would otherwise be necessary to produce the same amount of money. If definite provision is made for the prosecution of such an under- taking at the University, the established administrative machinery can easily meet the additional demands without any added expenditures for Overhead. Although general administration, libraries, laboratories, and technical staff already exist, money is required for meeting direct costs of any added investigations. However, it would be desirable that an advisory committee mainly of industrialists (but perhaps partly of state and local officials) be constituted to assist the research agency in design- 105 ing its investigation program, in adapting it to the developing needs of the Commonwelath, and in various other matters. The advisory com- mittee could be expressly provided by statute, or perhaps preferably the University could be authorized to expend appropriations for that purpose as well as for necessary operating expenses and specialized equipment. B. State Publicity The second aspect of a comprehensive program of exploiting Ken- tucky’s economic opportunities includes making available to prospective clients in and out of the state the findings of the investigations which have been suggested. In this matter, too, the best approach seems to be obvious. The Division of Publicity in the State Department of Con- servation has performed this same function to the extent authorized by the General Assembly for a number of years. If the legislature authorizes an enlarged program, then the function of disseminating information regarding newly discovered (as well as previously known) opportunities could be entrusted to the same agency in cooperation, if desired, with a State Chamber of Commerce. There obviously should be, as there has previously been, close co- operation between the research and the publicity agencies. Both would need to cooperate closely with the State Chamber of Commerce if one is organized. C. Suggested Lines of Activity Problems presented for long-range investigation, without which organized promotion work may prove largely abortive, include issues concerned with mineral resources, agricultural and forest resources, and industrial markets. Those concerned with agricultural and forest re- sources are being investigated at the University of Kentucky Agricultural Experiment Station. Sample lines of activity are suggested for the others. 1. Mineral resources The problem of the development of mineral resources is a complex one involving geology, industrial chemistry, certain branches of engineer- ing, and marketing. It is a matter of finding the raw materials, finding new uses for old materials, uses for old materials hitherto unused, and improving methods of recovery and utilization. a. Coal, oil and gas, clay, and fluorspar constitute the major mineral resource items and the fields of research that will pay the largest dividends to the state. Members of the University staff are work- ing on some of these problems in a limited way, but further financial help is needed. Other materials of less abundance and value, but still important, include rock asphalt; limestone with 106 its many uses, including cement, rock wool, and material used in certain chemical industries; and sand and building stone. Oil Shale is a reserve resource for the future when petroleum sup- plies from the usual source are no longer adequate. In addition there is a long list of rocks and minerals of limited value or Quantity which are unlikely to be an important item in our eco- nomic development. Mineral occurrences in the world are Very COmmon, even SOme Of the more valuable ones, but occurrences of economic impor- tance in quantity and quality are rare. The important thing is to distinguish the economically significant. Detailed county geo- logical reports are the most needed thing for an understanding of what we have and what we do not have. University geologists have in progress two such pieces of field work, dealing mainly With petroleum and coal. Fertile fields of chemical research in- Volving coal and petroleum products are cited in the body of the memorandum. Similar experimentation and developmental work might Serve to widen the industrial horizon of other materials, Such as asphalt rock, clay, sand, limestone, and fluorite, which are abundant within the state. Especially helpful to the mineral industry, engineering, state agri- cultural work, forestry, and work on highways, water resources, flood control, water power and many other fields of endeavor would be the completion of the topographic base map of the state. At the present time sheets covering about 70 per cent of the state have been issued. Of this area about 20 per cent is covered by early, small scale, large contour interval maps. These are in- adequate and need to be resurveyed. This work is done by the United States Geological Survey in cooperation with the State Geological Surveys on a 50–50 cost basis. The standard map area is 15 minutes of longitude (about 14 miles) x 15 minutes of latitude (about 17.5 miles), and covers about 245 square miles. Mapping by plane has replaced the slower work by ground crew. These maps, giving all geographic features of the area including elevations, relief and land forms, are issued at ten cents each. It is suggested that the state make use of its Geological Division of the State Department of Mines and Minerals by giving it financial support to carry on its work. The mineral operators depend on the findings of this Division. Funds were drastically cut in 1932 and have never been restored to their former level. It is also suggested that the state undertake more cooperative work with the Water Resources Division of the United States Geo- 107 logical Survey. This organization has just finished a valuable piece of work on the ground water situation at Louisville. The underground waters were being depleted too rapidly by industrial demands and it was necessary to know just what the water re- sources were, where they occurred most abundantly, and how rapidly the city could afford to draw on them. Marketing raw materials and manufactured goods The commonwealth should promote research to find out why in- dustries have developed in the Midwest and elsewhere in prefer- ence to Kentucky. The result might well indicate how new in- dustries or branch plants of old concerns could be attracted to Kentucky and thereby increase the average incomes of Kentucky people. The state could well afford to support study of the production and market opportunities available for commercial feed and fertilizer plants which could serve Kentucky farmers and enlarge the agri- cultural income of the Commonwealth. Kentucky ought to investigate the possibilities of plants for process- ing dairy products looking toward the manufacture of cheese, condensed milk, and dehydrated milk. Such a study should look toward finding appropriate sources of raw material, suitable sites which could be secured economically, and also available markets for the manufactured products. It would be wise to analyze the opportunities for processing forest products looking toward finished goods for which Kentucky woods are adapted. Wood products manufacture already constitute an important industrial activity of the state, but relatively few plants have sought to exploit Kentucky timber for the manufacture of relatively high quality products. Careful investigation would undoubtedly yield challenging bases for local development in the woodworking industry. It would be particularly worthwhile in this state to analyze the market disposition of Kentucky coal in terms of both “channels of distribution” and industrial or other uses. Such study might well yield a definite basis for plant location in Kentucky. Public investigation of the markets for other industrial products One by one should provide a basis for judging the relative at- tractiveness of different lines of industrial production and might well show that certain Kentucky raw materials provide bases for Substantial and profitable local industrial development. 108 I. NATURAL RESOURCES A. MINERALS Though primarily an agricultural state the raw mineral products mined constitute a considerable item in the state's economy. Varying from year to year the total value ranges between $100,000,000 and $130,- 000,000 of which coal constitutes about 3/1, but the annual value of this One resource has been known to exceed $150,000,000. The total for all raw mineral products is commonly 2/5-1/2 that of agricultural products. There is an orderliness to the rock makeup of the earth’s crust and the mineral resources present in that region partake of that orderliness and the search for mineral deposits is based on the working out of the facts of that orderliness. Thus the nature of the mineral wealth of this State is determined primarily by the sedimentary nature of the rocks. Intrusive igneous activity has been limited so that resulting mineral veins are restricted in extent. The important fluorspar veins in Crittenden, Livingston, and Caldwell Counties are of this nature. Kentucky has her share of commercial minerals and rocks; has more than some states and less than others. Coal, petroleum, and natural gas are outstanding. Fluorspar, clay, and rock asphalt are important. Ilime- stone is abundant and has many uses. Sandstone and sand are of some importance. Mineral waters were at one time a resource of real value but are less so now. In addition, there is a long list of minerals and rocks of limited value or quantity. The occurrence of mineral bodies, even of the more valuable minerals, is common. But their occurrence in economic quantity is rare. Oil shale is a reserve resource awaiting the need for development. In addition surface and underground waters are an im- portant resource and the latter is becoming increasingly important in industry. The development of these resources is an item in the development and industrialization of the state. 1. Coal Coal is the Outstanding mineral resource and annual production has reached a value of $160,000,000. Maximum tonnage was reached in 1927 with more than 70,000,000 tons, but prices were well below their peak. War demands have again brought production back up toward the earlier peak. Kentucky is fourth among coal producing states and is surpassed Only by Pennsylvania and West Virginia in the Appalachian field and Illi- nois in the Eastern Interior field. From 1925 to date production of bituminous coal has been somewhat more than 10% that of the United States. 109 Within the state there are two great coal fields; one on the eastern flank of the Cincinnati Arch, and one on the Western flank. As elsewhere in the Eastern United States, it is where the rocks of the earth's crust were warped downward that coal-bearing strata have been preserved from erosion to constitute the great coal fields of today. Of an original estimated tonnage of 123,327,000,0001, the eastern field had about 55% and the western field 45' . . To date about .5% of this available coal has been mined and in the Middlesboro Basin, which is one of the most pro- ductive areas, less than 2%. At peak production the output is only .06% annually. This means a long future for the industry. It must be borne in mind, though, that it is the higher grades and thicker seams that have been and are now being most actively exploited. Coals of the eastern field are the better grade as well as more abundant and in 1940 yielded an average price per ton f.o.b. the mine of $1.96 as compared with $1.39 in the western field, and an average from the state of $1.85. The coals of eastern Kentucky are used for industrial, domestic, and metallurgical purposes, as railroad fuel, in by-product coking, in the manufacture of gas, etc. Coals of great purity from several seams in eastern Kentucky have been employed largely for gas manufacture, for coke making, and in metallurgy where low amounts of ash, sulfur, and phosphorus are determining factors. These coals when blended with low-volatile coal produce coke in by-product ovens that has not been excelled for any purpose by any coal mined in this country. About half the coal produced in Western Kentucky during 1941 was consumed as railroad fuel, and the balance was used largely for industrial and domestic purposes. About three-fourths of the coal mined in Kentucky in recent years is from the eastern field, which includes 33 counties, but most of it is from Harlan, Pike, Floyd, Perry, Letcher and Bell Counties, listed in Order of production. These are the southeastern counties with their much thicker succession of coal-bearing strata and greater number of seams. Not only are the seams more numerous, but they are thicker and their coal is generally of better quality than that in the northeastern border counties. The coals are high-volatile, low in sulfur and ash content, and relative high in heating value. The average BTU content in the southeastern counties is 13,000–14,500, but decreases to 12,000 along the western border of the field. Cannel coal is fairly wide-spread, but its mining is usually a part of Some larger bituminous operation. Better known cannel seams are those mined at Cannel City in Morgan County; the Hunnelwell 1 All coals 14” or thicker included. 110 cannel (Number 4) of Carter and Greenup Counties; the Abbott Creek cannel of Floyd County (Elkhorn Number 1) and the Chenoa seam in Bell County. The eastern field, is, in general, rugged country, especially along its western margin (least productive) and the Southeastern (most produc- tive) side where relief is at a maximum. It is the rugged landscape that delayed development for years. Here the flay-lying coal seams outcrop One above the other from valley-bottom to hill-top. In some fields four and five of them are important. The usual thickness of the more im- portant seams is from three to five feet. Western Kentucky has its more important production along the southern part of the coal basin in Hopkins and Muhlenberg Counties. Next in order are the seams in Webster, Union and Ohio Counties, and smaller quantities come from a half-dozen other counties. In contrast 'to the eastern field, most of the coal comes from one seam, the No. 9 (Springfield of Illinois). Second in importance is the No. 11 seam (Herrin of Illinois), which is followed by the Bell, Empire-Mannington, No. 6, 7, 12, and 14. Number 9 is known to underlie 25,000 square miles in Ken- tucky, Indiana and Illinois, and is probably the most persistent commercial coal in the eastern United States. It has a usual thickness of 4% to 5 feet. Number 11, while thicker, is not so uniformly present. The Dawson Springs-Empire seam is important; it rivals those of the eastern field in quality. Coals in Western Kentucky have about 12,000 BTU, and are thus about equal in heating value to those from the western border of the eastern field. They are used commonly for steam power and in homes. The cannel coal in Breckinridge and Hancock Counties was at One time used for the distillation of oil. Mining began earlier in this field than in Eastern Kentucky, because of the less rugged landscape and availability of the Ohio River for trans- portation. The flatter topography is responsible also for the more gen- erally used shaft and strip mining. a. Comments As a major resource with a long future, coal research is a grade A project with an outlook of large dividends. There is the geological ex- ploratory work, mining methods, problems of utilization, including by- products, and marketing. New uses developed by the industrial chemist are many and more efficient utilization by the engineer are enlarging an already important resource. The University of Kentucky is now carry- ing on geological exploratory work around Hyden, and coal processing research in its laboratories. 111 b. Coal and the Chemical Industry That portion of the chemical industry which is concerned with materi- als derived from heating coal in the absence of air is termed the coal tar chemical industry. This particular part of the industry had its beginning in the United States during the first world war. Since that time its growth into an expended integrated form has proceeded without inter- ruption, and its continued rapid development after the present war may reasonably be expected. Inasmuch as the State of Kentucky has relatively large quantities of coal, it is obvious that there might be produced large amounts of coal tar by-products which are used in preparing dyes, plastics, and other mate- rials of like nature. The three most important primary chemical materials derived from coal tar are benzene, toluene, and naphthalene. For a considerable time after the first world war, naphthalene was used chiefly for mothballs and for the manufacture of dyes. More re- cently, there has been developed a process for producing a new substance from the crude naphthalene. This substance, called phthalic anhydride, serves as the raw material from which many new products have recently been made. There are several types of plastic materials, Some of which can be made from phthalic anhydride. In addition, it serves as a start- ing point for many and varied kinds of dyes and drugs in commercial Quantities of substantial importance. In 1940, 58,000,000 lbs. of phthalic anhydride was used, and during the present emergency the expansion in its use has been rapid. Smoke- less powder and Some kinds of insecticides are among the materials now made from this substance. Estimates of the 1944 production of phthalic anhydride in the United States are of the order of 130,000,000 to 140,000,000 lbs. This would require in the neighborhood of 160,000,000 lbs. of crude napthalene, from which the anhydride is made. Other uses of naphthalene should require about 100,000,000 lbs. As a result of heating coal in the absence of air, creosote oil, and tar acids are produced, in addition to naphthalene, benzene, and toluene. The amount of naphthalene derived from any operation depends on the type of coal and the duration of the heating period. These factors are controlled by requirements of the steel industry, which uses the coke that is left after the coal tar has been driven off. Thus, the amount of naphthalene made available is determined to some extent by the market which the distillers may have for creosote oil, tar acids, and the other products. The development of uses for these substances would obviously be desirable. 112 The only suitable substitute for naphthalene at the present time is a Substance called o-xylene. It is produced from petroleum in the process known as “cracking,” in which gasoline is obtained from heavier oils. Phthalic anhydride can also be made from o-xylene. The petroleum of the state represents a plentiful source of this material Another of the substances mentioned above as resulting from the distillation of coal is benzene. In normal times this is used as a solvent and for the production of miscellaneous chemical products. During the present war, it has been in increased demand, due to the fact that from it may be made substances which can be turned into explosives. In addition, it has found use in processes for making synthetic rubber and nylon. The third material, toluene, which is obtained by distilling coal, is at present in great demand for making TNT. Although used in peace time to some extent as a solvent, there is a fertile field of research in the development of other uses for this Substance. 2. Petroleum and Natural Gas Production of petroleum on a large scale began in 1915 and in the years that followed large fields were discovered including the Irvine-Big Sinking, the fields of the Paint Creek uplife in Johnson, Lawrence and Magoffin Counties, the Bowling Green field, the Owensboro field and the shale gas field centering in Floyd County. Discoveries in Henderson, Union and Webster Counties constitute the principal finds of the industry in the last few years. The peak of production was reached in 1919, with more than nine million barrels, then worth more than thirty-two million dollars. In 1939, however, production had dropped to five and one-half million barrels, and at lower prices, its value to about eight million dollars. Stimulated by war demands, but without the incentive of a better price, there has been an upturn. The year 1943 showed a little better than seven and three-quarter millions of barrels, and 1944 production is approaching the 1919 peak. It has been mainly a western Kentucky contribution insofar as discoveries are concerned. A considerable part of it is a matter of improved methods of recovery. Kentucky was thirteenth among the eighteen oil-producing states in 1940, and fourth among the eastern states. Compared to the large pro- ducers of the mid-continent and California, its annual production is about one eighty-fifth that of Texas, one-fiftieth that of California, and one- thirtieth that of Oklahoma. In quality, however, Kentucky oil is superior. The estimated reserves in pools known to exist in 1940 was 44 million barrels. This indicates a short life of steadily diminishing production unless Supplemented by active exploration and new discoveries. The life 113 of many leases is being materially lengthened by improved secondary recovery methods, and this practice is becoming more widely used. The probabilities of future discoveries are the basis for some optimism. The deeper parts of the basins both to the east and the west of the Cin- cinnati Arch—and particularly the lower rock levels—are far from ex- plored. The history of production in other such basins is favorable, and these areas in Kentucky still hold promise. On the basis of published studies of results of rather thorough drilling in representative producing states presenting a great variety of geological conditions, it has been shown that from 1 to 2% of the acreage of reasonably favorable sedi- mentary basins have yielded commercial oil. Accepting this as perhaps a reasonable basis and regarding the Bluegrass as not particularly favor- able,” only about one-third of the acreage that will ultimately produce in Kentucky has to date been discovered. The basis for this statement is not too reliable but the conclusion may be regarded as a reasonable guess. -º- ºr’. "--> -º- '-' --, *. - - - *-* M.A. Natural gas production has been steadily on the increase reaching 59,000 M in 1940. From 97% to 98% of this is from the eastern part Of the state and the bulk of this is shale gas from Floyd and adjoining Counties. Western Kentucky should show important developments in this direction. Kentucky is third among eastern states in production from Commercial gas wells, but fourth when that from oil wells is included. The national and world situation in regard to reserves has been the subject of much discussion and many opinions have been pessimistic. As far as world production is concerned there is a long future of ample oil, though mainly foreign, and recently there has been a somewhat more optimistic note on the national situation except for the Severe drain by war demands. Progressive increase in estimated reserves made from time to time have been due not only to discoveries, which have been relatively fewer, but also to better recovery methods and more efficient utilization. While earlier estimates were based on a recovery of 25% to 35% of the Oil in the “sand,” later estimates are on the basis of 40% to 60%. Geological exploration has become more and more difficult as the more obvious structures and the fields in the shallower beds have been found, leaving the more difficult geological situations and deeper beds to explore. Natural gas is commonly present in quantity in most oil fields and many of the products made from petroleum can also be made from the gas. The availability of natural gas thus very materially increases the “oil reserve” in terms of industrial products. Ultimately, of course, reserves will run low, though how far in the future this will be, cannot be predicted. When the time comes, attention 2. This is Orthodoa; conservation opinion but not final judgement. 114 will focus on oil shale, lignite and coal for distillation, as a substitute SOUII*Ce. There is little lignite in the state, but there is much coal and a prac- tically inexhaustible supply of oil shale. By distillation these shales yield about one-half barrel of oil per ton of rock. The black shale under the Several names of Ohio, New Albany and Chattanooga, outcrops widely in the Knobs bordering the Bluegrass, in the Cumberland River region of A llen, Monroe, Cumberland and Clinton Counties, and along the front of Pine Mountain in southeastern Kentucky. It is also found in all bordering States and much of the Appalachians. The quantity is very large both in area of outcrop and in available thickness. As a source rock it is less highly regarded, however, than the even more abundant and richer shales and the lignites of several western states. a. Comments This is again a grade A field for research. The geology of exploration has become far more technical and difficult, and few branches of geology are not applied to this work. The University is carrying on work in this field and has contributed substantially to the knowledge of the subject in Ken- tucky. The State Geological Survey is active but hampered by limited funds. They maintain a secondary laboratory which has done much to further this type of work. Industrial chemists have found many new products including plastics, liquefied petroleum gas and synthetic rubber. More will be found. b. Petroleum and the chemical industry Petroleum may be thought of as a veritable storehouse of potential or— ganic chemicals. Recently a great deal of attention has been directed toward the development of uses for liquid petroleum gas, which is that portion that distills off first when crude petroleum is heated. In 1944 the production of liquefied petroleum gas amounted to 785,000,000 gallons. Considerable quantities are used for household consumption as bottled gas, or butane gas. Other portions are used by municipal plants to enrich nat- ural and manufactured gas. A considerable quantity is converted into butadiene, from which synthetic rubber is made. It is estimated that 765,- 000 gallons of liquefied petroleum gas is required at present for the pro- duction of synthetic rubber. Increased interest is manifested in the chemical utilization of liquefied petroleum gas and this section of the chemical industry could profitably be developed. Recently it has been used for air conditioning railroad equip- ment, and there are numerous other promising potential uses. 115 3. Rock Asphalt Kentucky rock asphalt is a coarse-grained sandstone thoroughly im- pregnated with bitumen. The asphalt is a residue of earlier oil pools, where erosion, knifing deep into the earth’s crust, has exposed the oil-bearing sand, resulting in the loss of volatile materials. Its original distribution was determined by the same conditions that accounted for the location of oil and gas. Asphalt is found in several sandstones in Edmonson, Grayson, Hardin, Breckinridge, Logan and Warren Counties. Edmonson County leads in production and Grayson County is in second place. The same sandstones are among those from which oil is obtained in the Owensboro field. The natural rock shows a bitumen content of three or four to fifteen per cent. Standard specifications for commercial rock call for seven per cent. Leaner rock may be used by mixing with the richer but the mixture is considered inferior to natural rock of the same bitumen content. Production was important in 1925-30 when it approached 350 thousand tons per year, worth over 3 million dollars at prices then current. The industry declined during the early years of the depression, and production has been limited since. The decline is also the result of the more extensive use of concrete. These deposits remain among Kentucky's important re- SOUII*CeS. 4. Wein Minerals Vein minerals are those occupying fissures in the earth’s crust where they were deposited by underground waters. While some may have been formed by ordinary ground water with its source in local rainfall (mete- Oric waters), the important mineral veins were formed, apparently, by underground waters originating in and coming up from molten lava deep in the earth—magmatic waters. a. Fluorite Fluorite is the most important vein material in the state. The principal Source for it in the United States is the Kentucky-Illinois district which includes Crittenden, Livingston and Caldwell Counties in Kentucky. This district produces about ninety percent of that mined in the United States and in recent years about eighty per cent of that used in this country. Its principal use is as a flux, especially in the manufacture of steel. It is the Source of hydrofluoric acid and is also used in the manufacture of certain kinds of glass and enamel. In more recent years there have been developed liquids which are fluorine compounds for use in automatic refrigerators and similarly internal combustion engines. Estimated reserves seem to indicate a supply for 30–35 years based on the pre-war rate of production. 116 Fluorspar, together with minor amounts of galena (lead ore), Sphalerite (zinc ore) and barite, occurs in veins associated with the faults of the in- tensely broken region of the western Pennyroyal. Other than the Search for weathered vein material, the problem of surface exploration is one of identifying and matching strata to determine the fractures (faults) along which blocks of the earth’s crust have shifted. These served as the ave- nues up which the ore-bearing magmatic waters ascended. b. Other Weim Minerals Barite is consumed in the manufacture of lithopone, which is used as a white pigment in paint, rubber goods, linoleum, etc. It is used also as a filler and weight producer in rubber, linoleum and cloth. It is the principal vein mineral of the Bluegrass. The presence of small amounts of strontium has made it unavailable for many purposes. Fluorspar, barite, galena, sphalerite and calcite occur in central Ken- tucky in a few veins of some size that cut across the local limestones. They have been extensively prospected, and have been commercialized on a small scale. Principal Operations for fluorspar have included the Twin Chimney mine in northern Mercer County and the Faircloth mine at Mundy’s Land- ing, on the Kentucky River in southern Woodford County. Main galena and Sphalerite operations were at Kissinger in Franklin County, Gratz in Owen County, and near Lockport in Henry County. The Chinn Calcite Mine at Mundy’s Landing in northern Mercer County was operated for a few years. Mining of these minerals in Central Rentucky practically ceased at the close of World War I. With increasing demand in the war years following 1941, Operations were resumed at the Gratz and Lockport lead and zinc properties. The Lockport operations were shortly abandoned. There is nothing known to date indicating the probability of any large development of these central Kentucky veins. It is a matter of quantity. 5. Clay Clays Suitable for the manufacture of common brick, cheaper grades of tile, portland cement, rock wool and similar materials, are available in most counties in the state. Most of these are residual clays from the weathering of impure limestone and shale. There are alluvial (stream-deposited) clays On floodplains and terraces along the larger rivers and they have been util- ized to Some extent. In Madison County, the Irvine clays are the basis of a brick, tile and pottery industry. Larger Scale utilization of clays has been made in two regions. In Carter County, near Olive Hill, there is a large fire clay industry utilizing Potts- ville clay. The Tertiary ball (plastic) clays, and associated sagger and wad clays of Graves and Ballard Counties in the Purchase are an outstand- ing resource. Kentucky produces more than 50% and along with adjoining 117 parts of Tennessee, 90% of that mined in the United States. These are high- grade clays and it is possible that a much larger industry could be developed in this region. The reserves seem to be at least moderate, and their life is being extended by blending with other clays of the vicinity. They are used for the manufacture of sanitary wares, floor and wall tile, terra cotta, pot- ters' supplies, table ware, porcelain and abrasives. The somewhat older Porters Creek clay is mined in Tennessee and Illi- nois for use as a bleaching clay. It outcrops over a wide area in the Ken- tucky Purchase and has possibilities also for the manufacture of light- weight clay products. Cretaceous clays have been worked in Marshall County. a. Comments There is a great field for state usefulness in the development of the clay industry. A ceramics testing and research laboratory would be a material help in developing small clay industries in many parts of the state and in furthering the development of the present major clay industries. Samples come in for opinion in a steady stream but we have no means of testing them. There are also some high aluminum clays worthy of study both in the field and in the metallurgical laboratory for possible utilization as a Source of the metal. 6. Miscellaneous Mineral Resources a. Building Stone Several stones from Kentucky have been much used in the past, but the ever-increasing use of concrete and concrete products has cut into the in- dustry. The best of these is the Bowling Green limestone, which is similar in character to, but not the same stratum as, the well-known Bedford lime- Stone of Indiana. The Rowan County freestone (sandstone) has been quarried extensively at Farmers, Freestone and Bluestone. The Rock- castle freestone, also a lower Mississippian sandstone, has been quarried in the county of that name. The Tyrone and Oregon limestones of the Central Bluegrass are good quality stone. The former weathers white, and improves in appearance as it ages. b. Limestone and Dolomite High grade limestone is abundant in Kentucky and it has many uses. It is widely distributed, and is lacking only in the Eastern and Western coal fields (exception in Pine and Cumberland Mountains) and in the Purchase area. Its main uses, other than for building purposes, are for roads, railroad ballast, lime, agricultural limestone, portland cement and rock wool. 118 Portland cement is manufactured at Kosmosdale, about twenty miles south of Louisville on the Ohio River. Materials used are Mississippian limestone from Brandenburg in Meade County, and alluvial clay from the Ohio River floodplain. Cement materials are abundant throughout much of the state, and the problem of development of the industry is one of market and transportation rather than available raw materials. Rock wool is made from limestone in combination with shale or sand- stone, or from slag. Two plants are operating in the state; one at Mullins in Rockcastle County, and the other at Summit in Hardin County. There are abundant raw materials in many parts of the state and the problem again is only one of market. c. Sand and Gravel These are abundant along stream courses, particularly downstream from areas of sandstone and conglomerate outcrop and in the glacial out- wish along the Ohio River. Some soft sandstones are also available and used. Some of these sands and sandstones are high-grade material for moulding purposes and for the manufacture of glass. This is particu- larly true of the sand deposit at Tip Top and vicinity, Hardin County, an ancient river-laid deposit now at near hill-top level. Similarly, there is a deposit of moulding sand near hill-top level in the vicinity of Devou Park near Covington. d. Commercial Brines Natural brines are well-known in salt licks and they are encountered in drilling for oil and gas. In pioneer times, the salt licks yielded a com- mercial product. There was also an early salt industry near Brandenburg in Meade County and Cloverport in Breckinridge County, developed in connection with the search for natural gas. With this exception natural brines have not been commercialized in Kentucky but have been in both Ohio and West Virginia. Widespread brines are well-known at a number of geological levels in the rock strata, but, except for scattered analyses, there is little information on them. 7. Water Resources Underground water resources for industrial and other purposes are becoming increasingly important. Little has been done in the state ex- cept at Louisville where an important study has been made by the United States Geological Survey. More work of this sort is needed in the state. The geological situation at Louisville was such that much good could be accomplished. This is not true to the same extent everywhere in the state. In the Purchase region, there is an abundant water supply in the underlying Cretaceous, Tertiary 119 G 49 & © © º ; : i : : and Quaternary sands and gravels. Along with cheap electricity this is of interest to industry. A report including recommendations on the water resources situation is attached. 8. Iron Ores In the early days of the state an iron industry was well established, but deposits are comparatively small and scattered. Some of the ore is good, but more of it is low grade. Mining ceased when operations began in the Lake Superior country and at Birmingham, Alabama. Kentucky is like many other states in having many abandoned small iron operations. The Preston Ore Banks, east of Slate Creek and southeast of Owingsville, are exhausted. Other producing localities included the Rose Run Mines east of Owingsville; those along the Mississippian-Pennsylvanian contact along its outcrop between the Kentucky and Red River in eastern Ken- tucky; ores in Boyd, Carter, and Greenup Counties forming an extension of the Hanging Rock region of Ohio; and the “Between the Rivers” region in western Kentucky. With few exceptions the ore bodies were not ex- hausted. These are mentioned here because of earlier utilization, not as an important resource of either the present or future. The origin of known bodies and their geological occurrence does not give any reason for ex- pecting extensive development. 120 APPENDIX TO MINERAL RESOURCES MEMORANDUM KENTUCKY'S WATER RESOURCES and RECOMMENDED INVESTIGATIONS J. V. B. WELLS, District Engr. U. S. Geological Survey, Water Resources Branch Water of good quality is a most valuable asset to any community, state, or nation. In fact, it is probably our most valuable natural resource. All too often we accept it as being available in unlimited quantity like the sunshine, air and soil. However, water is an element which should be carefully studied and conserved in order that the community’s welfare and normal growth will not be seriously impaired because of a lack of knowledge concerning its quantity, quality, and use. All of the Seven states adjoining Kentucky have been conducting Systematic water-re- sources investigations for many years. These studies are now paying good dividends and consequently present programs in Some of these states are now being stepped up. For the purpose of this discussion our water resources can be divided into two major divisions: (1) the water flowing in our rivers, common- ly known as “surface water,” and (2) the water contained in the Zone of saturation under the surface of the ground, generally referred to as “ground water.” Perhaps the greatest single influence in Kentucky's industrial develop- ment has been the Ohio River which forms 664 miles of Kentucky’s north- ern boundary. Among some of its uses this stream transports a great deal of freight in and out of the state, generates electric power at Louis- ville, supplies water for domestic and industrial usage, dilutes Sewage thereby providing a cheap method of sewage disposal, and assists in Sup- plying water to many of the ground-water reservoirs located along its flood plains, from which large supplies of cool water are pumped. Partly off-setting the many benefits, major floods on this stream have caused disaster to many communities and cities along its banks. Kentucky’s interior streams are now serving many of the same pur- poses in their areas as does the Ohio for the northern border areas of the state. However, to date the interior of the state has not become very industrialized, but as Kentucky continues to grow the present need for and use of the water in its streams will also grow. In fact, probably the big- gest limiting factor in this growth–particularly industrial growth—will be the quantity and quality of water that is available. Even now in some sections of the state, the limiting effect of this resource is making itself known. 121 Many of our larger streams have a considerable fall which will doubt- less be utilized to manufacture cheap electric power when the market for power will so justify. To date there are only two major water-power de- velopments in the state other than that at Louisville. Many communities in the state obtain their public water supplies from our streams and fre- Quenty they use these same streams to assist in disposing of their in- dustrial and domestic wastes. As these communities expand their water supply and their methods of sewage disposal will seriously affect, by pollu- tion, the supplies of others. All of which emphasizes the need for good basic data on which to plan the development of our water resources. Ground water is plentiful in some sections of Kentucky, and there is almost none in others. In general, the locations where the largest in- dustrial supplies may be found are along the flood plains of the Ohio River and some of its major tributaries, in the Jackson Purchase section, and in some of the limestone regions where large solution channels are present. Ground water is used extensively in the large industrial cities along the Ohio River. Whether the present industries continue to prosper and other industries locate along the Ohio River depends to a large extent on how much information we can furnish as to the quantity and quality of cool ground water they may expect to find. Ground water is also used by many communities, industries, and farms in the interior of the state. Where streams are not available to supply the needs for water, these needs must be met from wells, or from much less satisfactory ponds and cisterns. Lack of knowledge concerning ground water has caused many people to suffer from water shortages although plenty of ground water could have been made available by proper development. On the other hand, tremendous amounts of money have been spent trying to obtain ground water in places where a simple investigation would have shown that no water was available. Although we have some very general in- formation in a few parts of the state regarding the quantity and quality of the ground water, our knowledge is seriously lacking in most places, and this lack is costing us much in suffering and money each year. A careful inventory of the quantity, quality, and mode of occurrence of a state's water resources is fully as important to the proper growth and Welfare of a state as any other type of study. This has not seemed so evi- dent in past years because the supply seemed inexhaustible to many people, the streams were not so badly affected by pollution, and flood probabilities based on long-term records were not so urgently needed. However, the picture has changed rapidly in the past few years as a result of the greatly increased uses of water for such purposes as air conditioning, cooling in industrial processes, cheap power, and farm use, and the increased need for water of specified quality. Frequently when a large industry is look- ing for a suitable place to locate, it first investigates the quality, quantity, 122 and cost of water available, usually before other factors are seriously considered. Unless trustworthy information is available on this subject, the state probably will lose many valuable industries to some other state where such information is available. We have been in a low rainfall cycle for the past decade. As a result the water resources in some sections have been seriously affected. This has been particularly evident on the farms where wells and creeks have gone dry frequently causing the sale of stock at a big loss or the hauling of water at considerable expense. A proper study over a long period of time would doubtless have prevented or reduced many such losses. An adequate investigation begun now will not only bear fruit on the current problems but will provide some basis for forecast of what may be ex- pected in the future low cycles. As a result of the farsighted policy of the Kentucky Highway Depart- ment a Small scale but systematic program of suface-water investigation was started in cooperation with the U. S. geological Survey in 1938. Prior to that time practically no long-term records of stream-flow were available in the state. With the exception of long since antiquated and inadequate ground-water surveys of the Bluegrass and Jackson Purchase areas there has been no systematic collection of data on ground water in Kentucky until recently when acute shortages caused by step-up of industry forced the start of an investigation of the Louisville area. Except at Louisville, there are almost no reliable public data available on the chemical quality of Kentucky’s underground or surface waters. Therefore, it appears that to conserve its most essential natural resource, Kentucky must first take steps to find out something about its water. A general water-resources investigation should be undertaken to sup- plement present programs of inventorying and studying the behavior of Our Surface streams and underground water supplies. The quality of these waters should also be determined and where necessary, studies should be made over a period of time to determine the effect that seasonal flows, in- dustrial wastes, pumpage, et cetera, have on the quality. The most urgent Specific investigations that are indicated at present in order to lay the groundwork for the proper development of our water resources are: 1. To start a general state-wide underground water survey to furnish general information on the occurrence and quantity of ground water in all sections of the state. 2. To make intensive ground-water surveys in areas where other factors are favorable for the location of industry, or where shortages now prevail, so that accurate determinations of the quantity of water available may be made and, if necessary, its use controlled to the general benefit to the state. 123 3. To expand the present surface-water program to include several key streams and provide a better general coverage of Small streams. Im- prove records at several important locations where present funds are inadequate. 4. To start a general survey of the chemical quality of both surface and underground waters. The U. S. Geological Survey, an old-line organization, is empowered by Congress to make such investigations in cooperation with the various states. Because of the availability of highly trained technicians who have had experience in similar problems all over the United States and the financial cooperation available to the state through cooperation with this Federal Agency, it is probably the best fitted agency from the state's viewpoint to undertake such a survey. In fact, it is the only large organization in the country set up to do this type of investigation. The U. S. Geological Survey will match funds appropriated by the state on a dollar for dolla) basis to make such general investigations with U. S. Geological Survey personnel. The data so collected will be pub- lished by the U. S. Government printing office at no cost to the cooperative funds and may also, if desired, be prepared for publication by the state. It is estimated that the total annual cost to Kentucky of conducting investigations as outlined above would be about $25,000 for surface-water investigations, $20,000 for the ground-water work, and $5,000 for quality of water studies, or a total of $50,000 per year in all. The Federal Gov- ernment would allot a similar sum for the work. Actually this is only $40,000 over and above that the Highway Department is now contributing to the present program. When this $40,000 is compared with the cost of and underdesigned bridge lost by floods, a rebuilt water-supply system for a city or large industry originally designed on a basis of inadequate basic data, the financial loss to farmers during drought years resulting from the forced sale of stock for lack of water, or the yearly loss to the State of taxes from one large industry that failed to locate in the state because of inadequate data concerning our water resources, then the cost to the state for water-resources investigations appears mighty small. B. AGRICULTURAL RESOURCES In 1944 receipts from the sale of products grown on Kentucky farms amounted to 364 million dollars. Of this amount over 40 per cent came from tobacco, wool and cotton which must go through manufacturing processes before they are of use to consumers. Over 35 per cent came from livestock and livestock products which, too, must be slaughtered or processed. Less than 15 per cent came from eggs, fruits and vegetables and other products which require little or no processing. In addition to 124 sales, most of the hay, half of the dairy products, much of the corn, a large share of the poultry and eggs, and many of the fruits and vegetables were retained for use on the farms where they were grown. Although agricultural production in Kentucky has expanded sharply during the war, the production of some products could be increased much more if enlarged market outlets became available. The production of tobacco could be expanded materially if new and profitable uses are found. The production of hemp fiber could be increased many fold if economical processes are developed for making high grade textiles or cigarette paper. Present agricultural production, therefore does not necessarily measure the capacity of Kentucky’s farms to produce. The same may be said for the forests of the state. To give some idea, however, of the volume of farm products which now are utilized in one form or another, produc– tion and sales in pre-war years and production estimates for 1944 are presented in the accompanying table. Production and Sale of Agricultural Raw Materials in Kentucky (Figures in Thousands) 1944 Pro- Prewar production Prewar Sales duction, Product Unit (1935-39 Average) from farms (Estimated) Beef Cattle & Calves........pounds 259,197 323,4101 335,000 Hogs.---------------------------------pounds 296,832 147,994 345,000 Sheep & Lambs.................pounds 60,064 67,1251 56,000 Wool........................----------.pounds 5,067 5,067 5,000 Chickens............................ head 19,470 8,291 25,059 Eggs.-------------------------------egg S 803,200 482,400 1,269,000 Turkeys............................. head 373 356 261 Milk (total) ...................... pounds 1,903,000 994,400 2,112,000 Milk equivalent of farm churned butter...pounds ............ 46,800 ------------ Wholesale cream...........pounds ............ 488,600 ....... ----- Wholesale milk............. pounds ............ 314,600 ------------ Retail milk & cream.....pounds ............ 144,400 ------------ Tobacco............................. pounds 288,671 288,671 470,000 Corn.… bu. 61,412 4,222 67,080 Wheat................................ bu. 6,534 4,473 7,902 Hemp fiber........................ pounds 7522 752 1,200 Sweet potatoes..................bu. . 1,437 592 1,440 Hay (all tame) ................. tons 1,559 96 1,623 Corn Stalks........................tons 1,965 ............ 2,012 Straw.................................tons 510 ............ 616 Tobacco stalks.................. tons 76 ------------ 133 1 In-shipments and changes in inventory allow sales to be greater than production. 2 1938-41 average. 125 II. POSTWAR MARKETS AFFECTING INDUSTRIAL PLANTS . AND OPPORTUNITIES Because agriculture is the most important calling of Kentucky people, because manufacturing in the state may develop largely as a part-time employment of rural folk, and because agrarian production will provide raw material for considerable industrial activity, it is well to consider the postwar farm marketing prospects briefly before turning to the market- ing of industrial products. A. Marketing Kentucky Farm Products after the War Since agricultural products grown in Kentucky are customarily sold in national markets and a few, such as dark tobacco and cotton, in foreign markets, the prices received by farmers in the postwar period will depend on the national and international forces affecting the prices of goods in general and the prices of farm products in particular. On the demand side, the size of the national income has been demonstrated to be a very important factor in the general level of agricultural prices. Since a very large proportion of Kentucky grown products are consumed in this country and are only indirectly affected by foreign markets, the general level of national prosperity will be very important for agricultural prices and income. On the supply side, agricultural production will probably be large. In the past, once a high level of production was at- tained in agriculture, production continued to remain high even in the face of lower prices of products. Since the explanation of this slow response in volume of production to lower prices is found in the indi- vidualistic nature of farm ownership and operation, it appears probable that a large volume of production attained in wartime will tend to con- tinue into peacetime, at least for several years 1. FOODS Kentucky’s chief food products are livestock and livestock products, poultry and eggs, fruits and vegetables. These products are customarily consumed in the United States with the exception of hog products which were exported in Small and declining volume in the prewar period. Large Quantities of dairy products, eggs and pork products have been exported during the war under lend-lease. A major problem in market or pro- duction adjustment awaits the time when the wartime demands for these exportS cease. 2. TOBACCO The factors affecting the long-time trends in consumption and produc- tion of tobacco will probably continue into the post-war period. 126 a. Burley The trend of consumer preference in favor of products made from burley tobacco, especially cigarettes, has been accelerated during the war. Although temporary declines may follow the war, in all probability the long-time upward trend will continue into the postwar period. Another market advantage of this type is its almost exclusive domestic use, al- though one cannot overlook the fact that burley competes directly with flue-cured tobacco, a large proportion of which is exported. b. Dark Tobaccos Markets for these types of tobacco are affected by (1) continued consumer preference for lighter tobaccos and (2) shrinking foreign markets. Formerly important export tobaccos, these types were greatly reduced in production in the pre-war years. No important increase in exports has developed during the war and present prospects are not promising of any important increase in demand from foreign sources in the years immediately ahead. B. Marketing Industrial Products as Related to Kentucky 1. KENTUCKY AS A MARKET FOR INDUSTRIAL PLANTS GENERALLY AND PARTICULARLY AS A MARRET FOR SMALL LOCAL PRODUCERS a. General economic limitations Among the factors affecting the location of manufacturing plants the most important are usually (1) the relation of the site to material and Supplies; (2) its relation to the market in which the product is distributed; (3) the character and availability of transportation facilities; (4) the labor Supply; and (5) power. In addition there are secondary factors, Such as the cost of land and buildings, the possibility for expansion, the presence of Service industries, financial facilities, water supply, tax and water rates, and labor legislation. It is impossible to classify these factors on the basis of relative importance except as application is made to a Specific industry. In some cases it would be found that a factor classed as Secondary would be a primary consideration in plant location. It will be observed that the first three of the major factors directly involve marketing factors; some of the others, major and minor, inci- dentally concern markets. w One factor of interest to manufacturers considering setting up plants in Kentucky is the Kentucky market for products made within the state. To the extent that manufacturers located in Kentucky can produce and market their products at lower costs than out-of-state manufacturers, Kentucky consumers will benefit through the location of manufacturing plants within the state. Also interested in the Kentucky market are 127 manufacturers having plants in other states. The welfare of Kentucky people is enhanced by the interest which out-of-state manufacturers take in sales expansion in the state. Such an interest provides the consumers with a variety of goods and protects them against possible monopoly. The interest of out-of-state manufacturers in Kentucky sales also leads to the employment of Kentucky people incident to local Sales effort. It may lead to the establishment of warehouses and agencies in the state and setting up branch producing plants or even to moving the main factory to Kentucky. The development of our large-scale, complex marketing and transpor- tation systems has probably reduced the dependence of Kentucky con- sumers upon Kentucky-made products. The low costs at which raw materials can be transported long distances and finished products can be sent to market have facilitated the concentration of much manufactur- ing outside of Kentucky. The concentration of manufacturing in non- Kentucky areas has been in response to factors which Kentucky has presumably lacked. This concentration of industry has probably served to lower production costs; and this fact, combined with low marketing and transportation costs, has enabled out-of-state producers to reduce prices to Kentucky consumers. Kentucky has varied and, in some cases, plentiful industrial raw materials. To ascertain where these raw materials go for fabrication and to determine the conditions which are necessary for their efficient utiliza- tion within the state would serve persons interested in plant location as a guide to prospective rates of profit in different alternative industries. Some industries manufacture products which are ready for sale to consumers, while many others produce intermediate goods which are sold to other industries for further processing or for use in their production processes. The relatively undeveloped state of manufacturing in Kentucky Suggests that producers of goods used in manufacturing will not find a Kentucky location profitable. The more highly developed position of agriculture and mining in the state, however, calls for attention to the possibility of producing more manufactured goods used in these industries. Kentucky markets are primarily for consumers' goods. Even with respect to consumers’ goods, however, only a small percentage of industries find the location of their market to be the most important factor in plant location. Some industries, it is true, are consumer-market oriented. These industries fabricate predominantly consumers’ goods for markets requiring speed of delivery or close contact with customers. Typical ex- amples are photoengraving, newspaper publication, the production of ice, ice cream, beverages, and machine-shop products. The location of the great majority of producing industries is influenced more largely by other factors than by the geographical distribution of markets. 128 A limiting factor in the development of Kentucky markets is found in the low incomes of her people. This retards the development in the state of small consumer-oriented industries and also reduces the interest of out- side manufacturers in Kentucky markets. Certain data, taken from the 1939 Census of Business, are available to support this statement as to the limited extent of Kentucky markets. Kentucky has 1.35 per cent of the land area of the country and 2.16 per cent of the population. However, she has only 1.24 per cent of retail sales and .84 per cent of wholesale Sales. The percentages for retail sales is low because of the low incomes of Kentuckians. It is to be expected that wholesale sales would be low because of low retail sales. That the percentage of wholesale sales is lower than the percentage of retail sales is accounted for by the fact that wholesale market development is a function of retail sales density and the further fact that there are several large cities in other states, Such as Cincinnati and Nashville, which are adjacent to various sections of Kentucky. These cities do a large wholesaling business in these Ken- tucky districts. As the state is predominantly rural with 70 per cent of its people living On farms or in small towns and villages, the rural market is especially important. The maintenance of a high level of agricultural income is a paramount requisite of an enlarged rural market for industrial products in Kentucky. Farm incomes are low, however, and goods designed for purchase by rural people must be priced accordingly. In 1940, cash re- ceipts per farm were about $630, or $126 per capita of farm population. These figures varied considerably between different parts of the state. In the aggregate, cash income of Kentucky farms is large. In the period 1935-1939 it averaged $157 million per year, but with expanded production and higher wartime prices, farm income in 1944 totaled $378 million. Income after the war will depend upon both the volume of agricultural production and the prices received. Tobacco normally ac- counts for about 40 per cent of cash receipts, while livestock items return 50 per cent. Supplying farmers with the products they need offers numerous industrial market opportunities. The dependence of Kentucky upon agricultural and mineral produc- tion and the lack of development of manufacturing is indicated by the following ratios of the value of Kentucky production of each class to the total national production: Value of agricultural production............................ 2.06% Value of mineral production.................................... 2.69% Value of manufacturing production...................... .85% Although it is important to recognize the above problems in the develop- ment of Kentucky markets, the recognition does not call for an attitude 129 of pessimism with respect to possible solutions. Rather it should lead Kentucky to seek means of overcoming the difficulties encountered. b. Local Markets The actual market organization for the sale of industrial products in Kentucky needs little consideration. The structure as a whole is practically identical with that employed in other nearby states. As a whole, it has never been planned; it merely represents adjustments in the still-existing “normal channels of distribution,” that is, manufacturer to wholesaler to retailer to consumer. Although the Kentucky pattern is not unique, it has been suggested that definite gaps exist. If there are market organization shortcomings—such, for example, as to cause unduly high prices of fertilizer, farm machinery and equipment, coal mine equipment, et cetera—then there should be sustained investigation followed by an appropriate action program. If the “cost of distribution” margin is excessive in particular cases, the facts should be discovered and made accessible to all competitors. Because agriculture bulks so large in Kentucky’s economy, the in- dustrial marketing prospects among the state's farmers is a key point in this connection. Among the specific rural market opportunities which should be canvassed, and to the extent found necessary organized, are the following: 1. Electrification of the three-fourths of Kentucky’s farms not now served with electricity would open a market not only for house- hold equipment, but also for income-producing, power-driven farm equipment as well. The construction of power lines and the gen- eration of needed electricity also are industrial opportunities. 2. Mechanization of agriculture calls for tractors and tractor equip- ment especially designed for small farms. Labor-saving farm machinery of a variety of sorts is needed to meet the trend toward mechanization. The beginning of mechanization in the prewar years will likely gain momentum in the years ahead. 3. Fertilizer needed to make Kentucky farms most efficiently produc- tive offers opportunity for the manufacture of fertilizer materials in plants located strategically to serve Kentucky farmers. The crush- ing of limestone requires many local enterprises. 4. Commercial feed for Kentucky’s expanding livestock enterprises is a growing need. The location of this state between the heavy grain producing area of the Mid-West and the expanding livestock area of the Southeast offers special opportunities in the feed busi- I162SS. 130 5. Telephones for some of the farms that do not have them offer op- portunities which would improve the conveniences of farm life in Kentucky. 6. Building supplies for repairing, improving, or constructing farm homes offer a market for lumber, roofing, paint, and for many other items such as plumbing equipment and house furnishings. 7. Transportation, always a major enterprise, is of particular sig- nificance to farm people in the sale of their products and the pur- chase of supplies. The building of roads and the improvement of rail, truck, and water transportation are postwar needs of Ken- tucky people. 8. Water in sufficient quantity and quality is lacking on most Ken- tucky farms. The development and installation of satisfactory water systems for farms and small cities offer an industrial op- portunity of no small magnitude. 2. MARKETING KENTUCKY PRODUCTS a. Overall economic factors The problem involved here is the expansion of the national and inter- national markets for manufactured goods now produced in Kentucky or which may be produced here. Such an expansion would serve to increase the importance of manufacturing in Kentucky. It might encourage the growth of Kentucky manufacturing through the origination of new plants in the industries having expanded markets, or the movement of out-of- state plants to Kentucky locations. This would be especially likely to happen if Kentucky were peculiarly adapted to the industries whose markets had expanded. The ability of the national market to absorb goods in the future will depend a great deal on the amount of economic activity which generates incomes for the purchase of goods. This in turn will depend on the availability of raw materials, the technologies at hand for exploiting them, cooperation among producers, the pervasiveness of a spirit of enterprise, and governmental maintenance of an institutional framework conducive to the foregoing. Particularly, business and government must solve the problems incident to the transition to peace and must cooperate in the provision of conditions which encourage economic activity and the as- sumption of business risks. Foreign markets for Kentucky products, as for the products of manu- facturers in other states, will depend to a great extent on the main- tenance of peaceful relationships among nations. The United States 131 and other countries can restrict markets by limitations on, or can enlarge them by freeing, international trade. Certain long-run trends are likely partially to shape the national de- mand for Kentucky’s manufactured products. In the postwar period there will be a large demand for goods, but the first impact of this de- mand for goods will be felt in the capital goods field. Kentucky is pri- marily a producer of consumer’s goods rather than capital goods and will not be benefited to a great extent by this emphasis upon the demand for capital goods. As the nation becomes “retooled,” it will be possible to produce larger quantities of consumers’ goods. This will have a favor- able effect on Kentucky manufacturers. Much of the demand for con- sumers’ goods will, however, be felt primarily in durable consumers’ goods lines, while Kentucky, emphasizing the manufacture of food, distilled liquor, and tobacco products, specializes in non-durable consumers’ goods. The manufactured products of Kentucky are so varied that it is difficult to generalize with respect to the conditions which will increase or decrease the national markets for these products in the future. The table shows the diverse nature of Kentucky’s manufactured products. THE VALUE OF MANUFACTURED PRODUCTS IN KENTUCKY IN 1939 Rank, Class Of product Value in millions 1. Food and kindred products.............................................................. $122.9 2. Iron and steel and their products.................................................... 56.9 3. Tobacco manufacturers -------------------------------------------------------------------- 56.1 4. Automobiles and automobile equipment........................................ 39.8 5. Products of petroleum and coal...................................................... 35.1 6. Furniture and finished lumber products........................................ 22.4 7. Apparel and other finished products made from fabrics and similar materials --------------------------------------------------------------........ 19.3 8. Chemicals and allied products........................................................ 16.7 9. Printing, publishing, and allied industries.................................... 16.5 10. Machinery (except electrical) ----------------------------------------------.......... 14.9 11. Rubber products -------------------------------------------------------------------------------. 13.3 12. Lumber and timber basic products.----------------------------------------------. 12.0 13. Textile-mill products and other fiber manufactures.................... 11.1 14. Stone, clay, and glass products...................................................... 10.2 15. Leather and leather products.------------------------------------------------......... 9.7 16. Electrical machinery ...................................................................... 8.7 17. Nonferrous metals and their products............................................ 7.1 18. Paper and allied products................ 2.9 19. Transportation equipment (except automobiles)........................ 1.2 132 Specific conclusion would have to be preceded by a study of each manufactured product and of the possibilities for stimulating its markets. Kentucky manufacturers are themselves, of course, interested in this problem and are attempting on their own account to bring about an ex- pansion in the markets for their goods. They must continue their interest in market expansion with an attitude of alertness to changing economic conditions which will affect their markets. Companies can cooperate in research of this type to a greater extent than previously. Marketing and management consultants, as well as public agencies, are qualified to per- form this task for specific industries. Cooperative effort should be applied, too, to the problem of interstate trade barriers which restrict the markets for Kentucky products. It is suggested that Kentucky manufacturers seek to reduce the number and extent of trade restrictions under Kentucky law and likewise assist other agencies interested nationally in the reduction of interstate marketing barriers. b. Market opportunities in Kentucky It would be difficult to offer specific suggestions as to the marketing of Kentucky industrial products without detailed investigation of the relevant facts. Detailed market studies of the possibilities of selling products manufactured from mineral resources would aid toward a wise program of development for such gifts of nature. Likewise studies look- ing toward fabrication of consumer products from partly manufactured imports to the state ought to be specifically canvassed, though this par- ticular sort of research is largely one for a particular individual or corporation with an idea. Perhaps most fundamental of all for the immediate postwar period are studies of specific opportunities for processing agricultural products. The agriculture of Kentucky is expanding. Improved practices in the management of soils, crops, and livestock; progress in breeding and selection of crops and livestock; introduction of mechanical equipment; better transportation and marketing are important contributing factors. These slow moving, but persistent forces promise to provide a larger supply of produce processing when the postwar adjustments in produc- tion have been made to peacetime demands for agricultural products. The largest increases may be expected in the production of livestock of grass and forage consuming types because of the importance of grass and hay in the development of agriculture in Kentucky. 1. Meat Packing The cattle, especially beef breeds, and the sheep industries, have been, and probably will continue to be, the chief beneficiaries of agricultural de- velopment. Hog production, although large in relation to the tonnage 133 of other livestock, has had, and perhaps will continue to have, greater stability. The net effects of larger quantities of meat producing animals and the tendency of the meat packing industry to decentralize provides the basis for a possible expansion of meat packing industry in Kentucky. 2. Dairy Processing Dairy production has increased steadily in recent years and will likely continue to expand in view of larger available feed supplies and other favorable factors. The use of commercial milk is about equally divided between consumption as fluid milk in local markets and manufacture of dairy products. Kentucky farmers have some advantages in the production of dairy products because of plentiful labor, the possibility of good pastures, and the opportunity for winter grazing. Milk cows make excellent use of high quality pasture and hay, especially alfalfa, and in this way fit into a program of soil improvement. Greater efficiency in both production and marketing, however, is an important postwar objective. Dried whole milk may be used in substantial quantities after the war. It has some advantages for consumers, in that it can be stored easily and is adapted to fluctuations in the quantity needed from day to day. If a wide market develops for dried milk, Kentucky dairying can expand to meet this need. The development of plants for drying milk also would be a possibility. 3. Fruits and vegetables In the past, Kentucky fruit products have been used chiefly as table stock. Wartime advances in preserving, dehydration, and freezing are suggestive of possible peacetime developments in this field. Technical changes are not so rapid and so little is known about consumer acceptance of the various new products, that a forecast of their significance to the fruit and vegetable industry in Kentucky is hazardous at this time. Ap- propriate public and private agencies might well study the situation to ascertain the local possibilities of new developments. 4. Tobacco products Tobacco has an important place in the long-term agricultural de- velopment of the state. The annual average prewar production of 1935– 1939 was 289 million pounds of a wide variety of types and qualities. Yet, a very small proportion of the tobacco was manufactured in the state. 5. New uses for agricultural products There is a broad field for the possible development of new products in order to find a higher order of utilization of the output of agriculture. Interest in Kentucky might well be focused on wood, low grade tobacco, and tobacco stalks, which are abundant. Other products, like hemp and 134 corn stalks, might also provide the basis for new industries if economical uses could be found for the finished products. 6. Opportunities for processing forest products With about 40 per cent of Kentucky’s land surface in wooded areas, the importance of the productive use of forest resources is apparent. Annual growth of timber on these lands, even though much less than would be possible under good management, probably totals in excess of three million cords. Of this amount some 675 million board feet, about half of the total, are in usable timber. Of the timber cut, about half is used for fuel and tobacco wood, a third for sawlogs and ties, and about 10 per cent for mine timbers. The remainder is used for veneers, staves for both slack and tight cooperage, tobacco sticks, pulpwood, and the like. In addition, many cords of wood are lost in discarded tops of trees, inferior trees, slab wood and edgings. The economical use of these products, as well as of the more valuable types of timber, is a challenge to industry in the postwar period. Growth in the chemical industry may lend value to forests as a source of cellulose, and the development of laminated wood products may give special value to Small-dimension stock in Kentucky’s woods. SUB-COMMITTEE NO. 5 — INDUSTRIAL LABOR Kentucky’s plentiful supply of high quality labor will be a chief factor in attracting industrial plants for postwar expansion and development. Fifty per cent of Kentucky’s industrial development is in the Louis- ville area, twenty-four plus per cent is in the Ohio River counties, leaving twenty-five plus per cent for the balance of Kentucky. Even with prac- tically all our plants located along the Ohio River we have a surplus of labor in that part of the state. With seventy per cent of our people living in rural sections there is a large surplus of labor, in the state as a whole, during normal times. When peace comes the available labor picture will be even more in- viting to Industry. Natives of Kentucky have gone out to other states to work in war plants; they have become trained in many useful trades. After the war is over, the war plants have closed, these good people will return to their beloved home state to live. This high quality labor will be on the market. We then have to face the problem that Kentucky’s industry, as presently constituted, cannot absorb Kentucky’s pro rata part of the industrial workers now surplus over the 1941 production level. Agriculture in the state cannot absorb the surplus workers at the present high level standards of living. In order to stabilize work and income, it is important to get new plants to locate in all communities. Good, reliable firms should be shown 135 the advantage of coming here where their employees will not come from the melting pot of immigrants, but from native-born Kentuckians. We desire firms who will furnish steady employment at good wages; firms who will help develop our communities, who will make living conditions better for our families. In return we will furnish high quality, trust- worthy workers, and a splendid local market for their output. To help achieve these ends we recommend the abolishment of all child labor, the enrollment in our schools and colleges of all the young people in our state (a very necessary and important thing to do) and through the proper methods to instill in the minds of Kentucky people a greater appreciation of the value of industries scattered throughout the rural communities. However, if the establishment of these industries is due solely to the relocation of industries from our cities it would not achieve the overall need; rather they will have to be new industries using avail- able Kentucky labor and raw materials for sale in local, state, national and world markets. Kentuckians interested in making our state a better place in which to live and work when peace returns should assist in national overall policies to assure free enterprise to business, both big and small, so as to lead to levels of higher income employment commensurate with rising standards of living. In the event of failure to secure a functioning State Chamber of Commerce by January 1, 1946, the state's industrial development can be Served by the creation of a Division of Industrial Development in the De- partment of Conservation, or in any other appropriate Department which the Governor may designate. The duties of this Division will include: 1. Collection, maintenance and dissemination of industrial data affect- ing every county in Kentucky (assuring that appropriate informa- tion shall be placed in the hands of industrial and business execu- tives who probably can profit from a Kentucky location); 2. Creation of an interest in, and paving the way for, a self-support- ing state chamber of commerce, which would eventually take over the functions and expense of the Division of Industrial Develop- ment. In the event a state sponsored promotional agency is established, its director will of necessity have to engage in negotiations with individual concerns for Kentucky locations. It must be recognized that many political hazards may thus be presented and that a state government agency charged with such duties might well embroil itself in sectional politics. This can largely be avoided if the director will confine himself to inform- ing prospective manufacturers of all the communities which have facili- ties that reasonably meet the particular requirements of the manufacturers. 136 We are conscious that shifts of political administrations are likely to interrupt the continuity of the Division’s work especially by personnel changes. Surely, in a job so vital and in one requiring peculiar talent, some means can be found to assure continuity if the work is well done. In the light of the foregoing, if an effective, privately sponsored State chamber of commerce is not in operation by January 1, 1946, we recom- mend for your earnest consideration the authorization of a State Division of Industrial Development in accordance with the general purpose and plan already outlined. COMMITTEE ON INDUSTRIAL PLANTS AND OPPORTUNITIES JAMES B. O’REAR, Chain’man, Frankfort DANA G. CARD, Lexington s DR. LYLE R. DAWSON, Lexington ROBERT S. GRUVER, Ashland WILLIAM B. HARRISON, Louisville DR. MARSHALL D. KETCHUM, Lexington DR. JAMES W. MARTIN, Lexington DR. ARTHUR C. MCFARLAN, Lexington ROBERT MONTGOMERY, Louisville DR. EDGAR Z. PALMER, Lexington O. K. PEMBERTON, Louisville DR. H. BRUCE PRICE, Lexington WASHINGTON REED, Lexington DR. M. R. SULLIVAN, Lexington DR. DANIEL V. TERRELL, Lexington J. V. B. WELLS, Lexington DR. EDWARD WIEST, Lexington H. F. WILLKIE, Louisville 137 fiºſomųwayſ wy ffuqsmoſ puppun, S.-qm S. *ſoous puſº play nºo jo ºsºn-unoo oſouſ- REPORT OF THE COMMITTEE ON COORDINATION OF FEDERAL, STATE. COUNTY. AND CITY GOVERNMENTAL ACTIVITIES Committee Report No. 6 Interim Report Submitted on March 13, 1945 Final Report Submitted on May 8, 1945 Final Report Accepted on May 8, 1945 Commissioners present on May 8, 1945: ATWOOD, R. B. OFFUTT, W. P. BLAZER, P. G. O’REAR, J. B. BROWNING, J. N. RAMSEY, J. E. CAIN, H. W. STOKES, E. E. DONOVAN, H. L. STONE, J. C. EVANS, E. J. TOMLINSON, G. E. GRAHAM, THOMAS WACHS, C. B. GRUVER, R. S. WATKINS, J. S. HARRISON, W. B. WEBB, FREEMAN HILL, J. B. WEYLER, J. R. MARR, J. W. WILLKIE, H. F. SECTION I INTRODUCTION Organizing and Membership The Postwar Advisory Planning Commission determined that it would carry on its studies through the medium of a number of Committees, each assigned to the investigation of specified phases of the work. In pur- suance of this policy, the Commission created, among others, the Com- mittee on the Coordination of Federal, State, County and City Govern- mental Activities and designated J. Stephen Watkins, a member of the Commission, as Committee Chairman. The membership of the Committee has given generously of its time, ability and money in a sincere effort to prepare the most adequate report that limited time and facilities would permit. Scope of Activities The activities of the Committee as originally fixed by, and as sub- Sequently expanded with the approval of, the Commission constitute an investigation of the extent and coordination of governmental activities at all levels in connection with general planning, public works and hous- ing, State and local Zoning and planning, research and public health. Method of Operation In order to facilitate the work of the Committee, sub-committees with Specific assignments were formed as follows: Planning Study of need for state planning agency; coordinate, evaluate and edit the work of all other sub-committees. Public Works Investigate, collect and tabulate data on the current status of state and local public works planning. Housing Investigation of urban and rural housing conditions relative to needs, adequacy, building standards and codes, etc. Research Means of creating and expanding production and employment through use of natural resources and industry. Zoning and Planning Revision and extension of existing legislation, uniform subdivision control and airport zoning legislation, provision of adequate sanitary 140 or other special district legislation, need for state building code (in cooperation with Housing Sub-Committee). Public Health, Investigation of basic problems, current activities and future needs. While each of these sub-committees operated independently within its assigned field, liaison with and between them was maintained through the Planning Sub-Committee and by meetings of the Committee function- ing as a whole. Each sub-committee report was considered first in preliminary and later in final form by the entire Committee; subsequent to approval by the Committee, these reports were presented to the Commission as an Interim Report. The Commission reviewed and approved them as to gen- eral content for combination into this Final Report. Form of Presentation The fields covered by the sub-committee reports are so broad that it is difficult, if not impossible, to reduce them to a combined form with- out destroying much of their value. It has, therefore, been decided to present the Final Report as a summary of the findings and recommenda- tions of the several sub-committees supplemented and supported by a more detailed section on each subject. These supporting sections on Planning, Research & Kindred Activities, Public Works, Housing, Zoning & Planning and Public Health are taken directly from the original sub- committee reports. SECTION II SUMMARY OF RECOMMENDATIONS Presented herewith is a summary of the recommendations of the several Sub-Committees as approved and adopted by the Committee as a whole. The Sub-Committee’s report of studies and investigations, upon which these summary recommendations are based, are incorporated in Section III of this report. Similar or identical conclusions on some phases were reached inde- pendently by two or more of the Sub-Committees and were subsequently adopted by the Committee. In this summary such duplications have been eliminated through their consolidation into single recommendations. EDITOR’s NOTE: This report was reviewed amd discussed by the Committee at its meeting On May 1, 1945. It was approved and adopted with certain minor revisions which have 7,070 been incorporated herein. 141 The recommendations of the Committee follow : Planning It is recommended that : 3. Appropriate action be taken to secure the passage of legislation establishing a permanent, continuing State Planning Agency at the earliest feasible time, but not later than the regular 1946 session of the General Assembly. (NOTE: Legislative action could take the form of a revision of Chapter 147, KRS, to make the provisions operative under the direction of a State Planning Agency). As an interim arrangement, the nucleus of a paid planning staff be created to function under the direction of the Postwar Advisory Planning Commission. Scientific Research It is recommended that : a. There be created a State-supported Engineering Experiment Sta- tion for scientific research leading to the development of the natural resources of the State. Encouragement be given to the wider use of existing research facilities established to develop new industries in the State. The collection, compilation and distribution of factual data perti- nent to the welfare and development of the State be a function of the proposed State Planning Agency. Public Works It is recommended that : a. Studies be made to ascertain and formulate needed revisions or expansions of existing legislation pertaining to the financing of local public works projects; particular attention should be given to provisions relating to debt limitations, general obligation bonds, revenue bonds, special assessment bonds and to special public dis- tricts and their obligations. . The stimulation of comprehensive planning of local public works program, through the organization and development of local plan- ning bodies, and the coordination of such programs, be a function of the proposed State Planning Agency. Housing It is recommended that: 3. Studies and investigations looking toward a solution of sub-stan- dard housing problems be made. 142 b. A State Housing Commission be created. c. A basic state building code be formulated and adopted (Sec. 5 (d),) State and Local Zoning and Planning. State and Local Zoning and Planning It is recommended : a. With regard to local zoning and planning that: 1. 2 A broad, uniform, enabling act be provided to permit a munici- pality of any class, or a county, or any two or more municipali- ties and two or more counties, or any one or more municipalities and one or more counties to carry on planning and Zoning activi- ties within a designated area. . The activation of the provisions of Chapter 147, Ky. Revised Statutes be made a function of the proposed State Planning Agency. b. With regard to the protection of highways that: 1. The plan for the designation, development, regulation and pro- tection for a system of highways and parkways and areas abutting on them as required by Kentucky Revised Statute 147.080 be prepared. c. With regard to airport zoning that : 1. A state airport zoning enabling act be provided to empower the State, municipalities, counties or other political sub-divisions to promulgate, administer and enforce airport zoning regulations. . The jurisdiction of such an enabling act be placed with a state commission empowered to administer the act if the local govern- ment having jurisdiction over the area where the airport is located fails to act. d. With regard to building codes that: 1. 2. A complete investigation and study of the subject of building codes be undertaken at once. A standard basic building code for the State as a whole be adopted and enforced with the provision that any local govern- ment could enact a local code of equal or higher standards than those of the State code. . Revision committees be created to keep state and local codes current and up-to-date. - . Basic standards be created and enforced for all public and semi- public buildings for commercial and industrial buildings and. insofar as practicable, for residential structures. 143 €. With regard to public district that: 1. A study be made of the necessity for revising and expanding existing legislation for the creation and operation of road, sani- tary or other special purpose districts so that unincorporated communities may more readily supply their needs for such im- provements. Public Health It is recommended that: a. The remaining 16 counties now unorganized for health work should be encouraged to set up, through local initiative, full time health organizations designed to provide preventive health service for all the people. In addition, to improve the quality of service, the per capita expenditure for local health work will need to be raised gradually from 48% to $1.00. . The tuberculosis hospital construction program should be com- pleted as soon as possible and adequate financial provision should be made for the maintenance and operation of these institutions, if they are to render effective service. Likewise the case-finding pro- gram of health departments should be expanded to the end that all cases of tuberculosis may be found and placed under treatment early. More readily available facilities for the early diagnosis and treat- ment of cancer, the third leading cause of death, should be planned. . More attention should be given to the prevention and control of syphilis and gonorrhea. A more adequate program designed to prevent and correct physical defects in children and young people should be developed. Greater effort should be made to secure sanitary improvements, especially in the fields of water supply, sewage disposal facilities and the handling of food supplies. . A better program to protect the health of mothers and children should be planned. . More attention should be given to the special health problems, such as heart disease, associated with the aging of population. A Division of Medical and Related Services should be established in the State Department of Health to conduct a state-wide study of medical care problems and to recommend plans to meet the needs that are found to exist. 144 Summary Conclusion It is not the intent of this Committee to recommend the creation of a number of new, separate or independent agencies or commissions as an approach to the problems under consideration herein. Nevertheless, it must be recognized that there are a number of activities appropriate to the promotion of the orderly development of the State that are not now being prosecuted. Certain of these activities are of a character that makes them a proper function of State Government. In some instances, such as State and local planning, partial but usually inadequate steps have already been taken, while in others such as housing and building codes, action is still in the future. It is, therefore, emphasized that the principal recommendation of the Committee pertains to the creation and activation of a State Planning Agency having a permanent staff and reasonable financial support through a revision and expansion of Chapter 147, Kentucky Revised Statutes. The proposed agency would eliminate the necessity for special bodies such as the Advisory Planning Commission, the Advisory Tax Commission, the Kentucky Progress Commission, the Tuberculosis Sanitoria Commission, etc. It could carry on many of the studies and investigations recommended both herein and by other Committees of the Commission. This Committee contemplates an eacpansion of functions accompanied by a reduction of agencies through a revision of existing statutes to create proper facilities. SECTION III Part I PLANNING This section is developed from the report of the subject sub-committee; the members of the sub-committee are listed in the Introduction, Section I, Part 1. General: In the course of the meetings of the “Committee on the Coordination of Governmental Activities” and its sub-committees, it has become ap- parent that there is a need for a permanent and continuing state agency to initiate, encourage and coordinate public planning activities normally devolving upon state and local government. The fact that Kentucky currently does not have such an agency led to the Governor's appointment of the Kentucky Postwar Advisory Planning Commission to function 145 without staff or finances. This commission was created in an effort to cope with conditions directly attributable to the lack of state planning. It was, therefore, agreed that the sub-committee on Planning should prepare a report On— 1. The immediate establishment of a small paid staff to work under the direction of the Postwar Planning Advisory Commission; and The subsequent establishment of a permanent and continuing statutory agency of the state government to provide Sound plan- ning in Kentucky. The initial report of the sub-committee on Research and Coordination of Kindred Activities recommended in part “the establishing of a recog- nized agency for obtaining, compiling and publishing factual data of interest to industry and the general welfare of the State.” Discussion of this recommendation has led to its expansion to contemplate the im- mediate creation of a working group along the lines of the proposed Kentucky Economic Council as provided by Senate Bill No. 125 of the 1944 Regular Session of the General Assembly. (This bill was introduced by Representative Otis C. Thomas on February 17, 1944, but failed to reach the floor for a vote.) The general requirements of adequate state planning, including en- couragement and coordination of local planning activities, Services to local governments and to the state government proper and liaison with Federal government planning are suſficiently comprehensive to indicate a more extensive organization than that contemplated under the 1944 Senate Bill No. 125 and are outlined herein under the heading of “Pur- poses.” Inasmuch as this is a sub-committee of the Committee on the Co- Ordination of Governmental Activities (Federal, State, County and City), this report is concerned primarily with the functions of governmental agencies. 2 Planning and Postwar Planning: Since practically all planning at the present time is referred to as “Postwar Planning,” it is desirable to establish the relationship of post- war planning to planning in general. Postwar planning is in fact but One phase of good, Sound overall planning in that it should consist of the Selection from a long range plan of such actions and activities as are Suited to the meeting of social and economic problems that must be met following the war. Good postwar planning must be considered as a part of and Synonymous with good overall planning. Postwar planning is both “long range” and “short range” in char- acter. It must be short range in making specific provisions for programs 146 necessary to meet immediate postwar problems. It must be long range in providing complete and extended programs in each field of develop- ment, with sufficient flexibility to allow the total program, including the 'short range or first steps, to be unfolded over such a period of time as social and economic conditions may require. Since planning and postwar planning are essentially the same, this report is prepared in terms of planning only. Purposes and Objectives of State Planning : The State Planning Board, or similar agency, should be created by statute to perform the following general duties: 1. To collect and correlate information relating to-- a. The social and economic development of the State; b. The conservation of its human resources (the activities, develop- ment and progress of its people) ; c. The conservation of its natural resources (forests, mines, agri- culture, rivers, harbors, etc.) 2. To utilize results of research work done by other departments and institutions. 3. To carry on such other research as may be found necessary to supple- ment the research activities of other state departments. 4. To make such studies as the Governor or the General Assembly may direct. 5. To act as a clearing house for the collection and dissemination of in- formation pertaining to planning matters. 6. To encourage and aid the organization of local and intra-state regional planning boards. 7. To cooperate with county, city, town and regional planning boards, Federal planning agencies and other state planning boards and com- missions for the purpose of aiding and encouraging an orderly and coordinated development of the state. 8. To advise with the various state departments, bureaus and institutions with a view to the coordination of all development plans that are related to an orderly and comprehensive development of the state. These duties can be summarized and consolidated into four basic functions: 1. To keep current all basic information necessary to assist the various State and local authorities in planning and developing their specific programs. 147 2. To stimulate, coordinate and supplement the planning activities of public agencies and institutions and to cooperate in activating its programs through the appropriate agencies 3. To encourage and aid the organization of local planning agencies and of intra-state regional planning agencies. 4. Initiate the bringing of attention of state and local authorities to such of its findings and recommendations as affect social and economic problems; to develop statewide programs and to assist the various state and local authorities in adapting such programs to their specific needs. The proposed State Planning Board is in effect a service agency for all of the various branches of state and local government; it is an agency that should be charged with cooperative and coordinated planning lead- ing to initiation by established authority of specific programs related to the state's orderly and comprehensive future development. The State Planning Agency should not do work which falls within the province of any eacisting state department or which can be accomplished with the personnel of an eacisting state department. Its true purpose is to collect and disseminate general information, to fill in gaps in existing data and to make studies, investigations and recommendations of general problems which do not fall within the province of any single or existing department. The accompanying chart shows these functions and relations. Organization: An Agency such as that outlined in the preceding section requires: 1. General Direction in Matters of Policy This can best be accomplished by a non-partisan board of 14 members appointed by the Governor; 6 members to be selected from responsible officials in major state agencies and the balance to be chosen from citizens of the state representing such interests as local government, industry, agriculture and labor. The items of service of the Public or Citizen members should be so staggered that not more than two would expire in any one year; State Government Members would be subject to change with changes in Administration. The Board would Select its officers from among its members. While the board should be permitted to organize to carry on its general Supervisory and policy determining functions as it sees fit, One feasible method is the division of the Board into committees such as general improvement (health, education, welfare and related activi- ties), agriculture, industry, public works and tourist and recreation. 148 2. Performance and Ea:ecution of Work This requires the employment of a working staff which should be under the executive administration of a full-time paid director selected by and responsible to the board. The executive director's staff should be comprised of sufficient technical and professional personnel, to- gether with stenographic and clerical assistance, to carry on the func- tions of the agency. The staff should include, in addition to the Director, at least one qualified employee in each of the fields of general welfare, industry, agriculture, public works and conservation. The accompanying chart presents an outline of such an organization. Cost: It is estimated that the functions of a state planning agency such as that outlined herein could be carried on in a competent manner and on a continuing basis at an approximate annual cost of $75,000. This annual cost can be sub-divided as follows: Director .................................... $ 5,000 Technical and Professional ſº @ $3500-$45000, avg. $4000 Personnel ............................ 42,000 ($20,000–10 @ $1800–$3000- Secretarial, Stenographic and lavg. $2200, $22,000 - 1 @ $2000 $2000 Clerical … 10,000 |. @ $1200–$1800-Avg. $1600–$5000 Travel Expense ...................... 9,000 Printing .................................... 5,000 Office Expense, Supplies, etc... 4,000 Conclusions and Recommendations: As evidenced by the necessity for the creation of the Kentucky Post- War Advisory Planning Commission and by the problems being experi- enced by that Commission, there is a real need for the creation of a permanent and continuing statutory state planning agency in the Ken- tucky State government. If Kentucky had had such an agency organized at Some prior date and continued in operation to the present time, the State would not now be confronted with the emergency conditions which have resulted in the creation of the Post-war Advisory Planning Com- mission, the Committee for Kentucky and the Kentucky Development Association in a hurried and difficult attempt to accomplish limited phases of essential overall planning. The characteristics (physical, social and economic) of our neighbor- ing States of Tennessee and Virginia are very similar to those of Ken- tucky. Both of these States have been successful in creating and main- taining state planning agencies that might well serve as models for Kentucky. 149 Chapter 147 of the Kentucky Revised Statutes presents an excellent exposition of the scope of a State Planning Agency, but fails to imple- ment or activate its functions with the result that State Planning in Kentucky has been in abeyance since 1936. Legislative revision and expansion of the provisions of this Chapter could be made to create and activate a planning agency, as herein outlined. Legislative action establishing a State Planning Agency should con- sist of a review and revision of existing Statutes (KRS 147.010 et seq) on State Planning functions and the creation of local county, municipal and regional planning bodies, provision should be made for participation in regional planning for areas lying only partially within the State. It is the sub-committee’s recommendation that appropriate action be taken to insure the introduction and to encourage the passage of legis- lation establishing a permanent and continuing state planning agency at the earliest feasible time, but not later than the 1946 Session of the General Assembly and that in the meantime some temporary arrange- ment be made to create the nucleus of a paid planning staff to function under the direction of the Post-War Advisory Planning Commission. SECTION III Paº’t 2 RESEARCH AND COORDINATION OF KINDRED ACTIVITIES This section is developed from the report of the subject sub-commit- tee. The members of the sub-committee are listed in the Introduction, Section I, Part 1. General The word “research” has a wide range of meaning to people in the various walks of life. This committee has chosen to use the word in two Se]].SéS : 1. To represent the assembling of data which may or may not have Scientific research as a background. 2. The discovery and development of new processes or the recondition- ing and adjustment of known methods for proving the economic value in a particular case. It is recognized that a great deal of thought has been given to this subject in the past, much of which will form the background for the present forward movement to do something for the general improvement of Kentucky both as an immediate post-war program and as a long range plan for state development. 150 The committee is not in position to furnish factual data and will, therefore, confine its work to that of recommendations. The state has, in the past, had some experience with promotional agencies; and yet, after a good many years, we find ourselves listed near the bottom on all points except natural resources. A new organization known as the Kentucky Development Association, sponsored by the Kentucky Junior Chamber of Commerce, has recently been incorporated. This, when established, will be a nonpartisan per- manent corporation organized to serve Kentucky's business interests. It will be independent of any group and has for its purposes, to promote Kentucky interests, to reverse the declining population trend, to develop rural sections, to promote research and resources, to collect and publish factual data, and to raise the standard of education in the state. The committee recommends that a study be made for the purpose of obtaining such factual data as may apply to Kentucky from the following agencies: . 1. Federal Bureau of Mines United States Geological Survey Tennessee Valley Authority Department of Agriculture Department of Labor Solid Fuels Administration Petroleum Administration War Labor Board Interstate Commerce Commission 2. State a. University of Kentucky b. Department of Highways c. Department of Mines and Minerals d. Forestry Department € f g Department of Labor and Statistics Conservation Department State Department of Health 3. Municipal - a. Speed Scientific School, University of Louisville b. Louisville Area Development Association c. Any other city or area associations now in existence or which might be promoted 4. Private Agencies 151 Governmental Support of Research Scientific research may be carried on by a state, federal or municipally supported agency or by private industry. In order to accomplish the desired results, it is important that the state and municipal governments take the initiative and lay the ground work upon which industry may build. First hand information as to quantity, quality, availability, and economical methods of processing raw materials make a strong appeal to investors. - The real wealth of an area is in the “value added by manufacture” to the raw materials of that area. This value added by manufacture is made up of wages and salaries, taxes, fixed costs on capital invested, costs of containers (packaging), and profit. The benefits to a state or locality from industry are made up of wages and salaries, taxes, fixed costs, and profits. Wages, salaries, and taxes are direct benefits to the people of a state, increasing the standard of living and raising the level of the public services available. They do not, however, contribute to the stable wealth of a state. This last item is reflected in fixed costs (interest and amortiza- tion) and profit. This is the increment of the “value added by manu- facture” that is available as re-investment money which may be placed back into the state’s industries. If the industries of a state are financed within a state, the returns from the labor of its people are more likely to be re-invested in the state. It is, therefore, a function of state and local government to utilize Some Small part of tax funds in an effort to encourage the development of industry with state earned capital. Research is the only means by which the state government can develop the facts upon which it can build from within. Engineering Experiment Stations All states adjoining Kentucky and a total of some thirty states now Support engineering experiment stations as a part of the program of their Land Grant Colleges and Universities; some states support more than one institution. In general, it is the purpose of state supported Engineering Experi- ment Stations: 1. To organize, initiate, and promote the engineering research of special interest to the state. 2. To aid and consult industry with its research problems. 3. To promote the conservation and utilization of the state's resources. 4. To provide support for research training in the fundamental and ap- plied sciences. 152 The University of Kentucky operates under the Federal act which created the Land Grant Colleges. In the past few years, some effort has been made to establish an Engineering Experiment Station and in 1943 the Board of Trustees ordered the organization of a Bureau of Engineer- ing Research and Development, but did not provide full support for its operation. In addition to the regular laboratories in civil, electrical, and mechanical engineering, there are five special laboratories which in some cases may be considered as pilot plants: The Aeronautical Research Laboratory The Highway Research Laboratory The Ore Dressing Research Laboratory The Coal Research Laboratory The Metallurgical Research Laboratory : State supported research laboratories usually confine themselves to: 1. Problems concerning industry, natural resources, and public welfare, which when solved will be for the benefit of the state as a whole. Any data of value are then put in the form of bulletins for distribution. 2. Projects proposed by individuals or corporations and intended for their direct benefit. This type of research or investigation is usually paid for in full by the parties contracting for the service and such reports as may be made on the project become their property. In this way, the Station becomes at least partly self-sustaining. At the present time there is much work that needs to be done on Kentucky’s natural resources. As shown in a report from the U. S. Bureau of Mines, dated October, 1944, Kentucky ranks eighth in mineral output, with coal at the top of the list. Fields of Research There follows a partial list of research problems in progress, or con- templated, at the University of Kentucky; all are of general interest and should be pushed to conclusion in the very near future: 1. Coal Processing A twenty-five ton per day pilot plant or original design is almost com- plete. The preliminary research upon which the construction of this plant was based has been carried over a period of more than twenty years. In this laboratory coal will be treated at a relatively low temperature for the primary object of producing an easily ignited, free burning, solid, smokeless fuel. Various by-products will also be produced and some of these may prove of more value than the solid fuel. Among the more im- portant by-products are high octane motor fuels, lubricating oils, bases for explosives (toluol and xylol), bases for plastics and all the various 153 products obtained from coal tars. The plans for the immediate future call for the production of the smokeless fuel and raw by-products materials. A number of auxiliary research problems will be presented in relation to the treatment of these latter and many of them should be pursued. This plant will also be utilized for the processing of carbonaceous shales, sul- phides, and other minerals. 2. Coal Cleaning and Preparation The results of work on these problems would be very beneficial to the coal industry. Equipment to carry on work of this type is available in the Ore Dressing Laboratory. 3. Central Kentucky Lead, Zinc, Barite, Calcite, Fluorspar Veins A large amount of preliminary work has been done which indicates the potential value of these deposits. However, the extent of the veins in the area and depth must be more fully determined and their ore dress- ing treatment completely worked out before capital can be interested in their development. The possibility of the commercial recovery of strontium from barite should also be investigated. 4. Iron Ore Deposits of Kentucky These occur in both the western and eastern portions of the state. The western deposits are contiguous to the Kentucky Dam area and cheap power; work should be done on the electric smelting of these ores. The equipment for research of this type is available in pilot plant size in the Metallurgical Research Laboratory. Field work is also necessary to determine the extent and value of the deposits. 5. Black Devonian (Oil) Shales Kentucky contains millions of tons of oil shales amenable to open cut mining. Much preliminary work has been done on determining the ex- tent and potential value of the deposits. Further research on the pro- cessing of the shales is planned for the Coal Research Laboratory but a Comprehensive program of field prospecting and sampling should also be undertaken. 6. High Alumina Clays There are many clays in various sections of Kentucky which are high enough in alumina content to make them interesting as a source of aluminum. Some work has been done on this problem and equipment is available to carry on further research. 7. Igneous Dykes A little work has been done on the investigation of some of the few igneous dykes found in eastern Kentucky. This work indicates that further investigation is warranted. - 154 8. Other Mineral Resources There are many other mineral resources in Kentucky of which little is known. Many of these warrant investigation in order to determine extent of deposits, economic utilization, and possible processing and treat- ment techniques. Among these resources should be mentioned clays in general, rock asphalt, building stone, and glass sands. Finances and Facilities Funds for the prosecution of the work of the Coal Research Labora- tory have been provided by direct Legislative appropriation augmented by the University. Additional funds will be needed to put this Laboratory in full operation. The Highway Research Laboratory is supported by the State Highway Department. The Aeronautical Research Laboratory is operated by contractual research projects in the interest of the air- craft industry and is largely self-supporting. Unfortunately no funds are available for work in the other laboratories, however, in some cases projects are undertaken for industry in which they pay all of the cost. The committee recommends that the facilities at the University of Kentucky be organized into an Engineering Experiment Station with a staff and funds sufficient to coordinate and carry on the research work So urgently needed in Kentucky. The University of Louisville has established the University of Louis- ville Institute of Industrial Research, a non-profit corporation affiliated with the Speed Scientific School. The Institute is engaged in contract industrial research for private industry and governmental agencies. Its purpose is to provide the facilities and staff to those industries and public agencies whose financial structures do not permit the maintenance of research staffs and laboratories - The Institute’s primary objective is to assist in the development of the industries within the state and to perform the function of a research division for any manufacturing company or public agency requiring its Services. In this manner, the large overhead inherent in the maintenance of research departments in industry is divided among its clients, making it possible to provide the manufacturing companies and public agencies with Scientific and technical research at a cost commensurate with their abilities to pay. The work of this Institute is available to public as well as private interests, and it together with the proposed Engineering Experiment Station of the University of Kentucky should provide unusual oppor- tunities for the advancement of the state’s economy. 155 Recommendations To sum up the recommendations of the committee: 1. Establish a recognized agency for obtaining, compiling, and publish- ing factual data of interest to industry and the general welfare of the state. 2. Organize a state supported Engineering Experiment Station for scientific research looking to the development of the state's natural I'êSOUII*CeS. 3. Encouragement of the wide use of the research facilities already estab- lished for the purpose of developing new industries within the state. SECTION III Pa'rt 3 PUBLIC WORKS This section is developed from the report of the subject sub-commit- tee; the members of the sub-committee are listed in the Introduction, Section I, Part 1. General: The construction industry during normal times is recognized as being the second largest industry in the nation as a whole and contributes ap- proximately twelve per cent of our total national income. The income from private construction constitutes approximately two-thirds of this total with the remaining one-third provided by construction of public improvements. Based on an anticipated national income after the war of $150 Billion a year, it is obvious that, even under normal conditions, at least $6 Billion must be expended each year for improvements of pub- lic properties and facilities if the construction industry is to be main- tained at the normal level, employment opportunities are to be provided for those who engage in construction activities, and a sound national economy is to be assured. Statistics showing the importance of the construction industry in relation to the total income for Kentucky are not readily available; since Kentucky is predominantly agricultural with industry presently confined to certain well defined localities, it is the belief of this committee that normal expenditures for public works in Kentucky constitute at least one- half of the total expended for all construction purposes. Need For Planning: In order to assure an orderly and worthwhile program of public works projects for execution as soon as labor and materials for such activities 156 are once more available, it is necessary that plans and Specifications be ready, land, rights of way, etc. be acquired, and that arrangements be made for the financing of construction costs. By the medium of advance planning on the part of State and local governmental agencies, we can hope to avert a situation similar to that which occurred during the early 1930’s when our lack of foresight and planning resulted in such tre- mendous waste of manpower, tax money and natural resources. The committee recognizes the importance of advance planning for public works and for that reason its activities have been directed to (1) ascertaining the current status of such planning in Kentucky, (2) analyz- ing the program in its present state of development, and (3) making recommendations. Status of Planning: The information given in the following summary indicates the extent of planning for public works projects accomplished to date by state, county, and municipal agencies. In general, projects to be constructed under Federal Government jurisdiction (flood control, navigation, etc.,) with Federal monies are not included since data on such projects is not readily available. Four tables in Appendix I show in detail the sources from which the above summary was compiled. Analysis of these data reveals that only a few communities have plans and specifications ready for immediate use, and that the projects included in such category provide only a small percentage of the expenditure estimated to be necessary during the first postwar year. It is realized that available data represent the program of only a portion of our county and municipal units. Limited time and facilities have made it impossible to obtain responses from many such local units. It is assumed that communities which failed to provide data relative to their proposed programs have not yet formulated plans even to the “idea” stage. It is apparent also that the volume of public works would be substantially increased and planning further advanced if it were known at this time whether Federal or State assistance will be available to assist in the cost of construction. Recommendations: It is not the intention of this committee to recommend the types of public works that should be provided since all public improvements should be designed and constructed to fulfill specific local needs. We do believe, however, that projects affecting health and sanitation, education, and transportation should be given prior consideration in the formulation and development of public works programs. 157 No. of Stage of Planning Projs. Class I Complete Plans 253 Class II Preliminary ...... 728 Class III Idea Stage ........ 2,357 Totals .................... 3,338 Revised May 2, 1945 STATUS OF PUBLIC WORKS PLANNING Est. COS't Including Land OOst $ 13,597,494 94,726,043 216,458,795 $324,782,332 Funds On H (Lºnd Or Arranged $10,511,516 59,805,734 4,783,800 $75,101,050 Probable Source of Funds Not on Hand Nor Arranged for Asses SºmeºnţS $ 223,938 16,512,616 3,003,365 $19,739,919 BOnds $ 940,000 1,403,699 87,897,813 $90,241,512 Other Sources $ 1,922,040 17,003,994 120,773,817 $139,699,851 à The recommendations of the committee are that: 1. A State Economic Council or similar body be established at the State level with legal status to— a. Stimulate comprehensive planning of public works projects in local communities by assisting in the organization, development and functioning of local or area planning committees. b. Coordinate local or area programs of proposed public works projects. 2. Studies be made with a view to any needed revision or expansion of existing legislation pertaining to the financing of local public works projects; particular attention should be given to Statutes on debt limitations, general obligation bonds, revenue bonds, special assess- ment bonds, and to special purpose districts and their obligations. 3. A comprehensive state building code be adopted. The Committee acknowledges data used in compilation of this report from the following sources: Federal Works Agency Kentucky Municipal League American Society of Civil Engineers Kentucky Society of Professional Engineers Committee for Economic Development Kentucky Aeronautics Commission Portland Cement Association State Department of Highways State Engineering and Construction Division State Department of Education Other public and private agencies Groups and individuals. SECTION III Paſrt A. HOUSING This section is developed from the report of the subject sub-commit- tee; the members of the sub-committee are listed in the Introduction, Section I, Part 1. The subject of a State Building Code had the joint consideration of this sub-committee and that on Zoning and Planning. The considerations of this committee have been in two parts Housing and a State Building Code. This report will treat first of Housing. 159 General: Housing The committee has limited the term “Housing” to the meaning of proper permanent shelter for families and has restricted its studies to that group of dwelling units considered unfit for beneficial human habita- tion. It is realized that houses meeting the requirements of health, safety and moral development need no consideration from the state except com- mendation. However, those dwelling units generally classed as “sub-standard” most certainly are of concern to all of the citizens of the State. No State can gain nor maintain a healthy condition nor a sound economy if large numbers of its citizens long continue to live in circumstances that afford no Sanitary facilities, that are unsafe against wind and rain and inadequate against cold. These are but creature considerations and do not lead to moral protection. Concern with creature welfare only is not enough for the spiritual and the cultural development of a people. Homes hidden in physical ugliness, smoke or neighboring buildings Screening out Sunshine and fresh air, space too small for decency—all are handicaps to human development which too often prove stronger than the desire for improvement. Yes, it is the concern of all the citizens of a state if a large number of the state's people live in improper homes Crime is a most infectuous social disease. By far the greater part of crime is born in families living in poor housing. All contagious diseases feed rapidly on areas of poor housing. All areas of poor hous- ing cost their communities more in dollars for community services than those areas pay in taxes. Though it is seldom realized communities sub- Sidize their slums. If those slums did not exist those community subsidies could be used to lessen the state wide burden of equalization funds. Thus the State financially supports community slums. Housing Standards: Standards for proper dwelling units are, of course, influenced by stan- dards for living and have changed with history and the evolution of mankind. However, all thinking people will recognize certain minimum 'standards necessary to the health or development or even the life of humans. Your committee has, in its consideration, adopted the following as minimum standards for proper dwelling units. 1. The structure must be safe against wind, rain and fire in accordance with standards of modern construction. 160 2. The dwelling unit must be large enough to provide adequate Space for the family using it. This area is assumed at 150 Square feet per person. The unit must be so divided into spaces so that the members of the family can live in decent privacy with boys and girls over six years of age having separate sleeping rooms. 3. The dwelling unit must have adequate inside Sanitary facilities. 4. The dwelling unit must have heating equipment adequate to maintain a temperature of 65 degrees throughout the unit at all times. 5. Each dwelling unit must be so arranged and constructed of Such materials that it can be maintained easily in a condition of cleanliness and pleasing appearance. 6. Each dwelling unit must have enough windows for ample Sunshine and fresh air. 7. Each dwelling unit must have ample ground area so that neighboring buildings will not screen out sunshine and fresh air. 8. No dwelling unit should be in a zone producing excessive Smoke or "other malodorant gases. Inadequate Dwellings: With these broad generalizations as measuring sticks your committee is of the opinion, from studies of 1940 census figures and other surveys, that approximately 177,000 non-farm dwelling units in Kentucky, or even 40% of the total do not meet the standards for proper living. Truly, this condition is appalling. It becomes a matter of the gravest concern when we couple this figure of 177,000 sub-standard dwelling units with a figure of 200,000 families who, in the opinion of the committee, were unable to pay rents which would procure standard houses in which to live. Many communities in the State already realize the seriousness of this problem and are now engaged in programs designed to help these con- ditions. However, this whole problem is of such state-wide importance, the philosophy is so new and the projected programs so untried that no brief study of a committee can discover the best permanent cure. Further studies should be made. Accurate investigations should be pursued to determine exact conditions of all housing in the state and to discover true rent paying abilities of all families now living in sub- standard housing. The possibilities and the benefits and disadvantages of the several means of gaining standard housing should be carefully studied. Should or can this housing be provided by private capital and if so should or can it be procured by education and persuasion or by law and ordinance? Should the local community provide all or a part of the cost or should 161 this financial burden be borne by the state either partly or wholly or should the Federal Government provide the financing 2 These questions cannot be answered without further study. . It is, however, the unanimous opinion of all the members of the com- mittee that proper housing should be provided as far as possible by means of private interests with Government helping in only those cases utterly impossible of solution by private interests Recommendation: Your committee does recommend a continuance of the studies. Your committee recommends the creation by the State of a Kentucky State Housing Commission with powers and sufficient financial support So that it can aid local communities in the study and solution of their sub-standard housing problems. The structure of such a commission, the extent of its powers, the amount and the kind of aid it should give communities can only be determined from further study. STATE BUILDING CODE The second part of this report considers the question of a state-wide Building Code. Purposes: The purposes of such a code are: a. To establish maximum public safety throughout the State at minimum building costs in consideration of protection of life and property and the protection of health by providing minimum regulations for: Structural Stability, safety from Fire Hazards, Proper Light, Ventila- tion and Sanitation, and to reduce insurance penalties. b. To improve appearance in construction of architectural and engineer- ing design. c. To educate the people of Kentucky in technological advantages through the use of new materials and to make available to the people of Ken- tucky the findings of recent research In the development of a State Building Code by the authorities of the State of Kentucky, it is pointed out that steps should be taken to: a. Guard against constitutional encroachment & b. More fully determine the probable cost of the writing and enactment of such a code. c. Determine ways and means with which to enforce a code on a sound, economical basis. 162 Type of Code: A State-wide building code, if enacted, should be so formed that it will supplement: a. Present City codes in force. Rules and regulations of the State Fire Marshal on public buildings. Present regulations of the Department of Education. Rules and regulations of the State Board of Health. Other Governmental regulations which may exist in the State of Ken- tucky. : It is the opinion of this sub-committee that a building code for the State of Kentucky should be coordinated with adequate Zoning Regula- tions as recommended by the committee on State, County and City Zoning and Planning. Enforcement: The question of enforcement, as hereinbefore referred to, will require further study and perhaps cannot be answered until the extent of the building code and zoning regulations have been definitely set up. It is quite obvious that such a proposed code should provide for cer- tain penalties where violations may occur. This provision should be included in the State Building Council. Formulation of Code: This sub-committee has been in contact with the Director of the Southern Building Codes Congress, Birmingham, Alabama, and with the committee formulating the codifying agency for the State of Indiana. The State of Indiana has recently completed organization of an ad- ministrative building council and has written a State Building Code. The Indiana code was written by means of the following organization— The Governor appointed an advisory committee consisting of : Three Architects Three Engineers Three Contractors Three Members of the Building Trades. This committee met weekly during the preparation of the building code. They were paid on a per diem basis and were reimbursed their eXpenSeS. The coordination of all the work of preparing the code was done by an executive Secretary who was employed at a lump sum of $2,000.00 for part time work. This status was changed later to full time and the secre- tary was paid approximately $3,000.00. 163 The sum of $5,000.00 was appropriated to pay for the work of prepar- ing and printing the code. The printing was done through Purdue Uni- versity and so the costs were kept at a minimum. The building code of the State of Indiana applies to all cities and towns and covers all building operations excepting farm structures and one or two family dwelling units. The building code is administered by an Administrative Building Council. This Council is composed of the secretary of the State Board of Health, the State Fire Marshal and the Secretary of the Labor Board of Indiana. The work of administering the code is carried out through an execu- tive secretary with a salary provision of $5,200.00 a year. The executive Secretary will set up his office and field force There has been appropriated for the administration of the State Build- ing Code the sum of $13,500 for each of the next two years. Indiana now has some twenty-five persons employed as field inspectors in the various offices such as the State Fire Marshal’s office, the State Board of Health office, etc. These persons together with new field employees of the Administrative Building Council will do the “policing” necessary to enforce the Indiana State Building Code. The law places additional responsibility for enforcing the code on the various city officials throughout the State and provides a penalty of a fine of $10,000 for willful disregard of provisions of the code. Your committee is of the opinion that by using the Southern Code, which is now in the process of completion, and which will be available to the State of Kentucky at a very small not yet determined cost, and the Indiana Code, the cost of writing and printing of the State Code should not exceed : a. Correlating and setting up Code................................................ $ 3,000.00 b. Publishing cost (5000 copies @ $2.00) .................................... 10,000.00 While this sub-committee is of the opinion that the adoption of the State Building Code together with Zoning Regulations is sound in prin- cipal, we believe that further investigation should be made as to the method of preparation and the type of code most advantageous to Ken- tucky. When finally adopted, the rules and regulations in the code should be concise and generally limited to true safety minima. Recommendations: This sub-committee recommends legislation providing for: a. An appropriation in the sum of $13,000 (or an amount later deter- mined). 164 b. The appointment by the Governor of a Building Code Council con- sisting of representatives from the various sections of the State, the State Department of Education, the State Board of Health, the State Fire Marshal, the Welfare Commission and the Building Inspection Departments of those cities now having such departments. This Council should have an executive committee composed of: One Zoning Official One Architect One Consulting Engineer One Building Inspector This Executive Committee together with a technician for editing and correlating the code is to prepare the code. c. Compensation for the Building Code Council should be on the basis of a minimum per diem, plus out-of-pocket expense. d. A lump-sum commission or a full time salary should be provided as compensation for the technician for the editing and correlating of the code. e. The responsibility should rest with the technician as above referred to for complete service for the editing and correlating of the code and the Building Council should act only in an advisory capacity. Summary Recommendation: To summarize, this committee reports that it has given consideration to the two problems of Housing and a State Building Code. It recom- mends the creation by the State of a Kentucky State Housing Commis- Sion and a Kentucky State Building Code Council. SECTION III P07’t 5 STATE, COUNTY AND MUNICIPAL ZONING AND PLANNING This section is developed from the report of the subject sub-commit- tee. The members of the sub-committee are listed in the introduction, Section I, Part 1. The subject of Building Codes was considered jointly with the Hous- ing Sub-Committee. It is included herein but is covered more fully in the section on Housing. General: The war has caused a great movement of the population of Kentucky, particularly from the rural sections and smaller communities into the 165 armed forces and into the centers of war production located both within and outside of the state. Many communities have grown while others have lost in wealth and population. Many of those who left the state will not return, while others who have come here will remain. The natural resources of the state have been seriously depleted for the production of war materials, and will not be returned. Immediately after the close of hostilities, Kentucky will experience a critical period of transition from an abnormal wartime economy to that of normalcy. Wartime restrictions on normal business and building activity, higher income for a greater number of people, forced savings and increased demand for goods and Services, a shortage of housing, and industrial and commercial buildings, equipment and materials, all of these point to a period of unprecedented activity at the close of the war. We must prepare now to keep the gains which have been made and provide for the best future use of our human and natural resources and for the promotion of the prosperity, health, and welfare of our State. I. LOCAL COMMUNITY PLANNING AND ZONING Status: The locations of most of the cities of Kentucky were determined by the existence of a natural resource, condition or facility. These com- munities grew with little planning being done to guide their orderly growth or to provide the best arrangement of facilities for industry, business and residence. Adequate facilities for the promotion of the health, sanita- tion, Safety, transportation, education, recreation, and appearances of the communities have not been fully provided for in the past. Very few communities in the State have taken advantage of the exist- ing planning and zoning legislation provided for them in the Statutes. The larger cities have enacted planning and zoning legislation, while the Smaller communities have grown without planning or regulation. Existing Legislation: Statutes applicable to various classes of cities and communities are as follows: KRS 100.030 - 100.098–Cities of the First Class and Counties containing them, KRS 100.320 - 100.490—Cities of the Second Class and Territory surrounding them, * KRS 100.500 - 100.830–Cities of the Third to Sixth Classes, KRS 147.130 - 147.180—Provides that any city of the Third to Sixth Class or any county or any one hundred 166 citizens may petition the Governor to establish a region for planning purposes, KRS 147.070 authorizes the Governor's Cabinet to pre- pare and adopt plans and complete systems of state and regional highways, expressways, parkways, parks, water supply, forest reservations, airways, and air terminals, and other things of significance in furthering a well bal- anced development of the State, and the Cabinet is em- powered as is necessary to promote State Planning to enable it to carry out such purposes There is sufficient existing legislation to enable any city or community to engage in planning and zoning activities. However, each of these acts, while similar in intent and purpose, are quite different in detail with reference to organization, procedure, administration, and enforcement. Without encouragement and assistance from the State government, it is probable that the smaller communities will not engage in local planning and Zoning activities. Recommendations: The Committee recommends that a broad, uniform enabling act be intro- duced and passed by legislature to provide that: 1. Any single city of any class, or any single county, or any two or more cities or two or more counties, or any one or more cities and one or more counties may enter into an agreement to designate an area for planning and zoning purposes to create or jointly create a planning and Zoning commission and board of zoning adjustment and appeals to prepare for adoption for the area so designated, a comprehensive plan and regulations necessary to carry out such plan. All necessary agreements, methods of financing, membership and terms of office of the Commission and Board, the area to be regulated, the enforcement and administration should be determined by the local communities (or participants, if such is a joint arrangement) for planning and zoning activities. Such act should outline the board intents, purposes, functions, and duties of the commission and board according to the best and most modern planning principles, policies and procedures. Such act should provide for the orderly and economic development of the community including such things as Sanitation, streets and highways, viaducts, bridges, waterways, water fronts, parkways, and other public ways, play grounds, parks, reserva- tions, airports, buildings, public utilities, terminals, transportation facili- ties, water, light, power and communication lines, urban and rural land use programs and regulations and subdivision control. 167 The Committee also recommends that under the powers granted to the Governor’s Cabinet, that a non-political State Planning Board or Commission with a fully qualified staff be established and be permanently maintained whose function and duty it would be (1) to encourage and assist communities to prepare, adopt and enforce local community plans, and (2) to actively engage in all of the other functions for state wide planning as set out in KRS 147.070 – 147.120. II. PROTECTION OF THE HIGHWAYS General: The State of Kentucky has spent many millions of dollars in provid- ing a system of state highways for the transportation of persons and goods and to give access to abutting property. Much time and thought has been given to plan and build these highways and to improve their safety, speed, comfort and directness. With no control of the use and development of property abutting upon such highways in many locations, their effectiveness, usefulness, safety, and appearance has been unduly damaged. Adequate protection must be given if our highways are to perform their primary functions. Many other states have enacted legis- lation for the protection of the highways by controlling the development of abutting property, and the courts have sustained the rights of the state or local community to regulate the use and development of property abutting the highways. KRS 147.080 provides that the Governor’s Cabinet shall prepare and submit to the General Assembly for adoption, plans for a system of state highways and parkways together with regulations essential to the pro- motion of an appropriate, orderly and coordinated development of lands adjacent to highways and parkways. The plans and regulations shall be designed to promote the health, safety, and general welfare; to facilitate the movement of through traffic; to accommodate local traffic, cross traffic and traffic to and from abutting frontages; to establish front yard and Set-back lines along abutting frontages; to regulate the location of filling stations, garages, lunch stands, outdoor advertising signs and other uses of property along the adjacent frontages; to regulate the subdivision of land adjacent to these highways and parkways; and to conserve scenic and historic places and the natural beauty of the countryside. The plans and regulations may be adjusted to the varying conditions throughout the State and to the character of existing official plans and regulations in force in any county or city. Before approving the plans and regula- tions for submission to the General Assembly, the Governor's Cabinet shall hold a public hearing thereon. The plans and regulations when approved by the General Assembly shall be known as the Official State Highway Plan. 168 Recommendations: The Committee recommends that the Governor’s Cabinet, the State Highway Department, and the State Planning Board or Commission (as recommended above) and the existing local planning and zoning agencies begin work immediately upon such Official State Highway Plan and the enforcement thereof. III. AIRPORT ZONING General: At the close of the present war, aviation will become one of the more important modes of transportation of persons and goods. Kentucky must keep abreast with the rest of the nation in providing facilities for this growing industry to serve and promote the prosperity and well being Of the State. Much federal legislation is now pending regarding the future of avia- tion. Planning is now being done for the future of aviation on a national and international scale. In order that the State may benefit by such national legislation and planning and to receive assistance from the federal government and to protect and encourage aviation within the State, cer- tain state legislation must be enacted. Among such is the need for a State Enabling Act for Airport Zoning. Recommendations: The Committee recommends that a State Airport Zoning Enabling Act be introduced and passed by the earliest called or regular session of the General Assembly to empower the State, cities, counties, or other political subdivisions to promulgate, administer and enforce airport Zoning regulations limiting the height of structures and objects of natural growth, and otherwise regulate the use of property in the vicinity of airports and to acquire by purchase, grant, or condemnation, air rights and other interests in land; to provide penalties and remedies for violating such act or any ordinance or regulation made under the authority of such act. In order to provide for the enforcement of the intents of such act, it is recommended that the jurisdiction be fixed in a state commission with provisions that it could administer the act if the local community, wherein or near to which an airport is located, fails to act or makes impossible the effectiveness of such law. IV. BUILDING CODES Need for Codes: With the anticipated great volume of building activity following the close of the present war, it will be necessary that legislation be enacted to set up standards of building construction to protect the health, Safety 169 and general welfare of the citizens of the State of Kentucky. Zoning ordinances alone, without an accompanying building code are often in- effective. With the exception of building codes existing in some of the cities of the State, inspection services rendered by the State Board of Health for the installation of plumbing in certain localities, and fire pro- tection inspection, the State of Kentucky is seriously lacking in any laws regulating the construction or occupancy of buildings. In cities where building codes are now existing the control is generally limited to the corporate boundaries of such cities. Such control is inadequate since, generally, most of the new development is taking place outside of the corporate limits of the city. Sub-standard and unsafe buildings are being erected, used and occupied without adequate control and inspection. The task of keeping a building code up to date is difficult. Most building codes now in effect are antiquated and are causing higher building costs, in- adequate protection and the discouragement of the use of new and im- proved methods and materials in the construction of buildings. Buildings of public assembly, both public and private, are now being erected which are menaces to the health, safety and life of those who enter them. Recommendations: The Committee recommends that a complete investigation and study On the subject of building codes be immediately undertaken, and, if neces- Sary, legislation be adopted to make this possible. There should be a standard basic building code adopted and enforced for the State at large which could be augmented, added to by any city or community desiring to enact a local code of equal or higher standards as those set up by the State Building Code. Permanent revision committees, both for the State and local com- munities, be established to keep such codes fluid and up to date so that newly developed methods and materials can be used in the construction of buildings, to promote the health and safety of people who enter and reside therein and to keep building costs down. Basic standards should be set up and enforced for all public and Semipublic buildings, places of assembly, commercial and industrial build- ings and for residential structures as far as is practicable. W. ROAD, WATER AND SANITARY DISTRICTS The Committee recommends that a legislative committee be appointed and authorized to review and recommend on necessary or desirable amendments to existing legislation for the creation and functioning of road, water and sanitary districts, so that groups of citizens or com- munities can more readily take advantage of such legislation for the installation of improvements provided by such legislation. 170 SECTION III Part 6 PUBLIC HEALTH This section constitutes the report of the subject sub-committee. The members of the sub-committee are listed in the Introduction, Section I, Part 1. General: Kentucky’s greatest resource is its people. The protection of the health of its citizens is a primary duty of the Commonwealth. Kentucky has made great progress in the public health field in the last quarter of a century. The tuberculosis death rate has been cut in half. Deaths of mothers and infants and deaths from diarrhoea and dysentery have been likewise cut in half. The diphtheria death rate is only one-tenth, and the typhoid rate is only one-fifteenth the previous levels. Smallpox has become a medical curiosity. Although there have been many achievements in the past, much re- mains to challenge the future. It is the purpose of this report to describe briefly some of these major problems and to recommend lines of attack. Local Full Time Public Health Services: Public health has concerned itself chiefly with the prevention of disease through sanitation, control of communicable diseases and the pro- motion of good health by educational measures. Most public health services are best rendered through local full time health organizations locally sponsored. Since Jefferson County organized the first full time county health department in the United States in 1908, Kentucky has ranked among the leading states in the development of such local organiza- tions. One-third of Kentucky’s population receives one or more direct Services, such as an immunization, a test or a home or clinic service, from local health workers, while the vast majority receives indirect services, such as those resulting from supervision of water supplies and food- handling establishments and restricting the spread of communicable disease. Although great progress has been made, there are still 16 counties which have not made provisions for local health service. Not only should all counties be organized, but additional financial support is needed to increase the effectiveness of that service as rapidly as possible. Public health authorities state that a minimal expenditure of $1.00 per person is necessary for the maintenance of reasonably adequate local health de- partments yet Kentucky spends annually only 48% per person for this purpose, including funds from all sources. 171 - - –Photo courtesy of Louisville TB Association Portable X-Ray Unit Used to Eacamine Large Groups of Kentuckians for Tuberculosis Of 120 health officers whom Kentucky has trained in the last twelve years, more than 80 have resigned largely because of Kentucky’s inability to pay salaries commensurate with what other agencies pay for like training and experience. Tuberculosis: Tuberculosis is preventable, yet some 1,800 Kentuckians die each year from this infection. While Kentucky’s death rate has been cut in half in the last quarter of a century, it is still one and one-half times the national average. It is estimated that some 14,000 Kentuckians have active tuberculosis. Not more than 8,500 of these cases are known to private physicians and health officers, leaving some 5,500 unrecognized cases. Three-fourths of all cases are not isolated and are constantly exposing their associates to the infection. * The control of tuberculosis involves case-finding, isolation and treat- ment. Kentucky has a good case-finding program but it is inadequate. The State and local health departments make an average of 35,000 tuber- culin tests and 55,000 chest X-Rays annually. These activities should be greatly extended in an effort to find the 5,500 cases at present unrecognized. Some believe that certain groups of the population, such as premarital applicants and expectant mothers, should be required to have chest X-Rays. With hardly 800 sanatorium beds available for treatment of the disease Kentucky has fewer beds per 100 deaths than any state touching its borders. Furthermore, outside of Jefferson and Fayette Counties, only 200 beds are available for the remaining counties, representing five-sixths of the total population. Only about one-tenth of the cases receives sanatorium care each year. In accordance with legislative provision, a program is under way for the construction of district sanatoria with a total additional capacity of Some 500 beds. These, together with the 230 bed addition provided for at the State Tuberculosis Sanatorium (Hazelwood), will give a total of more than 1,500 beds for the State as a whole. When these facilities have been completed, it will be very important to see that adequate financial provision is made for their efficient maintenance and operation and an adequate supply of free beds. Cancer: Each year some 2,500 Kentuckians die from cancer. This disease is the third leading cause of death in the State and the death rate is increas- ing. - It is estimated that there are 10,000 cases of cancer in the State. Not more than 4,000 of these cases are known to practicing physicians and 173 health officers, and the vast majority of these have been seen too late for cures to be effected. Some 6,000 persons having the disease have not yet gone to physicians. The control of cancer is essentially a matter of finding and treating the disease in its early stages. A number of clinics for cancer diagnosis among the medically indigent have been provided through a cooperative arrangement participated in by the Kentucky Field Army of the American Cancer Society, the Cancer Committee of the State Medical Association, and the State Board of Health. Approximately 600 persons are examined each year in these diagnostic clinics, of whom more than 300 are found to have cancer and are referred for treatment. The services of these clinics should be greatly extended. The Legislature recently recognized the problem of cancer control by appropriating $15,000.00 annually to be administered by the State De- partment of Health and to be applied toward the payment of hospital costs incurred in the treatment of indigent cases. This appropriation must be greatly increased if even minimal needs are to be met. Venereal Disease: Syphilis may cause heart disease, blindness, insanity, paralysis, and many other serious conditions. About 100,000 Kentuckians are infected and at least 1,200 die annually of the disease. Gonorrhea may cause sterility, blindness, arthritis and other physical handicaps. At least 50,000 Kentuckians have the disease annually. Official health agencies investigate the contacts of cases occurring in the military and civilian population, in an effort to find all sources of infection and bring them under treatment promptly. Some 140 clinics for diagnosis and for the treatment of infectious cases are operated by local health departments. Approximately 30,000 persons are seen in these clinics annually. The discovery of new drugs has made possible the effective rapid treat- ment of gonorrhea and syphilis. Infectious cases can now be controlled in a matter of days, as compared with months formerly required. Special hospital facilities for the rapid treatment of selected cases are now avail- able in Kentucky. Not only must there be increased effort to find and treat infectious cases of gonorrhea and syphilis, but communities must also assume re- sponsibility for controlling promiscuity through which most venereal disease is spread. - Measures should be taken to prevent the expected increase of venereal disease in the period immediately following demobilization, when there will be a certain amount of social maladjustment and disorganization. 174 Physical Defects: Because of physical defects alone, more than 40,000 Kentucky men have been rejected by Selective Service. A National Youth Administration survey in 1941 disclosed that one youth in three had defects that limited employability. State and county health departments have found that out of each ten children, seven have dental defects, three have eye, ear, nose or throat defects, and seven have poor posture or other defects attributable, in part, to malnourishment and poor health practices. Fully one-half of these defects could be corrected and many could be prevented, if parents were properly educated and if medical and dental care were more readily available. County health departments examine more than 80,000 children annually and refer those needing attention to physicians and dentists. Better provision for the correction of defects found is urgently needed. Since many persons do not eat the proper foods to meet minimal nutritional requirements, much greater attention needs to be given the problem of nutrition. The State Department of Health, through its Dental Division, conducts educational and demonstration programs and, with the aid of county health departments, makes dental inspections of 35,000 school children annually. Emergency corrective work is done and referrals are made when there is a dentist in practice locally. The Kentucky Crippled Children Commission is now informed of some 10,000 crippled children. It annually admits about 700 children for corrective care and is building a new convalescent hospital near Lex- ington. Adequate support for this organization is needed. The State Department of Education, in cooperation with other state and Federal agencies, has started a program of rehabilitation for the vocationally handicapped. This service is constructive and should be ex- panded. A physical fitness program designed to stimulate the interest of all people in the prevention and correction of defects and in general health promotion should be established. . Sanitation and Filth-Borne Diseases: In an average year typhoid fever, poliomyelitis, diarrhoea and enteritis, dysentery and food poisoning — all filth-borne diseases — kill 800 Ken- tuckians, and cause the illness of 14,000 others. Although deaths from typhoid fever have been reduced to 1/15 the former rate, Kentucky still ranks sixth among the forty-eight states in the total number of cases occurring each year. The control of filth-borne diseases is primarily a matter of sanitation. 175 Three hundred and thirty-three Kentucky communities with popula- tions of two hundred to three thousand each have no public water sup- plies. Few communities treat sewage before dumping into streams. One- half the State's population is served by open privies. Only one-fifth the farm and rural population is adequately protected from flies and mosqui- toes. A safe water supply, proper sewage disposal facilities and adequate screening against flies and mosquitoes should be a part of every home and public building. Since the streams in and bordering the State are the chief source of water supply for the various communities, it is essential that the present pollution of streams be corrected and that further pollution be prevented. Although progress is being made, only 30% of the total milk consumed in Kentucky homes is commercially pasteurized and forty-five counties still have no pasteurized milk available. Increased public interest in the sanitary supervision of the production of milk for cheese, butter and other manufactured milk products is essential. Since relatively few of some two-hundred and forty commercial slaugh- ter houses, meat packing plants and chicken killing establishments have either Federal or local veterinary inspection of animals, a large propor- tion of the population thus receives meat which comes from questionable Sources. Methods of cleaning and handling meats and fowl and disposal of wastes constitute a major sanitation problem and must have more attention. One-half Kentucky’s population is served daily in the four thousand restaurants of the State. Since only limited supervision by health depart- ments is available, the sanitation status of these restaurants is still far from good. Compared to a possible sanitation rating of 100%, the restaurants average only 40%. Since the main items found defective are those of operation, rather than construction of buildings or equipment, increased attention must be given to the training of restaurant employees in the proper handling of food. The control of filth-borne diseases through sanitation is more a matter of public health education and understanding than of legislation and law enforcement. Health of Mothers and Children: Each year in the State some 250 women die in childbirth and 3,700 infants die before their first birthday. While the Kentucky death rates from these causes are being reduced, they are higher than the national aVerage. . Further reduction in the maternal and infant death rates is dependent upon more and better health supervision and medical care and upon health education. County health departments provide preventive health super- 176 PROBABLE POSTWAR AGE AND GEOGRAPHIC DISTRIBUTION OF MEDICAL PERSONNEL AND GEOGRAPHIC DISTRIBUTION OF HOSPITAL BEDS IN KENTUCKY AS RELATED TO WEALTH Number of persons per Type of * . . is a wº |Phar- al’ea, Physician Dentist Nurse º Counties with 654 1995 :}; 1326 1st & 2nd class cities (7) Counties with 1293 3944 ::: 3426 cities between 2,500 & 20,000 population (39) Counties with 2344 6394 2}: 7386 cities under 2,500 popula- tion (74) * Data not available for this report but the distribution is generally known to be similar to that of physicians. Hospital Bed :k Physi- Cian 50 54 56 Average ages Of Dentist 50 51 52 Nurse :: Phar- macist 46 50 54 Per capita average Assessed Purchas- Valuation pº OWer $897 $867 510 867 287 351 s vision for one-sixth of all expectant mothers and for one-fourth of all infants. More than one-fourth of children under five years have been immunized against diphtheria and many have been protected against smallpox. This program should be strengthened and its quality improved. Physicians in private practice should give increased attention to preventive health supervision. Normally one-fifth of the mothers do not have a physician at child- birth and only one-seventh of the total births occur in hospitals. Cer- tainly every mother should have the services of a competent doctor at childbirth and the facilities of a hospital when indicated. The Oneida Maternity Hospital in Clay County is the first and only such hospital in the United States owned by a state and operated by a state health department with Federal assistance. About two-hundred mountain women are delivered there annually. More facilities of this type are needed in areas where there is a shortage of physicians and hospitals. Through the Emergency Maternity and Infant Care Program, financed with Federal funds, the State Department of Health administers a plan of medical care for wives and babies of about 9,000 enlisted men in the four lowest pay grades of the Armed services of the United States annually. This program will terminate at the end of the emergency, but has aided many mothers and babies in obtaining better medical care during this time of stress. Until medical care at childbirth becomes available to the one in five expectant mothers now denied such service, increased instruction and Supervision of midwives, now conducted on a limited scale by county health departments, is a pressing need. Diseases of Later Life: Heart disease, cerebral hemmorrhage and nephritis are leading causes of death. These causes combined account for two-fifths of the deaths from all causes. These diseases are associated primarily with the aging of the human body, and since the prolongation of life is resulting in more people living to older ages, it is logical to expect an increased death rate from these causes. However, proper health supervision frequently pro- longs the useful lives of individuals in the older age groups. While the medical profession and the public are recognizing the need for more attention to the diseases of older people, there has been thus far very little organized effort in this field in Kentucky. More readily available medical supervision for older people is needed. Periodic health examinations for the purpose of detecting and treating abnormal con- 178 ditions early should be promoted. The patient must be taught to live with his disease if his life is to be prolonged. Medical Care: It is becoming generally recognized that personnel and facilities for medical care are inequitably distributed throughout the State. Physicians, nurses, dentists and pharmacists tend to locate in the larger centers of population, and to avoid the more rural areas. For example, in counties with first and second-class cities there are only 654 persons per doctor, whereas in rural areas there are more than 2,300 persons per doctor. It is recognized that physicians in larger centers serve adjoining rural areas to Some extent, but even allowing for this, it is still true that physicians and other personnel and facilities are less available in rural areas. It is likewise true that the average age of physicians in rural areas is six years higher than that of those in the larger centers of population. A Similar situation prevails with regard to other professional personnel. Some of these facts and others are indicated in the table, on the following page, which is set up to give the probable postwar picture. Recommendation: Because the problems of medical care are so varied and extensive, it is recommended that the State Board of Health establish a Division of Medical and Related Services to make a state-wide study and to recom- mend a plan of action to meet such needs as may be found to exist. It is further recommended that this Division be assisted by an advisory council made up of representatives of medical and allied professions and associa- tions and of the general public. General Summary: Although Kentucky has made outstanding progress in the field of public health as evidenced by the tremendous reduction in the number of lives lost from tuberculosis, typhoid fever, diphtheria, and certain other causes of death, the State must make even greater progress in the years to come if the people are to receive the full benefits of modern medical Science. In order that these benefits may be more fully realized, it is recommended that action be taken along the following lines: 1. The remaining 16 counties now unorganized for health work should be encouraged to set up, through local initiative, full time health Organizations designed to provide preventive health service for all the people. In addition, to improve the quality of service, the per capita expenditure for local health work will need to be raised gradu- ally from 48% to $1.00. The tuberculosis hospital construction program should be completed as soon as possible and adequate financial provision should be made for the maintenance and operation of these institutions, if they are to render effective service. Likewise the case-finding program of health departments should be expanded, to the end that all cases of tuberculosis may be found and placed under treatment early. More readily available facilities for the early diagnosis and treatment of cancer, the third leading cause of death, should be planned. More attention should be given to the prevention and control of syphilis and gonorrhea. A more adequate program designed to prevent and correct physical defects in children and young people should be developed. Greater effort should be made to secure sanitary improvements, espe- cially in the fields of water supply, sewage disposal facilities and the handling of food supplies. A better program to protect the health of mothers and children should be planned. More attention should be given to the special health problems, such as heart disease, associated with the aging of the population. A Division of Medical and Related Services should be established in the State Department of Health to conduct a state-wide study of medical care problems and to recommend a plan of action for meeting the needs found to exist. 180 APPENDIX I Public Works - Sub-Committee Report Sheet 1 of 4 CLASS I PROJECTS DETAIL PLANS COMPLETED OR NEARLY SO - ESt. COSt Funds On Probable Source Of Funds not NO. Of Including Hand Or On Hand nor arranged for LOCality Projs. Land COSt Arranged ASSessment BOnds Other Sources Remarks Cities of 1st, 2nd 3rd Class 40 $ 1,972,500 $ 753,500 $ 87,500 $ 533,500 $ 598,000 Cities of 4th, 5th 6th Class 65 1,244,204 266,266 136,438 402,500 439,000 COunties 109 1,052,990 163,950 ............ 4,000 885,040 See NO classification as to status of plans, and total has all been included in Class III— County School Districts Note Idea Stage Independent No classification as to status of plans, and total has all been included in Class III— School Districts & 4 Idea Stage Airports & 4 No classification as to Status of plans, and total has all been included in Class III— Idea Stage State Highway Dept. 29 6,448,000 6,448,000* ............ ............ ............ *50% Fed. Aid State Schools - None … … … … … State Welfare Dept. 8 2,850,000 2,850,000 ............ ............ ............ Other State Work 2 29,800 29,800 ............ ............ ............ Sub-Totals 253 $13,597,494 $10,511,516 $ 223,938 $ 940,000 $ 1,922,040 3. APPENDIX I Public Works - Sub-Committee Report Sheet 2 of 4 Locality Cities of 1st, 2nd, 3rd Class Cities of 4th, 5th, 6th Class COunties County School Districts Independent School Districts Airports State Highway Dept. State Schools State Welfare Dept. Other State Work Sub-Totals No. Of Projs. 277 182 80 See Note 162 15 728 CLASS II PROJECTS PRELIMINARY PLANS ESt. COSt Including Land Cost $33,599,928 2,868,615 1,103,500 Funds On Hand Or Arranged $ 7,994,500 423,734 408,500 ASSessment $15,708,312 804,304 Probable Source Of Funds not on Hand nor arranged for BOnds Other Sources $ 305,813 $ 9,591,303 1,085,886 554,691 12,000 683,000 Remarks No classification as to statuts of plans, and total has all been included in Class III— Idea Stage No classification as to status of plans, and total has all been included in Class III— Idea Stage No classification as to status of plans, and total has all been included in Class III— Idea Stage 47,190,000 1,750,000 7,675,000 539,000 $94,726,043 47,190,000+ 1,750,000 1,500,000 539,000 $59,805,734 $16,512,616 $ 1,403,699 $17,003,994 *50% Fed. Aid g APPENDIX I Public Works - Sub-Committee Report Sheet 3 Or 4 (Revised May 2, 1945) NO. Of Locality Projs. Cities of 1st, 2nd, 3rd Class 289 Cities of 4th, 5th, 6th Class 239 Counties 469 County School Districts 651 Independent School Districts 167 Airports 131 State Highway Dept. 344 State Schools 6 State Welfare Dept. 59 Other State Work 2 Sub-Totals 2,357 CLASS III PROJECTS IDEA STATE – NO PLANS Est. Cost Including Land Cost $ 76,355,795 4,632,500 7,453,700 8,585,500 13,544,300 7,001,000 87,076,000 235,000 10,775,000 800,000 $216,458,795 FundS On Hand Or Arranged $2,117,800 146,700 579,300 (1,000,000*) ( ) ( ) 440,000 500,000 $4,783,800 ASSessment Probable Source Of Funds not On Hand nor Arranged for BOnds $2,452,615 $65,086,263 $ 6,699,117 550,750 1,614,250 2,320,800 - - - - - - - - - º sº º 67,500 6,806,900 * - - - - - - - m = ± sº (21,129,800) - - - - - * * * * * * - ( ) ( ) - - - - - - - - - - - - - - - - - - - * * * * * **6,561,000 - - - - - - - - - - - - - - - - - - - - - - - - 87,076,000 - - - - - - - - - - - - - - - - - - - - - - - - 235,000 - - - - - - - - - - - - - - - - - - - - - - - - 10,775,000 - - - - - - - - - - * * - - - - - - - -º º º º- - 300,000 $3,003,365 $87,897,813 $120,773,817 Other SOurces Remarks ( *Estimate by ( State Dept. Of ( Education ( **50 % Federal (CAA) Funds g APPENDIX I Public Works - Sub-Committee Report Sheet 4 Of 4 (Revised May 2, 1945) Total NO. 15 266 120 120 137 131 535 10 57 12 1403 NO. Re- ported 14 84 38 110 127 131 535 10 57 12 1118 LOCality Cities of 1st, 2nd, 3rd Class Cities of 4th, 5th, 6th Class COunties County School Districts Independent School Districts Airports State Highway Dept. State Schools State Welfare Dept. Other State Work TOTALS NO. Of ProjS. 606 486 658 651 167 131 535 10 82 12 3.338 CLASS I-II-III PROJECTS ESt. COSt Including Land COSt $111,928,223 8,745,319 9,610,190 8,585,500 13,544,300 7,001,000 140,714,000 1,985,000 21,300,000 1,368,800 $324,782,332 Funds On Hand Or Arranged $10,865,800 836,700 1,151,750 (1,000,000*) ( ( 440,000 33,638,000+ 1,750,000 4,350,000 1,068,800 $75,101,050 PLAN STATE — ALL STAGES ASSessment Probable Soul'ce Of Funds not On Hand nor Arranged for Other SOur CeS BOnds $18,248,427 $65,925,576 1,491,492 ) ) --~~~~ * - - - - - - - - - -º $19,739,919 3,102,636 83,500 (21,129,800) ( ) ( ) $90,241,512 $ 16,888,420 3,314,491 8,374,940 *6,561,000 87,076,000 235,000 16,950,000 300,000 $139,699,851 Remarks ( * Est. by ( State Dept. ( Of Educa- tion * 50% Fed. (CAA) Funds * 50% Fed. Aid : COMMITTEE ON COORDINATION OF FEDERAL, STATE, COUNTY, AND CITY GOVERNMENTAL ACTIVITIES J. STEPHEN WAT KINs, Chairman, Frankfort H. S.T. G. T. CARMICHAEL, Secretary and Editor, Frankfort Sub-Committee on Postwar Planning CARL B. WACHS, Chairman, Lexington EDGAR ARNOLD, Madisonville HAROLD B. B.Row NING, Frankfort H. ST. G. T. CARMICHAEL, Frankfort RUSSELL DYCHE, Frankfort WILLIAM B. HARRISON, LOuisville PAUL W. JONES, Madisonville CHARLES H. KUHN, Fort Thomas CLARENCE MILLER, Frankfort EUGENE STUART, Louisville DR. KENNETTI P. VINSEL, Louisville CLAUDE WIN SLOW, Mayfield H. A. WORTHAM, Louisville GORDIE YOUNG, Frankfort Sub-Com 7mittee Om Public WOrk:S W. O. SNYDER, Chairman, Frankfort WILLIAM S. BRANSON, Madisonville J. P. BROWNSTEAD, Ashland T. H. CUTLER, Frankfort FRANK HILI., Louisville E. A. MARYE, Louisville E. C. MCGRAw, Frankfort J. B. MORLIDGE, Frankfort PAUL MORTON, Louisville LT. COL. A. H. NEAR, Louisville Sub-Com mittee on Housing HUGH MERIWETHER, Chairman, Lexington DR. RUFUs B. A.TwoOD, Frankfort LAURIE J. BLAKELY, Lexington JACK B. BRYAN, Lexington N. H. DOSKER, Louisville HARRY: W. SCHACTER, Louisville O. P. WARD, Louisville JOHN F. WILSON, Lexington Sub-CO7m, mittee Om Research, and Coordination of Kindred Activities DR. D. V. TERRELL, Chairman, Lexington DR. C. S. CROUSE, Lexington HOWARD J. DOUGLASS, Middlesboro REv. W. P. OFFUTT, Louisville EDw IN J. PAxton, Paducah E. H. STRAUS, Lexington DR. FORD L. WILKINSON, JR., Louisville H. COMER WOLF, Irvine Sub-Com mittee Om State, County and City Zoning and Planning CARL BERG, Chairman, Louisville J. R. KINSELLA, Newport D. COLLINS LEE, COvington H. W. LOCHNER, Chicago, Illinois M. J. MCGRUDER, Lexington Sub-CO’m,7mittee O'n Public Health, DR. CARL M. GAMBILL, Chairman, Louisville LAWRENCE H. ASHMORE, Madisonville JUDGE ODIs W. BERTELSMAN, Newport DR. CHARLES D. CAWOOD, Lexington DR. J. S. CIIAMBERs, Lexington CHARLES C. COOK, London CHARLES M. DAVIDSON, Louisville DR. ELMER E. GABBARD, Buckhorn MIss FLORENCE I. GIBSON, Berea A. E. HARDGROVE, Louisville E. M. Josey, Frankfort J. O. MATLICK, Louisville DR. O. O. MILLER, Louisville MRs. BERT R. SMITH, Bowling Green MOHE H. SOLworth, Louisville DR. RUSSELI. I. TODD, Richmond 185 - - º º º º REPORT OF THE COMMITTEE ON NATURAL RESOURCES Committee Report No. 7 Interim Report Submitted on April 10, 1945 Final Report Submitted on May 9, 1945 Final Report Accepted on May 9, 1945 Commissioners present on May 9, 1945: ATWOOD, R. B. OFFUTT, W. P. BLAZER, P. G. RAMSEY, J. E. CAIN, H. W. STONE, J. C. EVANS, E. J. WACHS, C. B. GRAHAM, THOMAS WATKINS, J. S. GRUVER, R. S. WEBB, FREEMAN HARRISON, W. B. WEYLER, J. R. HILL, J. B. WILLKIE, H. F. KENTUCKY’S NATURAL RESOURCES It is customary in Kentucky to begin by appraising, and praising, the people of Kentucky, the State's major asset. Some members of this com- mittee are typical members of this Commission, typical citizens of this State, in being fifth generation Kentuckians. The committee may there- fore, taking advantage of the character of citizenship of its personnel, Say frankly that Kentuckians have not done an outstanding job of making good use of the State’s natural endowment. When Kentucky’s resources and geographical situation are considered in connection with her per capita wealth and income; in connection with her inadequate pay of public servants, her inadequate schools, her inade- quate public roads, and public institutions she might be called the poorest rich State or the richest poor State in the Union. The Agriculture Committee has made excellent suggestions looking to improvement of the industry which perhaps will always be Kentucky’s first magnitude enterprise. The Agriculture Committee has recommended departing from exploitative farming, which impoverishes the farmer, the farm and future generations. Permanently practical farming in a state as rugged as Kentucky is impossible without the practice of forest conservation being a part of the average farmer's project. There is no requirement that a student who would become a County Agricultural Agent study forestry as part of his preparation for gradua- tion in agriculture. Kentucky farmers are little awakened to the impor- tance of forest conservation in their problems of soil fertility, drainage, water supply, and cost of Operating farms. No farmer should receive, year after year, advice from County Agents not equipped to give him a well-rounded conception of what farming should be. Kentucky University should include forestry in the prescribed courses of students of agriculture. At present, the Federal Government conducts, through the headquarters of the Cumberland National Forest at Winchester, a service designed to inspire farmers to use wisely, under timber, land not suitable for cultiva- tion, and to give the ground to timber in perpetuity by preventing grazing upon the land set aside for timber growth. But every County Agent would be more useful had he education as a forester or some education in forestry, which would inspire him to teach farmers to rely on their own land more than they do as a timber producer; to cease treating woodlands as ex- ploitable areas solely. Resources with which this committee deals are in part a feature of any well-considered plan of farming; of any thrifty plan of banking, busi- ness or industry. A certain amount of overlapping in committee reports is therefore inevitable. & 188 Rentucky had originally in great abundance, fertile soil, excellent timber, many mineral deposits, much pure water in navigable and non- navigable streams. Had best use been made of such resources, per capita wealth now would be far greater than it is, and Kentucky would not be surrendering her sons and daughters to western and eastern States, her soil to southern deltas as she long has done. The problem is how to salvage and restore to highest usefulness sundry impaired resources and how to develop some neglected ones. The financial situation of Kentucky’s population is ineluctably related to the handling of her land and water. From improvement of the character of that enter- prise rather than from ballyhoo designed to attract population and invest- ment capital from other states, Kentucky’s industrial development should arise. It will not arise from such devices as damming streams, creating electric current, sitting down and expecting industries to rush to the highly portable commodity the dams create. It is difficult, or impossible, to develop good legislation when the public has so little knowledge of or interest in what should be done that public opinion is not a factor in the lawmakers’ problem. Natural gas, for example, is among Kentucky's resources. Laws con- serving it and making best use of it in connection with oil production should be improved, but the public is not natural-gas conscious. The State's stiff-penalty gas-waste law, is, dealers in gas hold, not so drawn that guilt may be easily proved. The plugging law is so drawn that it is not possible to discover cause for action till, in many cases, the damage has been done. This committee boasts no technical knowledge of that subject, and is here repeating others. Underground gas storage in oil fields involves control of the under- ground sands of the area. Where that right should rest; whether in the Commonwealth or in hands of enterprisers is a matter concerning which there is no public opinion. There is little public opinion about any other phase of the natural gas problem. Kentucky contains about 9,000,000 acres of as good hardwood land as there is in the United States, amounting to about one-third of the hard- wood area east of the Mississippi and south of the Ohio. Not all of it is, as some people would suppose, in one section of the state. All of it is where farming and timber production should be allied industries. France, in an area about one-thirteenth as large as Kentucky, beginning where trees did not grow naturally and with great difficulty afforesting with maritime pine land so wind-swept that it was first necessary to find a grass which would hold the soil in place till trees could take root, induced a population half as large as Kentucky’s. Afforestation produced a situa- tion in which industries relying on local labor had a very small turn-over. 189 There was more farming in that province after its afforestation than when it was without trees. A good deal of good farm land is Scattered in coves and narrow valleys in Eastern Kentucky where farming should be prac- ticed along with timber production. The State Forestry Department, which received from the last legis- lature a little aid, is handicapped by having total resources not nearly large enough to enable it to be as useful as it might be. For protection of forests the State needs $400,000 or $500,000 a year. The latter sum might include maintenance of nurseries, land acquisition, services to land owners who should practice forest management and fire control. The State might get perhaps $300,000 a year from fire protection in counties, license fees from timber industries, a severance tax on timber products, receipts from State forests, nursery stock sales, Federal co- operative funds. The State’s general fund could provide the rest. The present forest fire patrol law seems to lay an unnecessary burden of salesmanship and bookkeeping on the Division of Forestry whose time could be spent more profitably in fire control and forestry. The law is so drawn that many landowners who don’t cooperate for fire control get protection from fire. Statewide protection of timber from fire on an equitable basis, is a major need of the Commonwealth. A better law would require counties to collect fire protection fees for the Forestry Division. A small general timberlands levy might provide fire protection funds. This would eliminate difficulties arising from com- plicated ownership patterns. Less than $100,000 is needed from the whole State as the landowners’ direct share of fire protection cost. Vast values are at stake. Annual fire protection fees now are less than $10,000. The head of the Conservation Department should be paid $5,000 a year. The present $4,000 reflects the public’s failure to realize that pro- tection of natural resources is as important as the work of any other government department. We pay seven men — ill-paid judges of the Appellate Court—$5,000 each to umpire disputes between citizens. We pay one man $4,000 to guard and develop resources upon which all citizens must live. And the $4,000 man loses his job before he develops highest usefulness because when a new administration comes in he goes out. The State Forester’s $3,500 a year is pathetically inadequate. His Staff is underpaid. A cheap coat may proclaim a cheap man or an un- fortunate man. Cheap government departments reveal a State whose population’s conception of its opportunities, its responsibilities, is at fault. An enabling act should be passed to encourage cities, towns, counties, to create community forests which would be revenue-returners and stimu- lative examples of foresight. An act requiring afforestation of strip- mined coal lands is needed. 190 Kentucky is far behind many States in buying land for State forests. A suitable annual appropriation for purchase should be made. An act requiring licensing of saw-mills and other wood-using industries should be passed to give the Division of Forestry added revenue. Services of the department and industries its work facilitates then would be reciprocal. The Division of Forestry, implemented by adequate income, should aid woodland owners in practical use of their holdings and perpetuation of income from them. Its researches might promote wood-using industries widely distributed and handicrafts which use wood. Legislation to control brush-burning and escape of sparks from in- dustrial stacks and locomotives is needed. Education as to injuries done by annual springtime burning of fields and forests should be undertaken in schools. Timberland taxes should be so laid that they would promote timber growing. Public regulation of private forestry practices, the basis of timber supply and soil fertility perpetuation in Sundry countries is needed in Kentucky but could not be inaugurated without the Sound public Opinion that education might provide. All timberlands coming into the State’s possession through escheat, delinquent tax sales and foreclosures of mortgages should be passed to the Division of Forestry that they might become permanently productive. Roads and schools problems should be simplified by a State and county policy of utilizing considerable areas now on the downgrade because of deforestation and neglect and not suitable for tillage or grazing. Such areas are a burden when served by roads and schools on the theory that they will always be farmed. - The State Geological Department starves on $14,000 a year. Its re- Search work, field investigation, liaison work between the State and in- dustries, and between the State and the press, require a larger appropria- tion. The department, rightly provided, could encourage growth of in- dustry within the State. The end of war is dreamed of. The time has arrived when it is of prime importance to give particular attention to the development of our mineral resources. The exploration of these extensive and valuable assets of the State, with the possible exception of coal, has been carried on in a rather loose manner, and definite appraisals of those resources have been lacking. Kentucky, by its liberal support of a geological survey, could assist in a program which would be highly beneficial to the mineral operators as well as the Commonwealth. In order to take advantage of the services of veterans who are trained geologists—men trained in the use and interpretation of aerial photo- 191 graphs, as well as other technicians—the Geological Division asks for an increase in appropriations totaling approximately $35,000. State and county base maps are inadequate. We have the opportunity through a cooperative arrangement between the Geological Division and the State Highway Department to issue geographic, geologic, and mineral resource maps. These have been compiled from existing maps, Highway Department surveys, and from aerial photographs. Considerable checking and field revision of these maps will be necessary to develop the type of maps suit- able for the Geological Division’s use. The need for these maps is pressing, and they are fundamental in the compilation of mineral resource data. Good base maps of Kentucky would attract local and outside capital necessary for the development of our mineral resources. The lack of them retards this work and diverts that money to other States where goods maps are available. The topographic branch of the United States Geological Survey will match dollar for dollar any funds appropriated by the State for the com- pilation of topographic maps. These maps show the elevation above sea level, as well as streams, highways, railroads, towns, farm houses, and Other cultural features. Such maps are vital to economic and mineral resource development, and their availability will bring outside money into the State for much exploratory work. Practically every oil field in Kentucky—old and new—should be placed under a pressure maintenance or a repressuring program in order that a greater percentage of oil may be produced than has been possible under former methods of production. Water flooding operations, so effective in Pennsylvania and other states, may prove desirable. The Geological Division of the Department of Mines and Minerals has assisted materially in the direction of secondary recovery operations for the past eight years, advising operators as to the amount of oil left in the sand and how and where pressure should be applied to make a further recovery of this vital resource. This information is derived from analyses of cores from oil sands submitted to geologists by Operators. Much experimental work is yet to be done if millions of barrels of oil are not to be abandoned and never produced from the fields now in opera- tion in the State. Skilled petroleum engineers can point the way for the further recovery of this vital, irreplaceable resource. As oil becomes more and more difficult to discover, geologists learn that large deposits are to be found in what is termed “stratigraphic traps.” In practically all instances these traps cannot be discovered by surface ex- pressions similar to the well-known fault, dome, anticline, etc. It then be- comes necessary to study many thousand samples of well cuttings under the microscope to determine where formations capable of producing oil 192 come in and where they pinch out or wedge out. It is in these up-dip pinch-outs and wedges that some of Our larger oil fields are being dis- covered. Many Kentucky fields are of this type, and a great many certainly are yet to be discovered as a result of more drilling and intelligent scientific advice. The geologist can direct this program. It involves much pains- taking, tedious work, and it most assuredly will pay dividends. A well organized geological survey should devote most of its efforts to the economic phases of geology. Many of our mineral resources are undeveloped, and others are yet to be explored. The list included coal, oil, gas, clays, asphalt, fluorspar, barite, chert, iron, brines. It is of prime importance at this time, when the waste of natural re- Sources as a result of the war must be halted, that we take an inventory of these assets and direct their development. Laboratory and field work in this important phase of economic geology must be carried on by a trained technical staff. The results of their investigations should be compiled and made available to the public at the earliest possible date. Thus we can stimulate the discovery and development of our mineral resources. The location of the Department of Mines and Minerals on the campus of the University of Kentucky makes available the co-operative aid of students and faculty members, plus the laboratory facilities and other re- Search equipment of that institution. For example, there is much equipment in the Department of Mining Engineering designed for research studies on low temperature carboniza- tion of coal. Many Kentucky coals are highly volatile, and studies should be carried on leading to smoke abatement in densely populated areas. There is, also, much equipment that will assist in the development and utilization of our mineralized veins that occur in various parts of the State. Many of these are thin, and all of the mineral constituents of the vein must be utilized to allow them to be operated at a profit. For the past two years the Geological Department of the Department of Mines and Minerals has actively co-operated with the surface and ground-water divisions of the United States Geological Survey in Louis- ville. Results of ground-water studies in the highly industrialized areas of Louisville have been valuable and vital to the war effort. Approxi- mately $18,000 from the Governor’s emergency fund has been spent in these investigations. Most large industries will not come into a new terri- tory without accurate ground-water knowledge. This means that in order for Kentucky to receive her share of industrial development such informa- tion must be available. Therefore, it is imperative that the State con- tinue a co-operative program with the surface and ground-water divisions of that survey. This is a program which must be aggressively carried 193 out in order to take care of the immediate post-war industrial develop- ment. The water supply problems for farms and municipalities are no less critical, and a state-wide investigation should be inaugurated at the earliest possible date. The program, as outlined, if placed in operation at this time, will not only provide work for the technical men who will be returning from our Armed Forces, but the resulting industrial development will provide jobs for many of our skilled and unskilled laborers. For geological work Illinois, annually appropriates about $250,000, and $100,000 is made available through various co-operating agencies. The expenditure of these large sums of money pays dividends to Illinois. Smaller appropriations and co-operative funds will pay dividends to Kentucky. Kentucky could in this field use $50,000 per year to a very good ad- Vantage. A state as rich in undeveloped resources as our own could most profitably spend $100,000 per year in its support of mineral resource and industrial development. In spending that amount judiciously, we could receive by way of dollar for dollar co-operative funds from the United States Geological Survey an additional sum of, perhaps, more than $25,000. Water, a natural resource second to none, is one on which returns, economic and biologic, should be large and everlasting, yet water has not been treated foresightedly, or much considered as a conservable commodity by Kentuckians. There are so few natural lakes within the State that for purposes of this discussion Kentucky may be said to be lakeless, but our mileage of streams is apparently not exceeded by that of any other State. Kentucky has shallow mountain rivers and deep lowland rivers with innumerable affluents all of which are of biologic and economic importance. Running water is so distributed that if productivity of streams were in proportion to their mileage virtually every neighborhood would have at hand an adequate table supply of fish locally taken, but streams have been So abused that even the most expert angler, widely, finds as Herbert Hoover Said in an address to the Izaak Walton League of America some years ago, it is too long between bites. Kentucky housekeepers do not in many instances think of local waters in connection with their table supply problem. Lawless exploitation of streams, and pollution from various sources constitutes appalling injury to aquatic values, immense waste of money values. The chairman of this committee has seen living fish which had been taken illegally in Cumberland River dumped from gunnysacks in Streets of Glasgow for sale and on one occasion he witnessed the spectacle of a seventy-foot Seine drying in the court house yard of a town on Green 194 River while a candidate for the Governorship was making a speech. The Seine was owned by a court house clique. Game, like fish, has biological value as well as money value. The annual take of game, furbearers and fish, could be $15,000,000 a year in Ken- tucky, with breeding stock fully protected. These figures are mentioned in the light of the fact that some years ago the annual take of game and furbearers in Pennsylvania, Kentucky’s size and much more densely populated, passed $10,000,000, under one of the best protective systems in the United States. Increase of game and furbearers is possible without cost to taxpayers, and the enterprise flourishes wherever it is rescued from job-distributing politics. The Kentucky Game and Fish Commission has been divorced from other conservation projects to introduce civil service and stabilize its work. The purpose of its divorcement was laudable. Its example may become valuable, but the whole conservation bureau should be under civil Service. Its work requires experienced administrators and technicians. Sportsmen’s organizations cannot improve fishing where water pollu- tion is progressive. Kentucky’s anti-pollution laws are not sufficiently en- forced to prevent steady increase of pollution, and will not be sufficiently enforced until public opinion demands their enforcement. Pure and abundant water is important to mankind for other purposes than as habitat for fish and waterfowl. Poisonous water menaces health in cities notwithstanding elaborate and costly municipal purification plants and nearly all rural surface water and shallow well water in Kentucky is dangerously polluted. Livestock as well as human beings require good water. Waterfowl, shore birds and upland game birds may be poisoned by bad water. The irregularity of farm water supply, the very bad quality of much of the water that is hauled by farmers during drouth, reflect public inat- tention to Soil erosion and sinking of the water table, to use a term which remains meaningless to a large part of the population despite much dis- cussion of it among geologists. Tapping underground water threatens the diminishing supply of many farms near industrial centers. The State needs a law to prevent the farmer’s vitally important water supply being caught by industries’ tentacles. Exploitation where conservation should rule creates a problem which should be dealt with in every public and private school. Public opinion is the most powerful influence on legislation. Lawmaking does not com- monly run ahead of it. The State's natural supply of non-game birds suffers more from forest and field fires, damaging to land and water, than from wanton destructive- IlêSS. woņoſsºwo/a， puw woņpada suo 0 wo sºffuſ H ftaqsim pw. I waq.wſ. I, s.ſt3ſongway Varieties of hawks and owls beneficial to agriculture, not hurtful to poultry or game birds or insectivorous birds, deserve more than the nominal protection they receive in unenforced statutes that are in advance of the education of farmers and Sportsmen. Ignorance of the functions; the net effect, of the so-called winged preda- tors and the quadrupedal predators persists because of deficiencies of edu- cation. Non-venomous snakes deserve protection as destroyers of destructive rodents and insects, every zoologist knows. An abundant and fascinating literature which could be drawn upon in making school text books On conservation of natural resources is almost unseen except by professional and amateur conservationists. In some of the older countries hawks and owls have been bred for release for benefit to agriculture. In Kentucky the barn owl, an eight-cat- power destroyer of small rodents, and harmless to birds and poultry is killed on sight by people who know only two varieties of owls, screech owls and hoot owls. The more wary, and really destructive, great horned Owl is not often killed. The great horned owl is singularly vigorous. It is said to be the only bird which can and does enjoy taking an adult skunk alive, killing it with talons and beak while it makes its instinctive defense and eating it at the height of its fragrance. The skunk, as an insectivorous animal, is Valuable to farming and forestry, but is regarded by farmers as vermin, Supposedly very destructive to poultry. Other countries have passed through stages of ignorance of wild life values similar to our own. German foresters sought to improve forest plantations by culling out all dead trees. When there were no dead trees insects became so injurious to living trees that it became necessary to manufacture artificial woodpecker holes and hang them about on trees to revive the woodpecker population. Woodpeckers are invaluable and untiring killers of insects which injure trees. In Korea, almost exclusively agricultural for the last 5,000 years, the chairman of this committee has witnessed children feeding table scraps to hawks similar to the broadwinged, slow-moving rodent killers which uni- formed Kentucky farmers call chicken hawks. And in Korea non-venomous snakes are regularly and widely kept as household pets because they are excellent mousers. Kentuckians kill the cowsucker imagining that it sucks cows, the chicken Snake, supposing that it kills chickens, the blacksnake and blue racer both of which are rodent eaters. But for their natural enemies, Cornell University says meadow mice would severely injure pastures, and cut down the hay crop. Many Ken- tucky slayers of predators don’t know the difference in appearance or habits, between the meadow mouse, the wood mouse and the house mouse. 197 Children could learn about our native animals, beneficial and destructive, in entertaining books. Preserving scenic areas of outstanding value, worth more in dollars than the land could be if not protected from the common events of com- mercial development, is, in the United States, a large enterprise com- manding the attention of thoroughly practical people. In states, and on state initiative, such preservation takes the form of creating state parks which are not primarily places of sports or of recrea- tion in the generally accepted meaning of the term. The major purpose of wilderness parks is educative, inspirational. It breeds knowledge of the importance of preserving scenes our pioneer ancestors knew. Such scenes have a demonstrated revenue possibility which will grow as time passes. The late Richard Lieber, in cooperation with some other highly edu- cated Indianans, among them Stanley Coulter, dean emeritus of Purdue University, a great scholar, a deep student of the Greek language and ancient civilization of Greece, created Indiana’s famous State Parks. Kentucky, because of her combination of geographical situation, historic background, and Scenic assets, has a better opportunity than any other state in the Union to create a valuable system of state parks, according to Colonel Lieber. But each state administration starts with inexperienced administrators. Kentucky’s choice of park sites has been often based upon a desire to please a community by creating a park that will not serve that community. As a result (see a report by the late Nat Sewell, State Inspector and Examiner, upon the fiscal problem of Kentucky parks), the state has a large investment in parks. Some of them have great possi- bilities, but some of them will apparently never attract sufficient interest to make them practical. This committee recommends thorough study of any proposed state park site with a view to reaching sound conclusions as to its usefulness before a new property is added to the State’s list of reservations. The committee recognizes the importance of distributing Such reservations as widely in the state as may be possible without sacri- fice of a standard of quality which may guard taxpayers against being burdened with parks that will fail because of insufficient use by those in whose behalf they were created or by others. The conclusion of this committee is that low per capita wealth, average individual income, rarity of incomes above $10,000, proclaim Kentucky; that the financial capacity of the State depends on right administration of her natural endowment. Development, through education, of popular awareness of mistakes that have been made and are continuing is of great- est importance. Education in this field is peculiarly the duty of schools. There can be no reasonable doubt that if Kentucky were using rightly all of her natural resources she could without burdensome taxation support 198 an educational system, a system of roads to farm gates, as well as trunk- line roads, and public institutions for the care of her unfortunates which would leave nothing to be desired. Therefore, we should divert our minds oftener than we do from con- templation of Kentucky’s glamourous past to center them upon her poten- tially glamourous future. Your committee is aware that its report is basically ideological. A rental of the mineral, animal, agricultural, and water resources of the state is not within the purpose of this commission. Such a report was printed in 1935 under the program of the Kentucky State Planning Board and entitled “Progress Report, Revised Edition.” Your committee has found much valuable source material in this report and urges that the material be revised and brought up to date immediately for the use of industrial organizations, planning bodies, and students. Apparently the report was given very limited circulation; few copies appear to be in existence. When the revision is made, an extensive printing should be provided for and a judicious but adequate distribution should be under- taken. COMMITTEE ON NATURAL RESOURCES TOM WALLACE, Chairman, Louisville JAMES B. HILL, Louisville DR. PAUL J. KOLACHOV, Louisville HAROLD MOSER, Louisville FRED L. SEALE, Middlesboro EUGENE STUART, Louisville CARL B. WACHS, Lexington 199 REPORT OF THE COMMITTEE ON ORGANIC LAWS AND LEGISLATION Committee Report No. 8 Interim Report Submitted on April 10, 1945 Final Report Submitted on May 9, 1945 Final Report Accepted on May 9, 1945 Commissioners present on May 9, 1945: ATWOOD, R. B OFFUTT, W. P. BLAZER, P. G. RAMSEY, J. E. CAIN, H. W. STONE, J. C. EVANS, E. J. WACHS, C. B. GRAHAM, THOMAS WATKINS, J. S. GRUVER, R. S. WEBB, FREEMAN HARRISON, W. B. WEYLER, J. R. HILL, J. B. WILLKIE, H. F. One of the functions of the Postwar Advisory Planning Commission of Kentucky is to recommend to the General Assembly and to the people of the Commonwealth methods whereby basic and statutory law may be improved. The final report of the Commission includes legislation recom- mended by all of the committees. The following suggestions are an at- tempt to implement provisions already enacted by the General Assembly. The last session of the General Assembly went on record as favoring the convening of a Constitutional Convention. It seemed convinced that the present Constitution is not readily adaptable to the changing condi- tions of the present day world. Such a convention should be approached in the spirit of a dynamic future for the State of Kentucky. There must be eliminated from the Constitution various provisions which have shackled to a large extent the business and public development of the State. Under the present Constitution the following procedure is necessary to convene a Constitutional Convention: Mode of Revision PARAGRAPH 258. Constitutional Convention; How Proposed, Voted. Upon and Called. When a majority of all the members elected to each House of the General Assembly shall concur, by a yea and nay vote, to be entered upon their respective journals, in enacting a law to take the sense of the people of the State as to the necessity and expediency of calling a Convention for the purpose of revising or amending this Constitution, and such amendments as may have been made to the same, such law shall be spread upon their respective journals. If the next General Assembly shall, in like manner, concur in such law, it shall provide for having a poll opened in each voting precinct in this state by the officers provided by law for holding General elections at the next ensuing regular election to be held for State officers or members of the House of Representatives, which does not occur within ninety days from the final passage of such law, at which time and places the votes of the qualified voters shall be taken for and against calling the Conven- tion, in the same manner provided by law for taking votes in other State elections. The vote for and against said proposition shall be certified to the Secretary of State by the same officers and in the same manner as in State elections. If it shall appear that a majority voting on the proposition was for calling a Convention, and if the total number of votes cast for the calling of the Convention is equal to one-fourth of the number of qualified voters who voted at the last preceding general election in this State, the Secretary of State shall certify the same to the General Assembly at its next regular 202 Session, at which session a law shall be enacted calling a Conven- tion to readopt, revise, or amend this Constitution, and such amend- ments as may have been made thereto PARAGRAPH 259. Number and Qualifications of Delegates. The Convention shall consist of as many delegates as there are members of the House of Representatives; and the delegates shall have the Same qualifications and be elected from the same districts as said representatives. PARAGRAPH 260. Election of Delegates; Meeting. Delegates to Convention shall be elected at the next general State election after that passage of the act calling the convention, which does not occur within less than ninety days; and they shall meet within ninety days after their election at the Capitol of the State, and continue in session until their work is completed. The first step in convening the convention is under way. Under the present legislative program, the General Assembly in 1946 must concur with the actions of 1944 General Assembly. In 1947 the electorate will vote on the proposition. If it is approved by the people, the General As- sembly will propose a law in 1948 calling the Convention. In 1949 the electorate would then elect delegates to the Convention, and the State might have a new Constitution by 1950. The schools, colleges and newspapers of the Commonwealth have been asked to foster study of the present and proposed state constitution. Stu- dents have been requested to submit articles on these studies. The re- sponse to this program has been splendid. The present Constitution has become something sacred to the minds of a good many people. At the last election an amendment was defeated, and under the present Constitution the defeated provisions cannot be voted upon by the people for another five years. Of course, most of our citizens don’t know or don’t care about this situation. It is the opinion of your Committee that this is the crux of the whole business. The state must have an intelligent and interested electorate if it wants to progress. The only way to achieve this end is through education which is a long time pull. The question resolves itself, then, in what can be done now to break up the log jam created by the present Constitution, and how to do it so that it will be accepted by the majority of our voters. The present Constitution could be brought up to date by amending the amending provision. The present amending procedure is as follows: Mode of Revision PARAGRAPH 256. A memdiments to Constitution; How Proposed and Voted Upon. Amendments to this Constitution may be pro- posed in either House of the General Assembly at a regular session, 203 and if such amendment or amendments shall be agreed to by three- fifths of all the members elected to each House, such proposed amendment or amendments, with the yeas and nays of the mem- bers of each House taken thereon, shall be entered in full in their respective journals. Then such proposed amendment or amend- ments shall be submitted to the voters of the state for their ratifi- cation or rejection at the next general election for members of the House of Representatives, the vote to be taken thereon in such manner as the General Assembly may provide, and to be certified by the officers of election to the Secretary of State in such manner as shall be provided by law, which vote shall be compared and certi- fied by the same board authorized by law to compare the polls and give certificates of election to officers for the state at large. If it shall appear that a majority of the votes cast for and against an amendment at said election was for the amendment, then the same shall become a part of the Constitution of this Commonwealth, and shall be so proclaimed by the Governor, and published in such man- ner as the General Assembly may direct. Said amendments shall not be submitted at an election which occurs less than ninety days from the final passage of such proposed amendment or amendments Not more than two amendments shall be voted upon at any one time; nor shall the same amendment be again submitted within five years after submission. Said amendments shall be so submitted as to allow a separate vote on each, and no amendment shall relate to more than one subject. But no amendment shall be proposed by the first General Assembly which convenes after the adoption of this Constitution. The approval of the Governor shall not be necessary to any bill, order, resolution or vote of the General As- Sembly, proposing an amendment or amendments to this Constitu- tion. This section could be superseded by the following proposed amendment or its equivalent: The people reserve to themselves power by petition to propose amendments to this Constitution. This reserved power shall be known as the Initiative. An initiative petition shall contain the full text of the measure proposed and to be valid shall be signed by at least............ voters of the State. Initiative petition shall be filed with the Secretary of State and the question of adopting any measure therein set forth shall be by him submitted to the voters at the first regular state election held not less than four months after such filing. 204 Amendments to the Constitution may also be proposed by the General Assembly at any regular or special session. When such amendment is proposed in the General Assembly and agreed to by a majority of all the members, of both houses, it shall be entered On their respective journals with the yeas and nays and submitted to a vote of the electors at the first regular or special state election held not less than three months after the date of adjournment. All amendments shall be submitted on separate and non-partisan ballots and any amendment approved by a majority of the qualified Voters voting on that amendment shall be declared adopted. Pro- vided that at least twenty per cent voted at that election be recorded in the affirmative. Any amendment so adopted shall become effective as part of the Constitution ten days after the completion of the canvas of the votes and thereon unless a definite date be Specified in the amendment. The above proposed amendment cannot be voted upon by the people providing it passes the General Assembly, until 1947 because two amend- ments, the “Good Road Amendment” and the “Soldier Vote Amendment” will be up for consideration by the voters at the forthcoming November election. If the proposed amendment changing the amending procedure is passed by the 1946 General Assembly, and if the assembly concurs with the action of the 1944 General Assembly in regard to convening a Constitu- tional Convention, then the voters will have two Constitutional proposi- tions to consider in 1947. The passage of either one would go a long way towards solving the problem of the basic law. The attached studies show that thirty-five states have lived under their present constitution longer than Kentucky has lived under its present con- stitution. It also shows how many times each state has revised its con- stitution. It is interesting to note that the Southern States have revised their constitutions the most and New England States the least. When examining these constitutions it is found that the ones that have endured confine themselves to short statements of principles, while the ones that have failed are cumbersome instruments which tend to embrace statutes as well as principles. The next suggestion is intended to aid the General Assembly, the ad- ministration, private interests, and the people at large. The Executive and Judicial branches of the state government have full time functions. The Legislative branch, on the other hand, is expected to perform its duties during a sixty day period every two years. This situation virtually precludes the preparations of legislation by the General Assembly and has made it almost impossible for them to adequately study all the ramifi- cations of proposed bills. 205 A study of the basic statutory law was made to see whether or not re- visions, improvements, or consolidations were necessary or desirable. The revision problem had already been recognized by the General As- sembly and a Statute Revision Commission has been set up. The revisers have completed their task in so far as the present Constitution permits. The courts, however, have not accepted the revisions. It should be remembered that the revisers cannot alter the sense, meaning, or effect of any act of the General Assembly. They can only rearrange sections, reference numbers, and similar things. This has been a step forward, however, because it has made the Kentucky Statutes easy to read. In 1936 the General Assembly provided for a Legislative Council. The function of the Council is as follows: 7.010 Functions of Council. The Legislative Council shall: (1) Collect information concerning the government and general welfare of the state, examine the effects of previously enacted statutes and recommend amendments thereto, deal with important issues of public policy and questions of state-wide interest, and prepare a legislative program to be presented at the next session of the General Assembly; (2) Receive and consider the reports of the Auditor of Public Accounts and in order to insure that the Auditor's reports shall receive the attention they merit; and (3) Encourage and arrange conference with officials of other states and of other units of government; carry forward the par- ticipation of this state as a member of the Council of State Gov- ernments, both regionally and nationally and formulate proposals for cooperation between this state and other states. The membership consists of eight senators, eight representatives, and five state officials. The Governor is an honorary member, the Lieutenant Governor and the Speaker of the House are ex-officio members. This body can meet as often as necessary but not to exceed forty days between regular sessions of the General Assembly (this increases the time the Legislative branch may actually plan legislation from sixty to 100 days every two years.) The Council may issue subpoenas, hear witnesses and has all the powers of the Court of Inquiry. Section 7.060 of the Kentucky Statutes provides that the legislative council may employ a research director and such assistants and engage the services of such research agencies as it deems desirable and its ap- propriations permits, in the preparation of a program of legislation or in regard to any matter of state-wide importance within the jurisdiction of the legislative branch. 206 Unfortunately, the latter provision had never been adequately carried out. Sometimes we have a research director and sometimes we don’t. It seems that a full time research bureau would be desirable. The machinery has been set up by the General Assembly, but the Council hasn’t taken advantage of it. Appropriations have limited activity. On at least one occasion the General Assembly has recognized that funds may be made available by agencies other than the state and paid to the Gov- ernor to be expended for research work of a specific nature by the Re- search Bureau. (Section 247.450.) Therefore, it is suggested that the General Assembly enact legislation making it possible for a state Research Bureau to secure outside funds So that it will be able to work on any legislative or state problem. The Bureau, of course, should be on a full time basis. This provision would make it possible for the so-called special interests to have the Research Bureau examine their problems on a fee basis. It would discourage lobby- ing, because the findings of the Bureau would be presented to the Legis- lative Council and to the General Assembly. The people would be pro- tected because the findings of the Research Bureau would be impartial. The Research Bureau should supply the Legislative Council and the Gen- eral Assembly with following services: 1. General Reference. This, of course, would include library research facilities. 2. Digesting and interpretation of material, statutes, and information. 3. Review of all bills passed by a session of the General Assembly to See that the intent of the legislation is clearly written into each bill. 4. Drafting of model bills when requested to do so by the legislature. 5. Study of the laws of other states in comparison with the laws of Kentucky to see whether or not the laws of Kentucky can be improved. 6. Study of court decisions in and out of the state with the idea of recom- mending changes in existing laws or designing new ones to clarify the intent or specific legislation. 7. Acting as a clearing house for information for all branches of the state government and outside agencies. 8. Study of the laws and ordinances of the various classes of cities with- in the Commonwealth so that some degree of uniformity may be achieved. 9. Undertaking specific or general studies dealing with rate problems on a fee basis for any agency or individual. In order for the research bureau to be successful, it must have the fol- lowing features: It must be used by the legislature, the administration, and out- side agencies; it must be strictly impartial; it must be something 207 more than a library since members of the assembly have little time to dig into library files for material; reference work and bill drafting must be combined; and it must be non-partisan with the tenure and the personnel fairly permanent. No political appointments should be made to the service. It is recommended that steps be taken to set up a competent research bureau with an outstanding director and an adequate staff. The General Assembly should enact legislation making it possible for the research bureau to secure funds from any source in return for unbiased studies of a general or specific nature. The research bureau proposed by the Postwar Planning Sub-Commit- tee of the Committee on Coordination of Federal, State, County, and City Governmental Activities, would be satisfactory as being the most logical agency to carry out the above research program for the Legislative Coun- cil and the General Assembly. YEARS UNDER PRESENT CONSTITUTION New Hampshire ...................... 160 Texas ....................…. 68 U. S. …~~~~ 155 Georgia ----------------------------.......... 67 Massachusetts .......................... 154 California ................................ 65 Vermont .................................... 151 Florida ...................................... 57 Connecticut .............................. 126 Montana .................................... 55 Maine ........................................ 124 North Dakota ............................ 55 Rhode Island ............................ 101 South Dakota ........................ ... 55 New Jersey .............................. 100 Washington .............................. 55 Wisconsin ........................... ...... 96 Wyoming .................................. 55 Indiana ...................................... 94 Idaho ..…..….................. 54 Ohio ... ..... ............................ 94 Mississippi ................................ 54 Iowa .......................................... 87 Kentucky .................................. 53 Minnesota ................................ 87 South Carolina ........................ 49 Oregon ...................................... 85 Utah … 49 Kansas ...................................... 83 New York ................................ 49 Nevada ..................................... 80 Delaware .................................. 47 Maryland .................................. 77 Alabama .................................... 43 Illinois ...................................... 74 Virginia --------------------------.......... 42 Tennessee .................................. 74 Oklahoma .................................. 37 West Virginia .......................... 72 Michigan .................................. 35 Arkansas .................................. 70 Arizona .................................... 32 Pennsylvania ............................ 70 New Mexico .............................. 32 Nebraska .................................. 69 Louisiana ----------------.................. 23 Colorado .................................... 68 Missouri .................................... 0 North Carolina ........................ 68 208 DATE OF ADOPTION OF CURRENT CONSTITUTION FOR EACH STATE AND THE NUMBER OF TIMES EACH HAS REVISED ITS CONSTITUTION When, Present Constitution, Nu m. ber Of Constitutions State Was Adopted Simce Stateh OOd |U. S. 1789 1 Alabama 1901 5 Arizona 1912 1. Arkansas 1874 4 California 1879 2 Colorado 1876 1. Connecticut 1818 1. Delaware 1897 3 Florida. 1887 2 Georgia …........….........…. 1877 7 Idaho … 1890 1 Illinois - - - - 1870 3 Indiana ….....…...….. 1851 2 Iowa, * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * 1857 2 Kansas … 1861 1 Kentucky .......................................................... 1891 4 Louisiana ................................…....................... 1921 9 Maine … 1820 1 Maryland .......................................................... 1867 4 Massachusetts .................................................. 1790 1 Michigan ............. 1909 3 Minnesota ........ - - - - 1857 1. Mississippi ...................................................... 1890 4 Missouri ............................................................ 1945 4 Montana ….................................................. 1859 1. Nebraska - - - - 1875 2 Nevada, -- 1864 1. New Hampshire 1784 2 New Jersey ...................................................... 1844 2 New Mexico 1912 1 New York ---................. - 1895 4 North Carolina .............................................. 1876 3 North Dakota .................................................. 1889 1 Ohio … 1851 2 Oklahoma ........................................................ 1907 1. Oregon …..........….............. 1859 1 Pennsylvania .................................................. 1874 2 Rhode Island .................................................. 1843 2 South Carolina ................................................ 1895 7 South Dakota .................................................. 1889 1 Tennessee ........................................................ 1870 3 Texas …......... 1876 4 Utah …~… 1895 1 Vermont ............................................................ 1793 3 Virginia ............................................................ 1902 2 Washington ...................................................... 1889 1 West Virginia ................................................ 1872 2 Wisconsin ........................................................ 1848 1 Wyoming .......................................................... 1889 1. 209 0ųĮdu,L (190421 | – №ſſae， __ ſaei REPORT OF THE COMMITTEE ON TRANSPORTATION Committee Report No. 9 Interim Report Submitted on May 8, 1945 Special Committee Report Submitted on July 10, 1945 Special Committee Report Accepted on July 10, 1945 Commissioners present on July 10, 1945: ATWOOD, R. B BLAZER, P. G. CAIN, H. W. DONOVAN, H. L. EVANS, E. J. HILL, J. B. MARR, J. W OFFUTT, W. P O’REAR, J. B. STONE, J. C. TOMLINSON, G. E. WACHS, C. B. WALLACE, TOM WATKINS, J. S. WEBB, FREEMAN WILLKIE, H. F. TRANSPORTATION Postwar Advisory Planning Commission of Kentucky July 10, 1945 PREAMBLE The economic life of any region or large area that is rich in natural resources, whether they be products of the soil, mines, or forests, depends on the ability to transport such products to market. It has well been said that “Transportation is the life blood of the Nation,” and this is likewise true of the Commonwealth of Kentucky. In order to give thoughtful consideration to a plan for the future, it is always well to review the past, for we gauge the future only by what has happened in the past. With the turn of the 20th Century more progress has been made in the volution of transportation and its counterpart, communication, than since the days of the Roman Empire or recorded history. Under a democratic system of constitutional government such as we enjoy it was not found necessary to regulate interstate commerce by Bureau Act until 1887 when Congress passed the Act to Regulate Interstate Commerce and provided for its administration by the Interstate Commerce Commission. With sub- sequent amendments this Act applied to railroads only. Not until August 9, 1935 was it amended by the Motor Carrier section, known as Part Two, placing transportation of passengers or property by motor carriers under regulation. This amendment was brought about by public demand on the part of railroads, shippers and receivers of freight, and the motor truck and bus operators themselves. By similar public demand on September 18, 1940, the Act was further amended by adding Part Three placing water carriers under the Interstate Commerce Commission. This com- pleted the form of regulation of the railroads, trucks, buses, and water- ways, including freight forwarders under one governmental tribunal as an independent and impartial referee charged with the administration of carrying out the policy of Congress in seeing that each form of transporta- tion was policed in the public interest. National Transportation Policy: Application to Kentucky The Postwar Advisory Planning Commission fully endorses and adopts as its general recommendation relating to transportation the National Transportation Policy as expressed in the Transportation Act of 1940, as follows: “It is hereby declared to be the national transportation policy of the Congress to provide fair and impartial regulation of all modes of transportation subject to the provisions of this Act, so administered as to recognize and preserve the inherent advantages 212 of each; to promote safe, adequate, economical, and efficient service and foster sound economic conditions in transportation and among the several carriers; to encourage the establishment and mainte- nance of reasonable charges for transportation service, without unjust discriminations, undue preferences or advantages, or unfair or destructive competitive practices; to cooperate with the several States and the duly authorized officials thereof; and to encourage fair wages and equitable working conditions:—all to the end of de- veloping, coordinating, and preserving a national transportation system by water, highway, and rail, as well as other means, ade- quate to meet the needs of the commerce of the United States, of the Postal Service, and of the national defense. All of the pro- visions of this Act shall be administered and enforced with a view to carrying out the above declaration of policy.” The philosophy of past days that any one form of transportation had an inherent right to the traffic available for shipment has given way to more modernized thinking under the new and enlarged Act to Regulate Commerce. Today in an era of coordination we are using the particular type of transportation best suited to handle the traffic at the lowest cost. Railroad management has found it more economical to substitute trucks in lieu of train crews in handling certain types of traffic. In this field Kentucky can make much improvement to the profit of all concerned. Out of the emergency of World War II we have been taught that many practices of the past have been unduly wasteful. The transportation equipment used in the public interest in Kentucky has not been perform- ing efficient and economic service. On the contrary, it has not been utilized within 50% of its carrying capacity of merchandise cars and a Somewhat lesser per cent of carload traffic. It took a world war to arouse us from our apathy. We should not return to the wasteful practices of the past in light-loading of railroad cars. One car is now performing as much service as three cars performed previously. The recognition of and the responsibility for eliminating these wasteful practices should be placed equally upon the public, the shipper, and the railroads. We shall deal with this and similar subjects in more detail under dis- cussion of the specific types of transportation which will follow. It is sufficient to say that Kentucky has much to gain if we lift our sights and set our house of state in order by being aggressive in our performance as nature has been in blessing us with bountiful resources. RAILROADS A. Merchandise Cars Merchandise freight, better known as “less carload,” was handled in a most wasteful manner prior to World War II. Competition between 213 carriers to and from many points resulted in cars being forwarded with miscellaneous freight weighing from 3,000 pounds to 8,000 pounds and in many cases less than 3,000 pounds. The first order of the Office of De- fense Transportation was to stop this waste of transportation by placing in effect a minimum of 20,000 pounds. Many cars are being transported with weight considerably in excess of the minimum, and it has been esti- mated by the Association of American Railroads that one box car is now performing the same service as five box cars in the handling of this type of traffic in prewar days. This practice has released thousands of cars for other uses and is recognized as the most efficient of all the car service orders. It is the hope of all interested in efficient and economical service that the public, the shippers, and the railroads will cooperate to the point that these wasteful practices not be resumed At the present time most railroads in Kentucky handle “less carload” freight between division points by way freight trains. That is to say, the local freight train performs the switching service to and from all stations and sidings in addition to the train crew unloading or loading any freight to or from the station depot. This is a costly and wasteful practice that should be handled by trucks. Many railroads in adjoining states have Substituted truck service for such operations including store-door pick- up and delivery. This they do not now have at many stations for lack of Service of a local drayman. This traffic could be handled more eco- nomically and is being so handled in other states by set-out merchandise cars at division or junction points for truck service to complete delivery. The economics of coordinated rail-and-truck transportation has long passed the experimental stage and is being performed by railroad-owned or leased subsidiaries. We commend to the railroads of Kentucky a more coordinated service on this type of traffic and recommend that they be permitted to perform this service by governmental regulatory bodies. B. Carload Traffic As previously stated, the carrying capacity of cars is being used as never before due to the war emergency. The length of haul per day in miles has materially increased. The turn-around time of each car has been reduced to such an extent that many shippers throughout Kentucky take Only 24 hours to load or unload carload lots even though they are lawfully allowed 48 hours time for such services. Without such per- formance there would not be enough equipment to meet the war emergency. In peacetime such rules and regulations will no doubt be modified. A fresh look will be necessary in the revision of carload minimums. The advance in building heavier carrying cars should be accompanied by a sliding Scale of reduced rates depending on the increased minimum weights applicable. Every means possible under peacetime competition should be 214 used to utilize freight car carrying capacity. Every incentive will be held out to shippers to load cars to capacity, even though trade practices of the past have approved low minimum weights with the resultant waste of car efficiency. C. Land Grant Rates The shipping interests of Kentucky have urged its Congressional repre- sentatives to support legislation repealing the provision requiring land- grant rates. In the present Congress a bill has passed the House and is pending in the Senate seeking such repeal. This is of special interest to shippers inasmuch as an additional burden is placed on the freight rate structure for commercial use if the government traffic is carried at less than reasonable rates. Every effort should be made to secure the coopera- tion of the two Kentucky Senators in support of passage of this measure before adjournment. D. Coordination of Rail, Motor, and Water Service and Rates Kentucky now enjoys joint rail-and-water service and rates to a limited degree. We do not have joint rail-and-motor rates even though there is an increasing interchange between these two types of service. The railroads have not thus far seen fit to check in a comprehensive line of joint rail-and-motor rates even though they have and are using trucks through contractual arrangements for pick-up and delivery service. It is estimated that there will be an increasing joint tonnage requiring rail- motor-water rates, and where facilities are available, rates should be pro- vided to meet actual needs as they may develop. HIGHWAY TRANSPORTATION Not since the invention of the internal combustion engine has greater progress been made for the economical welfare of society than through the science of the motor industry. Kentucky has not developed her op- portunities in this field and trails far behind her surrounding sister states in its development and utilization of highway transportation. With such laxity our economic welfare has suffered, and we have not begun to explore the productive resources of our state. We shall deal with Highway Transportation under three divisions, i. e., Passenger Cars, Buses, and Trucks. Postwar federal aid offers many opportunities for road building in co- operation with the Federal Government's Public Roads Administration, which has developed the art of road construction along lines of interstate connections uniform in carrying capacity and design. If we of Kentucky don’t take advantage of these opportunities, we shall have failed in our day and generation to meet the challenge offered to modernize our highway transportation and take our place with surrounding states. 215 The importance of allocating highway-user taxation to a modern sys- tem of highways by constitutional provision will in due course be con- sidered. Public sentiment throughout the state is crystalizing on this sub- ject, and from editorials and newspaper comments, it is overwhelmingly in the affirmative. A. Passenger Cars Travel by individually owned and operated vehicles is by far the larger percentage of all highway travel. This is as it should be, as it is more flexible to modern needs. The informality of an auto trip for business or for pleasure, departing and arriving at will, makes it an indispensable instrumentality in our economic and social life. Within a few hours drive of Kentucky’s home boundaries are some seven million passenger auto- mobiles which are used at some period of the year for pleasure trips. These automobiles, when attracted to Kentucky resorts by reason of good roads and development of our resort facilities, will pay a large return through gasoline taxes and likewise attract large sums of out-of-the-state income. We have many scenic places in Kentucky that will attract tourists, but these gems of natural beauty are woefully lacking for adequate housing and lodge facilities. Indiana has developed her resources in this regard until thousands of travelers throughout the Central West seek reserva- tions at her year-around parks, thereby adding to the state's economic and recreational welfare. A study of taxes, both federal and state, as they apply to automobiles should be undertaken as a postwar objective. Any study of taxation should include the “policing” expense included in the cost of collection. Municipalities should not subject private transportation to other than general taxation. Enabling legislation has provided for the building and maintenance of city streets carrying through traffic at the expense of the State highway fund. All cities have invoked personal property taxes; a few have special license tags as levies. In making plans for the postwar use of automobiles, much thought should be given the matter of safety. Strong regulatory measures to pro- mote Safe highways, with resolute enforcement, is the only way the casu- alty lists can be reduced. Inevitably we shall have much old and worn out equipment on the high- ways, a Substantial portion of which belongs on the dump pile. Prewar traffic Speeds will require new cars and tires if for no other reason than the driver's individual safety. Kentucky should have a State Highway Patrol with police powers comparable to organizations in neighboring States. Without adequate enforcement by a highly trained and well in- 216 formed patrol, the economic loss will be more than the cost for maintenance. Legislation to make for full responsibility of all motor vehicle operators is already embodied in the 1944 revision of the AAA Safety-Responsibility Act and should be supported by all affiliated groups in Kentucky. A comprehensive program for the promotion of postwar use of per- sonal passenger car transportation should include the following: 1. A planned road building program. 2. Improved state park facilities. 3. Tax adjustments. 4. Legislation and enforcement for safety. B. Public Motor Bus A summary of general postwar planning and its relationship with the commercial motor bus can be materially improved throughout Kentucky in doing a better job both in service and employment. A five-point pro- gram is respectfully suggested as follows: 1. Improvement of highway construction on the principal North and South Highways and the East and West Highways. The principal flow of traffic is North and South. The Ohio River crossings are noted as the gateways to the South with adequate bridges constructed at most cities with free tolls in many instances. Early completion of these North and South highways will benefit the largest amount of travel by highway and help toward placing Kentucky on a parity with adjoining states in meet- ing the needs of interstate travel and commerce. 2. Improvement of secondary and rural highways should be planned in order to permit year-round use. Many Kentucky communities have no means of transportation other than these. Rural mail service and school bus travel alone justify such expenditures, not to mention the advantages to agriculture in marketing the farmer’s products. 3. Kentucky is handicapped by trade barriers because of inequitable regulation and taxation. We recommend an impartial study be made of such regulations and taxes as will best serve the common carrier motor- bus line to the end that Kentucky will be able to serve the public interest on a basis comparable with bordering states. 4. All taxes collected in connection with motor vehicle usage should be used for development and maintenance of its highway program. As the highway system is improved and brought up to a higher standard, all users of motor vehicles in Kentucky will benefit by the lower cost of such improvements. 5. The program of freeing toll bridges in Kentucky should be accel- erated to the end that all toll bridges be made free. 217 C. Motor Truck Transportation The history of successive civilizations, from their earliest beginnings, has shown that their wealth and power were largely derived through trad- ing and that transportation was the life blood of trade. Other states are recognizing the many advantages of trade by res- cinding obsolete laws and passing new legislation, all designed to foster and promote interstate and intrastate trade. Even local communities and states are active and frequently offer large savings in taxes and other Con- cessions in developing more industries for their towns or state. In many cases, free sites and buildings are held out as an inducement for Securing new plants, thus insuring substantial payrolls and purchasing power. It is estimated that 65.9% of Kentucky’s communities have no trans- portation facilities other than those offered by truck service Over Our present highways. In addition, every community served by any other transportation system is also served by trucks. In many instances truck and rail service is now coordinated by store-door pick-up delivery. It is obvious that any expansion of transportation must, first, point Out the economic importance of trucks with concurrent and progressive im- provement of highways, and, second, enlarge motorization in rural and urban areas, thereby effecting savings in labor cost by use. In support of the above objectives it should be borne in mind that trucking in terms of commerce hauled is a small part of all trucking. Of all trucks operating in the United States in 1944, the following functional breakdown is of interest: 34.63% operated for agriculture. 14.22% operated for consumer industry. 13.25% operated for hire industry. 37.90% numerous other groups. These figures indicate the importance of trucks to farmers. In Ken- tucky 129,000 of her 311,610 farm dwellings are not served by surfaced roads. This presents a difficult problem to production and marketing of agricultural produce notwithstanding the fact that we are an agricultural state. While tobacco, livestock, dairy products, and some few other crops are the principal sources of farm income, tobacco is the only product which has been well distributed in Kentucky on a large scale. Based on experience in other states, the lack of trucking facilities has held farm development and trade in check. It is obvious that improved highways will add to the entire state's wealth if means are provided to utilize trucks. All industrial development and new construction is designed to meet the needs of trucking facilities. Many of our older manufacturing plants with only railroad sidings have been reconditioned with platform space, 218 yards, and loading equipment in order to avail themselves of this new and more flexible instrumentality of transportation. The greater use of our natural resources, such as coal, gas, oil, lumber, rock asphalt, limestone, sand, gravel, etc. will naturally follow the ex- pansion of the highway program. Many new avenues of production would be opened up which are now lying dormant. Any such new wealth that can be developed will enhance the entire state's economic importance and militate to the advantage of all forms of transportation. Kentucky’s de- velopment of truck transportation has been retarded by the following causes: first, insufficient extension of suitable highways; second, restric- tive legislative action eliminating Kentucky from interstate highway com- merce by load-limits materially lower than those of surrounding states or any state in the entire nation. The Department of Highways has conducted surveys which reflect highway needs. Kentucky has 57,000 miles of roads, 10,000 miles of which are in the state highway system and 47,000 miles in the county road systems. Only 2,100 miles of Kentucky’s highways have high-type sur- facing. 27,000 miles have lower type surfacing including 3,300 miles of traffic bound macadam and the rest mainly stone or gravel, while there are about 28,000 miles of unsurfaced, unimproved earth roads. Eighteen Kentucky counties, thirty Kentucky county seats, and 425 Kentucky towns with 100 or more population are not served by railroads and depend entirely on highway transportation. Kentucky has a greater percentage (65.9%) of its communities without rail service than any other state in the nation. Under the Post-War Federal Aid Act passed by Congress in 1944 there will be made available to Kentucky for highway construction $8,907,656 for each of the first three postwar years, or a total of $26,722,968. Ken- tucky, like other states, must match this federal aid in order that it can be expended in our state. In other words, Kentucky can build approxi- mately $54,000,000 worth of new roads in the three years following the end of the war provided we use present highway user taxes for road pur- poses only. The federal law provides for withholding a portion of fed- eral aid from those states which divert road-user revenues in violation of the 1944 Federal Highway Aid Act. If the three-year program is adopted by our State Administration, it will improve the entire Commonwealth industrially, agriculturally, and commercially by highway transportation. Kentucky’s industrial expansion will provide employment for the thousands of Kentucky citizens that leave the state each year to seek industrial employment which Kentucky does not now offer. The population of Kentucky has decreased 215,433 persons 219 in four years during which time the southern states show an increase of Over 1,000,000 persons. In order to assure Kentucky's opportunity to use funds for road con- struction from taxes paid by the highway users and match the Federal Aid Act of 1944, the people will have the opportunity to vote on an amend- ment to the Kentucky Constitution on November 6, 1945 which should de- termine by popular referendum the people’s will as to the highway policy for the states. Sixteen states have adopted such amendments to their constitutions since 1920. Missouri adopted its amendment in 1928 and after 17 years of experience under the amendment rewrote it into their new constitu- tion which was ratified by its citizens in March 1945. Four other states in addition to Kentucky have taken legislative action to submit such an amendment to their voters. The Kentucky law provides single trucks cannot exceed 26% feet and tractor-trailer combinations more than 30 feet in length. The gross weight is 18,000 pounds which is the lowest of any state in the union. Kentucky’s truck height restriction is 11.1% feet, also the lowest in the United States. Four states set 12 feet height restriction, and forty-three states prescribe 121/2 feet or more. Kentucky’s Emergency Law (enacted in 1942 and expiring at the War's end) provides 33 feet in length for tractor-trailer combinations and 28,000 pounds gross weight, which is still lower than any permanent law in the United States. Since June 26, 1942, under special permits from the Commissioner of Highways, trucks may carry 40,000 pounds gross load and 18,000 pounds axle load over certain federal highways. In some instances, gross load in excess of 60,000 pounds has been permitted, but axle load did not ex- ceed 18,000 pounds. The enactment of size-and-weight regulations conforming to the prin- ciples recommended by the United States Public Roads Administration has been endorsed by many national groups. These include such groups as American Association of State Highway Officials, American Associa- tion of Motor Vehicle Administrators, American Farm Bureau Federa- tion, The National Grange, National Highway Users Conference, and the American Automobile Association. The major purpose of the United States Public Roads Administration in recommending the principles of the size-and-weight code is to prevent conflicting laws in the various states, thereby eliminating interstate trade barriers. 220 Thirty-four states have adopted the size-and-weight code in accordance with the principles recommended by this Administration, and thirteen other states subscribe to its axle weight formula, but have a size-and- weight limitation two times greater than allowed in Kentucky’s peace- time law. The present gross load limit of 18,000 pounds and the 30 foot length restriction, set up an interstate commerce trade barrier which has the following effect: 1. Restricts development of highway transportation ; 2. Penalizes receivers and shippers through increasing transporta- tion costs; 3. Delays industrial development of Kentucky by placing it in a backward state category as compared with all bordering states; 4. Tends to create new and competing forms of transportation in order to by-pass Kentucky to and from Southeastern states; 5. Militates against agriculture and Kentucky farmers by higher cost per unit than possible in neighboring states; 6. Increases cost to the consumer of Kentucky, as small loads make for larger unit price; 7. Deprives the state Highway Department of substantial reve- nues which would be derived from taxes on additional gasoline consumption and license fees. Because 65.9% of Kentucky’s communities are not served directly by rail service, the Commonwealth should assure the best facilities in high- ways and load-limits rather than the nation’s poorest. Why should Kentucky have an inferior service to that of Tennessee, our Southern neighbor, which enjoys a gross-weight-limit of 42,000 pounds and length limits of 35 feet for single trucks and from 35 to 45 feet for tractor–trailer combinations? Kentucky should enact legislation providing full reciprocity with other states on truck license fees, as has been done by 46 states which now have some form of reciprocity. The point has been raised that commercial trucks and buses, using the highways for business purposes, are using a public facility, publicly con- structed and publicly paid for. That commercial highway carriers ac- tually pay substantially more than the total annual highway costs for the roads over which they travel is clearly demonstrated by the following analysis developed by the Division of Planning of the Department of Highways: - 221 4! №wºſo）, ſyĮ0pºſ：9 18 w I fi 310 m. ſp.）, I,{ 0 ºdſi,I, s. !!!, I, ！ ： HIGHWAY COSTS AND REVENUES AT THREE SELECTED POINTS ON HEAVILY TRAVELED HIGHWAYS Typical Mile Near Graefenburg, Franklin County—U. S. 60 1. Grade and Drain (50 year life expectancy).................... $ 738.81 2. Bridges (50 year life expectancy) .................... 138.52 3. Base & Surface (30 year life expectancy) .................... 1,279.63 4. Total construction cost per mile per year...................................... $2,156.96 5. Maintenance cost per mile per year.................................................. 400.00 6. Total annual highway costs.................................................................. $2,556.96 7. Passenger Cars —2,344 X 365 days x $0.00404...................................................... $ 3,456.46 8. Trucks and Buses—1,244 x 365 days x $0.00664...................................................... 3,014.96 9. Total annual income from traffic....... * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * ~ * $ 6,471.42 10. Less annual highway costs...................................................................................... 2,556.96 11. Annual net revenue per mile.......................................................................... $ 3,914.46 Typical Mile Near Dry Ridge, Grant County—U. S. 25 1. Grade and Drain (50 year life expectancy).................... $ 236.26 2. Base and Surface (30 year life expectancy).................... 1,076.55 3. Total construction cost per mile per year........................................ $1,312.81 4. Maintenance cost per mile per year - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 400.00 5. Total annual highway costs.................................................................. $1,712.81 6. Passenger Cars —2,949 x 365 days x $0.00404.................................................... $ 4,348.60 7. Trucks and Buses— 863 x 365 days x $0.00664------.............................................. 2,091.57 8. Total annual income from traffic.......................................................................... $ 6,440.17 9. Less annual high Way Costs...................................................................................... 1,712.81 10. Annual net revenue per mile - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - $ 4,727.36 Typical Mile Near Radcliffe, Hardin County—U. S. 31-W 1. Grade and Drain (50 year life expectancy) .................... $ 355.49 2. Base and Surface (30 year life expectancy).................... 1,152.72 3. Total construction cost per mile per year........................................ $1,508.21 4. Maintenance cost per mile per year.................................................. 400.00 5. Total annual highway costs................................................................ $1,908.21 6. Passenger Cars —6,201 x 365 days x $0.00404.................................................... $ 9,143.99 7. Trucks and Buses—1,720 x 365 days x $0.00664.................................................... 4,168.59 8. Total annual income from traffic............................................................................ $13,312.58 9. Less annual highway costs.... * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * * 1,908.21 10. Annual net revenue per mile.......................................................................... $11,404.37 It is the duty of Kentuckians to translate into action a program for the betterment of our highway transportation in order to elevate the state’s position from a sub-standard classification to a position of which we may all be proud. The additional revenue for highway construction required to carry out Such a program can best be obtained through the more complete usage of existing highways thereby resulting in greater gasoline consumption and Similarly a raising of correspondingly increased gasoline tax revenues. 223 weight limits on trucks will yield greatly increased revenues from license fees as well as increased gasoline tax revenue. The Highway Department should be granted authority to determine which highways are suitable for respective increased load-limits. WATERWAYS Kentucky has been wonderfully blessed by having a waterway system equaled by few other states. The Ohio River covers the entire boundary on the north with tributaries to the south that are navigable and carrying bulk cargo freight in sub- stantial volume. They are in the order of their importance: Tennessee River, Cumberland River, Kentucky River, Green River, Licking River, Big Sandy River, and Barren River. The Ohio River freight traffic is holding close to record figures in actual tonnage as prepared by the U. S. Army Engineers. The 1944 traffic was 37,801,254 tons against 1943 of 36,610,262 tons and the record year of 1942 of 38,280,812 tons. The length of average haul has increased as follows: 1942—136.4 miles. 1943—163.8 miles. 1944—185.3 miles. In ton-miles the figures are as follows: 1942–5,299,846,755. 1943–5,996,346,526. 1944—7,004,056,443. Much of the increase in tonnage is traceable to movement of petro- leum products—crude oil, fuel oil, and gasoline. It is predicted that the 1945 figures will reflect a decline because of re- lease of Some tankers to coastwise trade again, plus full use of the two new transcontinental pipe lines, Big Inch and Little Big Inch. There were few significant changes in movements of other commodities during the three years. Movement of iron and steel products is always Substantial on a year round basis, as shown in the following figures: 1943—1,712,077 tons. 1944—1,742,012 tons. Sand and gravel figures were: 1943—3,959,195 tons. 1944—7,000,734 tons. In peacetime a substantial tonnage of distilled products moves from Kentucky through Ohio River gateways and waterways to the Pacific 224 Coast. This traffic is handled by rail or truck to river terminals and thence by barge to New Orleans and transhipped through the Panama Canal. A large share of Kentucky’s sugar and coffee is transported by water at differential rates under all-rail movement from Gulf ports. Other com- modities are moving in large lots, such as canned goods, paint and chem- icals, automobiles, peanuts, lumber, soap, bottles, and many other com- modities. Most of Kentucky’s larger industrial plants have been located on or adjacent to her rivers, and there is forecasted an increasingly broader use of these channels of commerce. There is always a large tonnage of basic commodities that do not re- Quire expedited movement. Such traffic naturally takes the form of water- borne commerce. We recommend a closer coordination of water-rail-truck rates and Services, as such a forward movement will attract to and from our rivers a steady flow of traffic into the hinterland of Kentucky. KENTUCKY'S AVIATION NEEDS Kentucky stands astride the continental airline routes both east and west and north and south, with only one city with facilities that can handle present day commercial planes. The per capita ratio of the state is highest in enlistment in the Air Corps. The people of Kentucky are air-minded, and at present several citizen groups have applications pending before the Civil Aeronautics Board seeking certificates of public convenience and necessity to establish commercial airlines. The Air Transport Command has thousands of avail- able DO-3's, the standard Douglas Airliner, available for conversion; and this with other similar types built by Consolidated Vultee, Lockheed, and Curtiss Wright provide an immediate back-log for airline expansion. The Super transcontinental, trans-ocean airliners are either in the ex- perimental stage or actively flying now in the Air Transport Command world-wide routes. They will provide the fast, safe, and comfortable long distance travel for the future. Such a service will be available to and from a few Kentucky cities that have suitable airports, and available to smaller communities by feeder lines to and from these base points. A. Kentucky’s Share of Aviation In 1944 there were approximately 17,000 civil aircraft and 100,000 civil pilots in the United States. The growth of the industry is comparable with that of the automobile industry and output between 1910 and 1915. It will thus be seen that our postwar outlook for aviation is hard to forecast, and Kentucky’s interest should assure us of our share in this new medium of transportation. 225 B. Private Aircraft At the present time Louisville has 37 purely private aircraft and 9 or 10 engaged in commercial operation off of one field. It is estimated that by 1950 Louisville should have 1,500 aircraft and five airports to provide landing and take-off facilities. It will be necessary to construct hangars, service facilities, overhaul shops, and express highways to the cities from the airports, as well as increase vastly the radio and navigational facilities within the area and possibly institute a block system of traffic control. C. Intrastate Air Carriers The Intrastate Air Carrier or the feeder airline performs an important transportation service. These short line operators will funnel mail, ex- press, light freight, and passengers into the major airlines. They will operate small ships carrying five to six passengers and 1,500 pounds of express and air mail. In Kentucky we may anticipate 250 feeder aircraft providing service within a reasonable distance of even towns as small as 1,500 population. The Kentucky Aeronautics Commission has begun to receive applica- tions for Certificates of Convenience and Necessity, which are necessary before operatives of this type can be started. D. Interstate Air Carriers Officials of the Kentucky Aeronautics Commission estimated 9,000 transport aircraft within the continental United States soon after the war is over. Eight thousand of this group will be used in the transportation of passengers, mail, and express; one thousand for Air Cargo Freight. These figures do not take in the aircraft used in International services. At this time several of the major companies operate exclusive mail, ex- press, and freight cargo planes. Three companies at present serve Louisville. They are the American Airlines, Eastern Air Lines, and Bluegrass Air Lines with the following daily trips in this order: 10 trips, 6 trips, and 2 trips. - The Chicago & Southern Air Lines are authorized to stop at Paducah when airport facilities are completed. The Eastern Air Lines and Delta Air Line are authorized to stop at Lexington when airport facilities are completed. Several air lines have applications pending before the Civil Aeronautics Board seeking to ex- tend their passenger service or operate on scheduled routes in Kentucky. The following applicants are now pending in the CAB Docket known as the Southeastern Case: All American Aviation, Inc. Tri-State Transit Company of Louisiana. Commonwealth Air Transport, Inc. 226 Delta Air Corporation. Gillespie Airways. Mountain Airways Company. Blue Grass Air Lines. E. Proposed System of Airports The development or expansion of air transportation is controlled by the operable airports in any given section of the country. There are three coordinates as related to airports that govern utility. They are: 1. Number of airports. 2. Distance of airport from population center. 3. Size of airport as a limiting factor. The development of a state-wide airport plan requires the integration of two factors with local conditions which in the case of Kentucky are: 1. Recreational areas and state parks 2. Emergency facilities in rough terrain Due consideration of the above points, in light of the anticipated ex- pansion of private, commercial, and transport operations, has resulted in the following general basis for the selection of airports of the proper class as determined by the C. A. A. 1. That the center of population in each county, usually the county seat, shall be provided with adequate facilities, usually a Class I airport, except as herein provided. 2. Each city of 5,000 population or more shall be within a ten mile radius of a Class II airport suitable for private, commercial, and feeder line operations. 3. Each city of 30,000 population or larger shall be within a fifteen mile radius of a Class III airport suitable for interstate, feeder, private, and commercial operation. 4. Any large center of population shall be provided with a Class IV or/and V airport located within fifteen miles of the business Section. Said airport is to be suitable for feeder, interstate and com- mercial operations. In addition Class I or II airports shall be provided as re- quired for private, commercial, and other feeder line service. 5. Each state park or recreational area shall be provided with landing strips, where practicable as nearly adjacent to the center of interests for flying safety. 6. Additional landing strips are provided where required in the interests of flying safety. 227 w0110).toºls.wp., I, ſo ſoºſ unowolae) ºnų. I, sºuſ luſw uboſuºtuv jo ºsaſunoo oſoq：I- In carrying out the selection of landing facilities the above basis was used as a general guide; strict adherence cannot be used although the ex- ceptions are limited. For instance, the City of Frankfort (population 11,402) should be provided with a Class III airport. A single Class I Airport, centrally located, is adequate for two smaller cities in most instances where the cities are less than 12 miles apart. Table No. I, DESCRIPTION OF AIRPORTS BY CLASS (I THROUGH V), is shown as an appendix. F. Plan of Action To realize the type of air development that the State of Kentucky is justly due will call for the support of all civic and air-minded citizens. It is the responsibility of the people of Kentucky to place the Commonwealth in its proper relationship with other progressive states in air development. We recommend a well-financed State Department of Aeronautics. A number of bills giving federal aid to airport construction are pending in Congress. Planning necessary to make it possible to be ready to go for- ward with the national plan is immediately necessary. Lack of planning will deny Kentucky federal aid as set up in the national plan and militate against receiving our share in relation to comparable states. Every airport, however large or small, must be planned for present and future needs. Before federal aid can be given, a complete set of plans must be furnished the Civil Aeronautics Administration. G. Necessary State Legislation If Kentucky is to get federal aid on its airport construction plan, cer- tain legislative changes in the statutes are necessary to comply with the federal acts, as follows: 1. An act for the zoning of airports 2. The tax collected on aviation gasoline should be used for avia- tion or an equivalent amount appropriated for that purpose by the Legislature from the General Fund. Recommendations H. 1. Sound Airport Plan. 2. Sound Air Transportation Plan. 3. Sound Plan to absorb veterans in aviation jobs. 4. Sound Plan to include aviation in our educational system. 5. State-owned airport at Frankfort. 6. Legislation (Zoning and Aviation Gas Tax). 7. $100,000 annually for State Department of Aeronautics. 8. $500,000 to help small cities and build state airport. 9. $75,000 immediate emergency appropriation. 229 CONCLUSION It will be noted that we have not dealt with Pipe Lines which are of vital interest to many branches of our economy and industrial welfare. We have not dealt with urban transportation which is of special in- terest to municipalities throughout the state. We have pointed out only those problems that need postwar considera- tion at this time, together with corrective measures dealing with basic questions of interest to our commercial, industrial, and social welfare. 230 APPENDIX TABLE NO. 1 DESCRIPTION OF AIRPORTS BY CLASS Class 1 1800' to 2700' 300' NOne++ None 70% Drainage Fencing Marking Wind Direction Indicator Base Lighting (Optional) Class 2 2700' to 3700' 500' . 2500' to 3500’ 150' Night Oper. 100' Day Only 70% Same as Class 1 plus: Lighting Hanger & Shop Fueling Weather Info. Office Space Parking Class 3 3700' to 4700' 500' 3500' to 4500’ 200' Instrument 150' Night Oper. 100' Day only 80% Same as Class 2 plus: Weather Bureau Two-way Radio Visual Traffic COntrol-instru- ment approach System when required Taxiways & Aprons Administration Bldg. Class 4 4700' to 5700' 500’ 4500' to 5500’ 200' Instrument 150' Night Oper. 100' Day Only 90% Same as Class 3 Class 5 5700' and Over 500' 5500' and Over 200' Instrument 150' Night Opel'. 100' Day only 90% Same as Class 3 * All landing strip and runway lengths are for usable, unobstructed distances and are based on sea level conditions; for higher Landing Strip Length Width Runways' Hard Surfaced Length."---------------------------------------------------. Width Percentage Of all winds to be covered within 22% 9% at runway and landing strip alignment Facilities (tltitudes in Cre(uses (t)'e (lb O7) e Sea level. necessary. ** Present standards do not call for surfaced runways on Class 1 Airports or “Airparks”. tions on these airports in the future will require hard surfaces for year-round operations. For most Kentucky situations, add 25 feet to minimum lengths for each 100 feet of elevation It is possible that increased Opera- SOM 7-Ce: CAZ–“Airport Design) § 1931-11) IT 0.1 89050 1000 pwoulſe！ Nº， I aqq Jo aesºquinoo oqotſaſ- REFERENCE REPORTS OF THE RAIL, HIGHWAY. AND AVIATION SUB-COMMITTEES OF THE TRANSPORTATION COMMITTEE These reports formed the Interim Report of the Transportation Committee and were submitted on May 8, 1945. They were not approved, how- ever, by either the Transportation Committee as a whole or by the Commission. INTERIM REPORT OF THE SUB-COMMITTEE ON RAIL TRANSPORTATION In response to the Chairman’s request the following is submitted as a statement of general principles the State should apply in dealing with the railroad industry, and of the position the executive and legislative departments should take on specific legislative measures affecting rail- roads and other forms of transportation. I. Adequate Transportation Essential An adequate railroad transportation system furnishing efficient Service at reasonable rates is as essential to the prosperity of the State and nation in times of peace as it is to their preservation in war. II. Government Ownership or Operation Should Be Avoided Experience has repeatedly shown that the most efficient transporta- tion service and at the lowest total cost to the public is furnished by private enterprise; accordingly, government ownership or operation of any transportation agency should be avoided. III. No Special Favors or Discrimination As the laws of the State require that each public service company serve all alike without undue preference or unjust discrimination, so, the rule of treating all alike with special favors to none should be the State’s policy in its treatment of the several competing transportation agencies. This principle of equality of treatment should be applied in the imposi- tion of taxes and in declining to furnish facilities for private business at public expense, as well as in exercising the powers of regulation. IV. No Government Construction of Transportation Facilities Unless Justified on Economic Grounds No proposal by the Federal Government to furnish part of the funds for the construction of any transportation facility on condition that the State furnish a substantial or equal part should be accepted unless, after careful scrutiny, it be found that— (1) The facility is really needed to furnish adequate transportation; (2) The compensation for its use paid by those for whose benefit it is to be constructed will repay the cost of construction and maintenance. W. Preferences in Granting Subsidies Hurtful to Public Interest The construction and maintenance by the government of facilities for carriers by highway, waterway and by air have resulted in a wasteful duplication of transportation facilities which in times of depression has 234 contributed to the insolvency of a substantial part of the transportation industry, and at all times has imposed excessive taxation on the public. The furnishing of transportation facilities at public expense encourages the favored carriers to seek further governmental favors and forces com- peting carriers in self-protection to oppose the extension of such sub- sidies. The granting by the State and Federal Governments of special favors to some and denying them to others has been the direct cause of conflicts before legislative bodies between competing forms of transporta- tion, which a wiser and fairer government policy would avoid. VI. Exclusive Privileges at Public Expense Should Not Be Granted to Motor Carriers The State laws which impose reasonable limits on the size and weight of commercial trucks that use the public highways should be retained. Commercial motor carriers from other states, as well as those whose headquarters are located in Kentucky, should be required to pay adequate compensation for the use of those highways and for the privilege of con- ducting a private business on public property. Exemption from taxation under the guise of reciprocity should not be granted to any carrier, but if adopted at all it should be extended equally to all agencies of trans- portation. VII. Railroads Should Be Permitted To Engage in All Forms of Transportation The State and Federal Governments should not only permit, but should encourage the development of competing transportation companies, each equipped to furnish transportation by rail, highway, air and waterway. The complete coordinated service furnished through such agencies, would, under proper regulation, be a distinct benefit to the shipping and traveling public, would preserve the inherent advantages of each form of trans- portation and tend to confine each to the function for which it is best adapted. This is also a practical method for eliminating the unjust dis- crimination in governmental subsidies and the serious problems resulting therefrom, to which reference is made in the preceding paragraphs. VIII. Discontinuance of Unneeded Services and Facilities Railroads should not be required to maintain facilities or services after the business for which they were furnished has ceased to justify their continued existence. IX. No Need for Several Regulatory Commissions The regulation of all types of transportation should be consolidated under one regulatory body. 235 X. Restrictive Railroad Regulation The details of management and operation of railroads are now so regulated by law that some of the characteristics of private operation have been destroyed. Excessive regulation impairs both efficacy and economy of operation. Whether or not the view is correct that there is too much governmental regulation, certainly there is no need for addi- tional restrictive and repressive railroad legislation. XI. Equitable Distribution of Cost of Grade Crossing Eliminations In some instances laws requiring expenditures by railroads have been retained after conditions have so changed that the reason for their enact- ment has ceased to exist. For example: The Kentucky Statutes providing for grade crossing eliminations require railroads to pay 50% of the cost when the elimination is initiated by the State, and even a larger per- centage when initiated by cities of the first and second classes. As a result of the complete change in the construction and use of the highways brought about by the development of motor transportation, recent State and Federal legislation has recognized that grade crossings are eliminated for the benefit of highway transportation rather than for the benefit of the railroads. To illustrate: In 1939 Indiana reduced the railroads’ portion Of the cost to 20%, and New York, Michigan and Ohio have recently re- duced the maximum railroad contribution to 15%. Railroads may not be required to pay more than 10% of the cost of any grade crossing eliminated with funds to which the government has contributed under the Federal Aid Highway Act of 1944. The laws of Kentucky should be amended so that the costs of grade crossing eliminations will be distributed equitably and in accordance with modern practices. XII. Reasonable Return The policy of the State and Federal Governments, particularly in the matters of taxation and of regulation of rates, should be to allow rail- roads a reasonable return on the value of their property devoted to public use and thus to assure that adequate service will be furnished, that equip- ment, structures and roadway will be kept up to modern standards and that employment at adequate wages will be maintained XIII. State Policy on Certain Federal Legislation Affecting Railroads Through its executive and legislative departments and administrative commissions the State’s policy should be announced on Federal measures affecting transportation as follows: A. Deferred Maintenance as Operating Earpense The income tax laws should be amended So as to treat as an Operating expense reserves accumulated to meet the burden of maintenance that has been deferred on account of the war. B. Clarification of The Anti-trust Laws In order to remove the existing uncertainty as to the application of the anti-trust laws and to preserve to the public as well as to the carriers the advantages of the conference method of rate-making, the Federal Statutes should be amended so as to eliminate any doubt as to the validity of co- operative action in the establishment of rates and the arrangement of services and to authorize such cooperative action between carriers and shippers and between the carriers themselves, under the Supervision and regulation of the Interstate Commerce Commission. C. Land Grant Rates The policy of the State and Federal laws is to prohibit discrimination in rates. The Federal Government itself should not insist upon preferred treatment. The land grant rates should be abolished. D. State Regulation of its Own Property Since the State owns and must maintain the highways, the Federal Government should not, in the interest of the interstate trucking com- panies, take from the states the right to determine the size and weight of motor vehicles which may use the State’s property E. The Inland Waterways Corporation, This corporation operates on waterways maintained at public expense, pays no income taxes or interest on borrowed capital, yet the application of sound methods of accounting to its books shows that it operates at a loss. The Government should dispose of its property and thus discontinue this costly and unfair experiment in government competition with private enterprise. INTERIM REPORT OF THE SUB-COMMITTEE ON HIGHWAY TRANSPORTATION The Highway Transportation Sub-Committee, through its three di- visions on Passenger Car Transportation, Truck Transportation and Bus Transportation, has carefully studied all phases of highway transporta- tion in the State of Kentucky and their relationship to the general welfare of the Commonwealth. These studies which are made a part of this report reveal that Kentucky occupies a very unfavorable position among the states in its development and utilization of highway transportation. This situation is reflected by our present unbalanced economy with industry, 237 particularly in the interior of the State, far below our normal potential; most of the State too heavily dependent on agriculture; and our tourist attraction resources not fully developed and productive. A broad solution to this problem seems available to us by full par- ticipation in the Postwar Federal Aid program of road building enacted by Congress last year, which will permit our State in the next four years to make great strides in the completion of our state highway system in both urban and rural areas. Secondly, the State’s antiquated policy of stifling the use of available and projected highway facilities through the con- tinuance of restrictive highway use laws may be changed by the adoption of a new highway use policy predicated on scientifically prepared legisla- tion recommended by the Federal Government’s Public Roads Administra- tion. This will on the one hand protect the State’s investment in its high- ways, and on the other hand make available to Kentucky business and industry the transportation facilities for which our highways have been and will be designed and constructed. The reports of our three divisions, which follow, submit a detailed analysis of this whole problem and all emphasize the importance of devot- ing the State's entire revenue from special highway user taxation to the improvement and completion of our highway system by constitutional pro- vision. It is the hope of your Highway Transportation Committee that every Kentuckian deeply interested in the welfare and progress of our State will carefully study the facts presented herewith and join together in a suggested postwar program which we believe will do as much or more for the upbuilding of Kentucky’s gross income, tax income, employ- ment of its citizens, and the general public welfare than any other single project. Report of the Passenger Car Division Transportation needs for the post-war period applying to the passenger automobile become more easily recognized when consideration is given to the distinct uses served by this mode of travel. First, the most important phase of passenger car operation lies in its mobility when applied to the activities necessary to business. Short busi- ness and conference trips make the automobile a great timesaver. Second, the pleasure, recreation and release offered by a leisurely drive through the country to new scenes and the out-of-doors, supplies a freedom of movement entirely a part of the democratic life. Objectively, then, the most important post-war activity to this phase of transportation should be to provide, both for business and for pleasure, the accessory which makes the automobile such a great convenience. This accessory, without which automobile values in transportation depreciate, is adequate and safe highways. Thus, it may be seen, the importance of 238 the automobile is entirely dependent upon the means of operation. A sound and workable highway building program will do more than any- thing else to facilitate the economic value of the automobile. Exhaustive surveys conducted by the Planning Division of the Ken- tucky Department of Highways definitely reflect our highway needs. Kentucky has 57,000 miles of roads, 10,000 miles of which constitute the state highway system and 47,000 miles of rural and county roads. Only 2,100 miles of these have high-type surfaces, 27,000 miles have lower types including traffic bound macadam, stone and gravel, while there are 28,000 miles of unsurfaced, unimproved earth roads. Eighteen Kentucky counties, 35 county seats and 425 Kentucky towns with 100 or more population are not served by other than highway trans- portation. Kentucky has a greater percentage (65.9%) of its 4,494 com- munities without rail service than any other state in the Nation. Under the Post-War Federal Aid Act passed by Congress last year, there will be made available to Kentucky for highway construction $8,907,- 656.00 per year for each of the first 3 post-war years. That’s a total of $26,722,968 which Kentucky must match, dollar for dollar, in order that it be expended for roads in Kentucky. Matched thus, Kentucky will be able to build about 54 millions of dollars worth of new, standard highways. This matching cannot be done unless we restrict highway user taxes to road purposes only. Federal law of 1934 provides for withholding federal aid from states which divert to other uses, highway money. Development of highway transportation facilities will be beneficial to the employment program and the whole economy of the state. A greater percentage of money spent in highway construction goes to labor than in any other form of public work. The orderly development and expansion of Kentucky’s highway system and a revised legislative policy which will permit the proper use of existing and proposed highway facilities will do more for the general advancement of Kentucky than any other project. In order to insure the suggested program, the Kentucky Department of Highways must be assured of adequate funds. Present special and projected highway users’ taxes will be sufficient if devoted to highway purposes only. In the past, however, special road funds have been diverted to other than road purposes. According to the United States Public Roads Administration, Kentucky has diverted 10 millions of dollars of highway users’ taxes for general purposes. The many miles of improved highways which this sum of money would have purchased are now Sorely needed in Kentucky, but have been forever lost. Every meeting of the General Assembly in the past 15 years has been forced to consider one or more proposals for taking highway money for other uses. While most of these proposals have failed, the threat of statutory diversion should be forever removed. 239 Special highway users’ funds should be protected for this sole use by an amendment to the Constitution of the Commonwealth. Such an amend- ment was proposed and approved by the 1944 session of the Kentucky General Assembly with only one dissenting vote. The amendment will be submitted to the people for public approval at the General election on November 6, 1945. Sixteen states have adopted such amendments. Missouri adopted its amendment in 1928 and after 17 years of experience under its provisions, re-wrote it into the new Missouri constitution, ratified in March of this year. Four other states in addition to Kentucky have taken legislative action to enact such amendments. The idea of protecting a special fund is not new in Kentucky. Section 184 of our constitution provides that the school fund and any taxes levied for common school purposes “shall be appropriated to common Schools and to no other purpose.” The Good Roads Amendment has the backing of 54 local, regional, and state organizations united in the Kentucky Good Roads Federation for the sole purpose of securing ratification of the amendment next November. As of May 1, 1945, 23 of the state’s leading newspapers have endorsed Support of the proposal editorially and their position has been supple- mented by unanimous endorsement of The Kentucky Press Association Executive Committee. Organizations supporting the amendment include: State farmers' Organizations; state labor organizations; all state automobile clubs; all State commercial travelers’ organizations; rural letter carriers; numerous nunicipal chambers of commerce; and thirty state industrial, commercial and trade organizations. Ratification of the Good Roads Amendment is a highly necessary for- ward step in the advancement of highways for the good of Kentucky generally. Taking the automobile as a part of the vacation trip, second only to a good, Safe highway, is the objective-resort. Here is where the automobile Owner wishes to find the recreation he has earned. This might mean Scenic places, with physical recreational advantages; it might mean golf, tennis, fishing, hunting or horse-back riding. In Kentucky, scenic places are abundant, but here again we are woefully lacking in the other facilities for recreation. Kentucky has few modern-standard highways and very few modern resorts. A program which will develop parks, playgrounds along with the highways, will develop the use and importance of the passenger auto- mobile. Within a days drive of Kentucky's Northern and Eastern boundaries, there are some seven million passenger automobiles which are used, at 240 Some period during the year, for pleasure trips. These automobiles, at- tracted to Kentucky resorts by reason of good roads and resort facilities, will pay a huge toll return through gasoline taxes thus augmenting Ken- tucky’s ability to build more roads and further, by demand and patronage, improve resort conditions. It is a pure matter of business economics to provide this added, out-of-the-state income. Though Kentucky has made great progress in parks and playgrounds during the past 15 years, much more will be necessary before we are in position to compete with other States in this field. Further recommendations could be directed toward a more sensible attitude in automotive taxation. The National Government and prac- tically every political subdivision have assessed direct and duplicated taxes against the automobile. There is still a misapprehension among many that the automobile is a toy to be used purely for pleasure purposes. Many of our law makers subscribe to this misguided idea. A motley variety of fourteen direct taxes are levied against the automobile, its ownership, Operation and upkeep. There are many indirect levies. A review of the tax structure as it applies to the automobile should be undertaken with two purposes in mind. First, all special automobile taxes imposed in Kentucky should be wholly devoted to encouraging automotive transportation through build- ing, maintaining, marking and policing highways. This is not only fair, but seems wise. Second, most Federal automotive taxes should be repealed. This cer- tainly applies to the unfair and poorly enforced usage tax stamp. Almost every levy in Federal taxation represents a duplication. The tax on tires, inner tubes, parts and accessories now imposed constitutes a tax on man’s misfortunes—particularly if replacements are necessary as a result of an accident. Consideration should be given to the cost of collection when making a study of these taxes. A tax which represents high gross and low net is a burden to the automobile owner with little reward to the political sub- division assessing it. Municipalities should not subject private trans- portation to other than general taxation. Legislation has provided for the building and maintaining of city streets carrying through traffic at the expense of the State Highway fund. Access streets and alleys should properly be the burden of the city as a whole. All cities have invoked personal property taxes; many have special license tags or levies. Some have resorted to the use of parking meters, a new fangled form of toll- gate, entirely a tax in the guise of a regulatory measure. In making plans for the post-war use of the automobile, deep thought should be given to the matter of safety. The casualty lists of the battle fronts can easily be duplicated by the casualty lists of traffic. Subnormal 241 cars will be in the majority in the post-war period; these will constitute an increasing menace unless strong regulatory measures, Safe highways, hard and fast enforcement are invoked. Synthetic tires, a war necessity, will be standard equipment on automobiles which will average in age as much as 8 years. Worn parts, inevitable on this equipment, will be re- sponsible for many tragic accidents. Neither tires nor cars will be quali- fied to meet the test of normal or pre-war traffic speeds. It is entirely possible that a program of enforced “junking” of unsafe automobiles will be found to be necessary. Remedial legislation should be provided to make for full responsibility among all motor vehicle operators. This legislation is already embodied in the 1944 revision of the AAA safety-responsibility act. The law is now in effect in 35 states and in 8 of the 9 provinces of Canada. The Kentucky State Highway Patrol should have the support of Ken- tuckians in a program which will make its organization comparable with those of other states. More men are needed and adjustments should be made in base pay. The type of men wearing the uniform will bear a direct relationship to the remuneration. The patrol should have centralized barracks, located in convenient sections of the state with full radio inter-communication systems. The present Drivers’ License Division should be made a part of a modern identification department within the patrol organization. Proper and protective legislation, adequate and intelligent enforcement by an informed patrol will pay dividends in traffic safety. A resumé of a comprehensive program for the promotion of post war use of personal passenger car transportation as well as for the general use of the highways of Kentucky, would include the following: A planned road building program. Protection of highway funds. Federal Tax adjustments. Improved State Park facilities. Legislation and enforcement for safety. i Report of the Bus Division We summarize herewith the high points on general postwar planning which, in our opinion, would benefit the passenger motor carrier industry in Kentucky in doing a better job both in the way of service and employ- ment: 1. We recommend a comprehensive highway construction and im- provement plan with preference being shown to the completion of the principal North and South highways and then to East and West highways. It is our experience that the principal flow of 242 traffic by all means of transport is North and South, through the old major gateways along the Ohio River, such as Evansville, Owensboro, Louisville, Cincinnati, Maysville and Ashland on the North. On the South, the principal gateways of Middlesboro, Knoxville, Chattanooga, Nashville and Memphis. The early com- pletion of these through North and South highways, in our opinion, would benefit the largest amount of travel by highway. Second in importance is the East and West travel, but this is largely local travel, while North and South travel is both local and through travel. We further recommend the construction and improvement of sec- ondary or rural highways, using such type of construction as would permit common carrier transport. There are many communities in Kentucky that have no other form of transportation than high- way transport. There are also innumerable small communities on railroads which only have a minimum of transport. Experience has shown that as good roads are built motor transport is extended with the resultant expansion of passenger motor carrier service. In other words, with the construction of new and improved high- ways in Kentucky, many communities can be served which have no Service now and the existing service of many communities can be greatly improved. It has been our universal experience that the travel over a highway increases with the improvement of that highway. We recommend that an impartial study be made of all regulations and taxes which apply to common carrier motor transport in Ken- tucky, to the end that such regulations and taxes be as nearly uni- form as may be consistent with the public interest when compared with the States bordering Kentucky. At the present time such regulations and taxes are in great conflict and Kentucky is often referred to as a State handicapped by individual trade barriers which necessarily result from such inequitable regulation and taxation. We recommend that Kentucky follow the policy of all taxes collected from motor vehicles being used in the development and mainte- nance of its highway program. Our experience shows that the general condition, contour, surface, alignment and grades of high- ways have a direct relation to the cost of operating vehicles over such highways. As the highway system in Kentucky is improved and brought up to a higher standard all users of motor vehicles in Kentucky will substantially benefit by the lower cost of maintenance and operation of all motor vehicles. 243 5. We recommend that the program of freeing toll bridges in Ken- tucky be accelerated, to the end that as Soon as this can be con- sistently accomplished that all toll bridges be made free. We believe that this covers in the main the suggestions that we can offer on behalf of our industry toward the over-all program by the Com- monwealth of Kentucky in connection with the postwar problems now confronting us. Bus Division GUY A. HUGUELET, Chairman Report of the Truck Division In a broad sense, any practical Post-War Plan which is devised to promote progress in and for the State of Kentucky, could have, as the foundation of its entire structure, adequate transportation facilities. Far-fetched 2 We do not believe so—for without good transportation facilities, development of our natural resources will be delayed; new in- dustries will not be interested in locating within our borders; farm de- velopment will be checked ; inter-state and intra-state trade will be limited ; vacation and tourist trade will be hampered; and all trade in rural and urban areas will be stifled. Since the stifling of trade reflects itself in income, purchasing power and taxes, the lack of adequate transportation facilities adversely affects the economy of the State of Kentucky and of its people. Conversely, adequate transportation facilities tend to stimulate trade, as all history proves. Because this stimulation favorably affects income, purchasing power and taxes, it bears a direct and close relation to our State’s sound, progressive economy. Therefore, the following presentation of fact and reason should be considered in the light of its ultimate effect on the economic welfare of the people. Viewed in this light, it offers a practical basis for our State’s Post-War planning. The obvious objective of any post-war plan for the State of Kentucky should be to better the present economic and social status of its people. The many benefits from such an achievement—both to the State and its people are generally recognized. The problem is the procedure—i.e., what plan or set of plans can achieve the goal in the shortest period and with the Smallest investment of time and money. Practical experience has taught that any new ideas, procedure, prod- uct, Service or plan, however good, runs headlong into a stone-wall of resistance. It requires much time and effort to break down this resistance —for it’s very difficult to change a habit. So, we will discard considera- tion of any unusual, novel or “ideal” type of plan. 244 Fortunately, experience has also shown us that a plan, closely linked with an existing habit, can be highly successful. The basic plan to be outlined fulfills this practical requirement. Among peoples of all kinds is one habit which can be used advantage- ously in planning post-war progress. It is the habit of trading. By linking our plan to this habit, we eliminate much resistance—and, be- cause trade affects the economic and social life of our people, we stand to gain immeasurably from a good plan premised on these fundamentals. Everyone recognizes this habit of trading—for it is part of each indi- vidual’s daily life. On the other hand, few of us have had the opportunity or time to review the general effect of trading on the lives of large groups of people. Let’s look at the record, briefly. The history of successive civilizations, from their earliest beginnings, has shown that their wealth and power was largely derived through trad- ing—and that transportation was the life blood of trade. In early times, the Phoenicians used waterways; the Romans, high- ways. Later, Spain used the waterways to become a world power—and Britain followed suit. More recently, our western states became an in- tegral part of our nation only after waterways, highways and railways made trade possible. Lately, we have witnessed further expansion of trade wherever highways were extended or modernized — or skyways were pioneered. The economic history of a successful state, nation or empire has al- ways been linked with trade and transportation. This will be so in the years just ahead. Already the great nations are formulating plans for world trade by sea and air. Our Federal government has also recognized the improved economic and social effects which trade can bring by realis- tically appropriating funds which are an incentive to the several states to expand their highways systems—and thus accelerate trade. Our states are recognizing the many advantages of trade by rescinding obsolete laws and passing new legislation—all designed to foster and en- courage inter-state and intra-state trade. Even local communities are active and frequently aggressive in de- veloping more local trade. In some cases, they have provided free ground and buildings as a means of Securing new manufacturing organizations— to increase local purchasing power and trade. From an analysis of successful trade, whether local or world-wide, these conclusions become evident: (1) increases in trade tend to build wealth and power; (2) increases tend to better the economic and social life of the people; (3) increases tend to raise income, purchasing power and taxes; and (4) increases tend to improve the living conditions of all. To gain these ends, trade must be stimulated. And, to stimulate trade, adequate transportation facilities must be provided. Furthermore, it must 245 be recognized, as all experience shows, that trade follows transportation facilities. We must provide transportation facilities where none exist— improve facilities where they are inadequate—and extend facilities where required—before we can hope to stimulate more trade. The foregoing is our broad view of an effective approach to State-wide Post-War planning. It is given to provide the reasons for our recommenda- tions contained in Truck-Division report which follows. The expansion of transportation facilities—as a means of stimulating trade—should include consideration of waterways, railways, airways and highways. The last named, however, is the most important—for it already serves a far larger area and population than any of the others. 65.9% of Kentucky’s 4,494 communities have no transportation facilities other than offered by truck Service, which uses highways. In addition, every community served by any other transportation sys- tem is also served by trucks. And, in many instances, other transportation systems are dependent on the supplementary service provided by trucks. Thus, it is obvious that an expansion of transportation facilities, as a means of stimulating trade, must (1) emphasize the extension and im- provement of highways and (2) must encourage the use of all types of trucking. Before offering any definite recommendations as to how the two fore- going thoughts can be put into practical action, let us first examine truck- ing in relation to Kentucky’s economy. This will explain the reasons for all recommendations. A great many people think of trucking in terms of commerce haul. Actually, this is only a small part of trucking. Of all trucks operating in the nation in 1944, 34.63% operated for agriculture; 14.22% operated for consumer industry; 13.25% operated for-hire industry; and the bal- ance was distributed among numerous other groups. These figures indicate the importance of trucks to farmers. Yet, 129,100 of Kentucky's 311,610 farms are not served by surfaced roads. That means that Kentucky farmers are faced with a very difficult trans- portation problem which affects both production and marketing. If agriculture—one of the major sources of income to Kentuckians— could have a larger percentage of cheap flexible transportation facilities, more would be produced on our farms. This would reflect itself in in- creased trade in rural communities directly serving the farms, and in the larger urban centers as well. While tobacco, livestock, dairy products and some few others are the principal source of farm income, tobacco is the only farm product which has been well distributed on a large scale. Based on experience in other States, it is reasonable to assume that the lack of trucking facilities has held farm development and trade in check. Provide Kentucky farmers 246 with the means (highways) of using more trucks and they will. Ken- tucky will reap the benefits. Trucks that serve consumers direct include public carriers of all kinds, in addition to delivery trucks. By speeding up the service to consumers, trade is accelerated. This applies in all communities as well as between communities. Highways again is the answer. In the manufacturing field, trucking has proved fast, flexible and eco- nomical. But, it may be argued, since practically all manufacturing is confined to Ohio River cities and is served by all forms of transportation, why highways? Manufacturing cannot be encouraged to locate elsewhere in Kentucky because of inadequate transportation facilities. Yet, this is needed urgently as a means of better balancing our statewide economy. The same highways which serve farmers can serve industry in the farm areas. Industrial expansion will improve the economic status of Ken- tuckians. The greater use of our natural resources—coal, gas, oil, lumber, rock asphalt, etc.—will naturally follow the expansion of the highway pro- gram. This does not mean that highways would necessarily replace cer- tain existing transportation methods (such as the use of waterways for moving rock asphalt from source to storage). But, even where other transportation systems are used, highways are usually used also. Any transportation system which reduces costs and moves natural resource material to markets faster and more economically aids in the development of the State. Kentucky has many natural attractions and excellent vacation spots— plus an equitable climate and Scenic beauty. Experience has already proved that increased tourist trade results wherever adequate highways make these places easily accessible. This trade has augmented Kentucky income considerably—actually $69,000,000.00 in the last pre-war year. Highways should be considered in relation to the further development of this trade in the post-war period. Even tourist trade requires both private and public trucking in addition to public carriers. Thus, it is observed that the progress of agriculture and industry is largely dependent on transportation—that the economic and social ex- istence of Kentuckians improves, in a large measure, with improvement of transportation facilities—and that improved transportation facilities promotes trade and the general welfare. This is the economic end-result which post-war planning should strive for. We now know our objectives and the reasons for them. Let us repeat: expansion of transportation facilities, as a means of stimulating trade, must (1) emphasize the extension and improvement of highways and (2) must encourage the use of all types of trucking. We offer the following recommendations as the means of achieving these objectives. 247 Analysis of Kentucky’s transportation reveals that much of this State's industrial development has been hampered by lack of adequate transpor- tation. This transportation deficiency results from two causes: First, insufficient extension of suitable highways, and ; Second, re- strictive legislation which has set up barriers around our State, virtually eliminating Kentucky from interstate highway commerce and crippling intra-state highway transportation. The interior of our State requires the expansion of industry to create a balanced economy. Adequate highway transportation will solve this problem and can be provided, first, by the orderly and uninterrupted im- provement and extension of our through highways and our farm-to-market road system and, second, by enactment of truck legislation which will permit the safe operation of trucks carrying loads for which our high- ways have been engineered. The Planning Division of the Department of Highways has conducted exhaustive surveys for the past few years which reflect our highway needs. Kentucky has 57,000 miles of roads, 10,000 miles of which are in the state highway system and 47,000 miles in the county road system. Only 2,100 miles of Kentucky highways have high-type surfacing. 27,000 miles have lower type surfacing including 3,300 miles of traffic bound macadam and the rest mainly stone or gravel, while there are about 28,000 miles of unsurfaced, unimproved earth roads. Eighteen Kentucky counties, 35 Kentucky county seats, and 425 Ken- tucky towns with 100 or more population are not served by railroad and depend entirely on highway transportation. Kentucky has a greater per- centage (65.9%) of its 4,494 communities without rail service than any other state in the Union. Under the Post-War Federal Aid Act passed by Congress last year, there will be made available to Kentucky for highway construction $8,907,- 656.00 for each of the first 3 post-war years. That’s a total of $26,722,968. Kentucky must match this federal money, dollar for dollar, in order that it be expended in our State. This federal aid program will therefore mean that Kentucky can build approximately $54,000,000.00 worth of new roads in the three years following the end of the war provided we use present highway user taxes for road purposes only. The federal law provides for withholding federal aid from those states which divert road user revenues in violation of the 1934 Federal Highway Aid Act. In addition to Kentucky’s need for industrial development and more adequate farm-to-market transportation it also needs more adequate trans- portation facilities in order to develop the tourist travel to which we are entitled because of the many points of scenic beauty and historical interest which this state possesses. Tourists visiting in Kentucky in the last pre- 248 war year spent $69,000,000 in our state. The Kentucky Lake in western Rentucky and the lake to be created by the Wolfe Creek Dam will add two more points of tourist attraction to our already full larder of this great natural, undeveloped resource. Good roads to these points are a must item if we are to compete with other states in this field. Not only does Kentucky industry, agriculture, and commerce need better highway transportation, but such development will be beneficial to labor and the whole economy of the State. A greater percentage of the money spent in highway construction goes to labor than in any other form of public work. Kentucky’s industrial expansion will provide employment for the thousands of Kentucky citizens that now leave Kentucky each year to seek industrial employment which Kentucky does not now offer. The population of Kentucky has decreased 215,433 persons in 4 years in spite of the fact that the southern states show an increase of well over 1,000,- 000 persons during the same period. . The Orderly development and expansion of Kentucky’s highway system and a revised legislative policy which will permit the proper use of ex- isting and proposed highway facilities will, in our committee’s opinion, do more for the general advancement of Kentucky than any other one single project. For many years the railroads have circulated propaganda to the effect that the trucking industry was subsidized and “riding tax free.” Records prove this statement false. The trucking industry has carried its fair share of the tax burden in the past. It is ready and willing to do so in the future. Proof that the trucking industry pays its fair share of the Kentucky tax burden is contained in the industry’s tax survey for the fiscal year 1940–41. This survey revealed the following facts: The trucking industry paid almost 13% of Kentucky’s annual gross tax revenue—although it carried only about 8% of its total freight. The trucking industry paid more dollars in taxes to the State of Ken- tucky than the latter expended for the construction of new roads during the fiscal year 1940–41. The trucking industry’s financial contribution in 1940–41 to the State of Kentucky was more than one-third of the total sum expended by the Kentucky Highway Department for all purposes during the same fiscal year. The trucking industry’s tax payments to the State of Kentucky alone were about one and one-quarter million dollars more than all State, County, and local taxes paid by railroads in Kentucky. These taxes, which include truck license fees, truck permits, common carrier permits, truck excise tax, driver's licenses, gasoline taxes, etc., reveal that truck direct tax payment by the trucking industry to the 249 State of Kentucky during the fiscal year 1940–41 was $6,296,050.83. With the exception of $659,219.67 which went to the “farm-to-market” roads, this entire sum was available for the construction and maintenance of Kentucky State roads. Another contribution to road building by the trucking industry is the 11/26 per gallon Federal gasoline tax—which returns to Kentucky for Federal Highway construction—and which is not included in the foregoing totals. The latter amounted to $1,405,363.38 in 1940–41. The survey also showed that the trucking industry paid taxes in addi- tion to the foregoing totals. For example, the industry paid approxi- mately $300,000.00 sales tax, plus taxes on real estate, tangible personal property, franchise, income tax, etc. The State of Kentucky collected in all taxes during the fiscal year of 1940–41 a total of $49,294,095.00. Approximately $30,000,000.00 of this amount went into the “General Fund” which pays all general expenses in Kentucky State Government not ear-marked for road construction and bridge building, etc. While the trucking industry paid approximately 13% of the State's total annual tax collections, the $6,296,050.83 was more than one-third of the total expenses of the Kentucky Highway Department for 1940–41. Tax figures for the fiscal year 1940–41 are used herein for the reason that they reflect normal years in the Kentucky trucking industry. It is interesting to note that the same formula is used in arriving at assessments for both railroads and motor carriers by the Kentucky De- partment of Revenue, except that motor carriers are penalized to the extent Of 4 per cent, due to assessments being based on capitalized earnings of 6 per cent for rail carriers, and 10 per cent for motor carriers. Franchise assessments are computed by the Kentucky Department of Revenue, and are certified to taxing units in the State, i.e., Counties, Cities or towns, and School districts. Note: All of the foregoing figures were furnished by the Kentucky Department of Revenue and by the Kentucky State Highway Department. In order to insure the needed expansion and development of Kentucky’s highway system without interruption, our Department of Highways must be assured of adequate funds with which to do this job. At present we find that special taxes paid by users of the highways for the privilege of using these highways are providing adequate funds and in our opinion will continue to provide adequate funds for our projected highway pro- gram, if used for the highway purposes intended. These funds should be protected for this sole use by an amendment to the Kentucky Constitution. Such an amendment was proposed and ap- proved by the 1944 session of the Kentucky General Assembly with only 250 one dissenting vote. It will be submitted to the people for their approval at the general election on November 6, 1945. Every meeting of the General Assembly in the last fifteen years has had to consider one or more proposals for diverting this money to other uses. While most of these proposals have failed, this threat should be definitely removed. In the last nine years, Kentucky has used $10,000,- 000.00 of the proceeds from special highway user taxes for general pur- poses according to reports of the United States Public Roads Administra- tion. The many miles of improved highways which this sum of money would have purchased are sorely needed by Kentucky but have been for- ever lost. Sixteen states have adopted such amendments to their constitution since 1920. Missouri adopted its amendment in 1928 and after 17 years of experience under the amendment re-wrote it into their new constitution, which was ratified by its citizens in March of this year. Four other states in addition to Kentucky have taken legislative action to submit such an amendment to their voters. The idea of protecting a special fund is not new in Kentucky. Section 184 of our Constitution provides that the school fund and any taxes levied for common school purposes “shall be appropriated to common schools and to no other purpose.” The Good Roads Amendment has the backing of 54 local, regional, and state organizations in Kentucky united in the Kentucky Good Roads Federation for the sole purpose of securing ratification of the Good Roads Amendment next November. 23 of the leading newspapers of Ken- tucky have supported the ratification as of May 1, 1945 of this amend- ment and their position has been supplemented by unanimous endorse- ment of the Kentucky Press Association Executive Committee. Organizations supporting the amendment include: The state farmers’ organization; both state labor organizations; all state automobile clubs; all state commercial travelers’ organizations; rural letter carriers; num- erous municipal chambers of commerce; and thirty state industrial, com- mercial, and trade organizations. Your committee feels that ratification of the Good Roads Amendment is a highly necessary forward step in the advancement of highway trans- portation for the good of Kentucky generally and believes that it will receive universal support of the people at the polls next November. Kentucky's size and weight limitations laws for trucks are the most restrictive in the entire United States. Kentucky ranks forty-eighth in the Nation. Under Kentucky’s permanent law—single trucks cannot exceed 261% feet and tractor-trailer combinations more than 30 feet in length. The gross weight is 18,000 pounds—lowest in the United States. 251 Kentucky’s truck restriction is 11% feet—also the lowest in the United States. Four States set 12 foot height restrictions, and forty-three States prescribe 12.1% feet, or more. Kentucky’s Emergency Law (enacted in 1942 and expiring at war’s end) provides 33 feet in length for tractor–trailer combinations and 28,000 pounds gross weight—still lower than any permanent law in the United States. . . Since June 26, 1942, tractor–trailer combinations, under special war emergency permits issued by the Commissioner of Highways, may carry 40,000 pounds gross load and 18,000 pounds axle load over certain Federal highways designated by the Commissioner of Highways. In some in- stances, gross load in excess of 60,000 pounds has been permitted, but axle load did not exceed 18,000 pounds. - And speaking of economical, speedy and efficient transportation, our committee wonders why Kentucky’s size and weight limitations should be less after the war, since it is of the opinion that economical, speedy and efficient highway transportation will be vitally important in the postwar period. - The foregoing, coupled with the fact that 2,962 of Kentucky’s 4,494 communities, or 65.9 per cent, depend entirely upon highway transporta- tion for all their industrial, commercial, economic and social existence, leads our committee to believe that the only solution to this problem is through the enactment of the “uniform” size and weight regulations recom- mended by the U. S. Public Roads Administration, American Association of State Highway Officials, American Association of Motor Vehicle Ad- ministrators, American Farm Bureau Federation, The National Grange, National Highway Users Conference, and the American Automobile As- Sociation. The major purpose of the U. S. Public Roads Administration in recom- mending the “uniform” size and weight code is to prevent conflicting laws in the various States, thereby eliminating interstate trade barriers. Trade barriers—the collective name for hundreds of laws enacted by the individual States which tend to restrict and hamper the over-the-road movement of goods into or from other States, restrict and discourage trade. Thirty-four States have adopted the “uniform” size and weight code recommended by the U. S. Public Roads Administration, and thirteen other States prescribe its axle weight formula, but have a size and weight limitations two times greater than allowed in Kentucky’s law. Our committee believes Kentucky's 18,000 pound gross load limit and its 30 feet length restriction, set up an interstate commerce trade barrier at Our State's border. We also believe the law is discriminatory, unneces- Sary, and uneconomic since it serves to: - 252 Restrict development of highway transportation; Penalize shippers through increasing transportation costs; Delay industrial development of Kentucky; and Reduce the income of every citizen by increasing the price of food, clothes, and every other necessity we buy. - Our committee contends that Kentucky's 18,000 pound gross load limit and its 30 foot length restriction also affect the following: Farmers: The Kentucky farmer receives lower prices than his neigh- bors in other states who compete in the same market, because the latter has lower shipping costs. Consumers: Transportation cost is an important factor in the price paid for food, clothing and every other necessity we purchase. If shipping costs are increased, prices are similarly affected. - Shippers: Fast, economical motor transport is of great importance to Kentucky industry. Many shippers depend upon truck service for their transportation. As pointed out before, 65.9 per cent of Kentucky’s com- munities have no other transportation facilities. Kentucky’s antiquated restriction on highway transportation handicaps this service—makes it more expensive. - Every Citizen: Kentucky’s highway transportation restrictions prevent a normal development of this new and modern mode of shipping and de- livery service and as such denies the State untold thousands of dollars of highway and general tax annually. A trend toward the liberalization of motor truck laws was noted in the 1945 State Legislatures. Prominent among these states was Tennes- See—our Southern neighbor. Tennessee increased from 27 to 35 feet for single trucks and from 35 to 45 feet for tractor-trailer combinations. Its gross weight was increased from 30,000 to 42,000 pounds. In Kentucky, in line with trends elsewhere, immediate consideration should be given truck sizes and weight limitations. As an engineering problem, recommendations from State and Federal Highway Officials, who design, engineer, build and maintain Kentucky highways, should be Secured. From the viewpoint of accelerating the development of trade throughout Kentucky, recommendations of groups or organizations familiar and interested in this phase of Kentucky’s development should be obtained. We also believe that highway users should pay special taxes com- mensurate with their use of the highways and that these tax revenues should be so designed as to provide for the construction, maintenance and extension of Kentucky’s highways with an equitable distribution of tax liability among highway users. - The Division of Planning of the Department of Highways has been studying all phases of highway planning, construction, fees, revenues, and : 253 use since its organization in 1936. These studies reveal that our main traveled highways not only are self-supporting but generate considerable additional revenue or “profit” which provides funds for the extension of our rural highway system. These main highways are the ones that are most used for truck transportation. Truck transportation on rural high- ways is very largely confined to farm trucks and light trucks. In order to determine the approximate amount of such profitable high- way use of our main highways, the Division of Planning was asked to make a study of three one-mile sections in three of our main traveled highways. This study is reproduced here with. In it is set up the annual charge for the construction costs and the annual maintenance cost, which total reflects the annual expense for this mile of highway including a re- serve for its replacement charged against this section of the highway. The Division has then calculated the revenues derived from these mile Sections, using the number of passenger car miles and truck and bus miles Over these sections of road for the year, determined by accurate traffic counts, and the per mile factor of revenue derived from such traffic through Special taxes and state gasoline taxes. Deduction of the annual costs from the revenue show that each typical mile studied produces a sizable surplus for the state’s use in extending our less traveled highways. The study also shows the importance of encouraging maximum highway use. These three typical miles do not vary particularly as to their annual cost, but the income increases rapidly with additional use. The mile on U. S. 60 carries an annual cost of over $500 more than the mile on U. S. 31-W, but the heavier traffic on 31-W results in a $7,000 higher annual revenue. HIGHWAY COSTS AND REVENUES AT THREE SELECTED POINTS ON HEAVILY TRAVELED HIGHWAYS Typical Mile Near Graefenburg, Franklin Co., U. S. 60 Grade and Drain (50 year life expectancy)............................ $ 738.81 Bridges (50 year life expectancy) ............................ 138.52 Base & Surface (30 year life expectancy)............................ 1,279.63 Total Construction cost per mile per year............ - - - - $2,156.96 Maintenance cost per mile per year 400.00 Total annual highway costs................................................................ $2,556.96 Passenger Cars —2,344 x 365 days x $0.00404.............................................................. $ 3,456.46 Trucks & Busses—1,244 x 365 days x $0.00664 - - 3,014.96 Total annual income from traffic............................. - - - - ... $ 6,471.42 Less annual highway costs 2,556.96 Annual net revenue per mile $ 3,914.46 254 Typical Mile Near Dry Ridge, Grant Co., U. S. 25 Grade and Drain (50 year life expectancy)............................ $ 236.26 Base and Surface (30 year life expectancy) ............................ 1,076.55 Total construction cost per mile per year............................................ $1,312.81 Maintenance cost per mile per year....................... 400.00 Total annual highway costs.............................................................. $1,712.81 Passenger Cars —2,949 x 365 days x $0.00404.............................................................. $ 4,348.60 Trucks & Buses— 863 x 365 days x $0.00664.............................................................. 2,091.57 Total annual income from traffic............................................................................ $ 6,440.17 LeSS annual high Ways Costs.................................................................................... 1,712.81 Annual net revenue per mile.......................................................................... $ 4,727.36 Typical Mile Near Radcliff, Hardin Co., U. S. 31-W Grade and Drain (50 year life expectancy)............................ $ 355.49 Base & Surface (30 year life expectancy)............................ 1,152.72 Total COnstruction COst per mile per year................................................ $1,508.21 Maintenance cost per mile per year.......................................................... 400.00 Total annual highway costs................................................................ $1,908.21 Passenger Cars —6,201 x 365 days X $0.00404.............................................................. $ 9,143.99 Trucks & Busses—1,720 x 365 days x $0.00664.............................................................. 4,168.59 Total annual income from traffic............................................................................ $13,312.58 Less annual highway Costs........................................ 1,908.21 Annual net revenue per mile............................................................................ $11,404.37 (Prepared by Division of Planning, Department of Highways, May 17, 1945) It is to be noted in connection with the above studies that special taxes paid by motor vehicles to the federal government are not included. The federal gasoline tax of 11/26 a gallon alone produce for the federal gov- ernment approximately $4,400 for the year in revenue from the mile of U. S. 31-W if the 2,920,000 motor vehicle miles are figured on a basis of 10 miles to a gallon. These studies reveal convincing evidence that im- proved highways where traffic is encouraged not only pay their way but benefit the citizens of the entire state by providing revenues far beyond their cost with which to provide further extension of improved highways to the remoter sections of the state. It naturally follows that as these improved highways are extended the traffic they carry will increase with resultant increases in revenues derived. From these recommendations it should be possible to arrive at a prac- tical solution which might be put into effect with the least possible delay. As a further stimulant to trade, Kentucky should enact legislation pro- viding full reciprocity with other states on truck license fees. 255 Other states, realizing the trade barrier which the lack of such a rec- iprocity law arises, have in most cases provided reciprocity. Of the 48 states and District of Columbia, 46 now have some form of reciprocity. Thirty have full reciprocity on truck license fees—and an additional 13 have reciprocity with minor restrictions. With 43 of the 49 territories mentioned already granting reciprocity, Kentucky should return this courtesy—particularly since this form of cooperation would tend to benefit Kentuckians and their own trade. Since all the factual reasoning which precedes has as its ultimate goal the accelerated expansion of trade through adequate transportation facili- ties, let’s see what benefits may reasonably be expected from the recom- mendations offered in connection with a highway program. Highways provide the finest opportunity of developing state-wide trade because (1) this modern mode of transport is the only one which reaches into all of the counties and communities in Kentucky; (2) farms, our principal source of consumer livelihood, would receive direct benefits in increased income; (3) all inter-state and much intra-state shipping, plus tourist trade, could use cross-state and interregional highways (4) all communities could be provided with fast, dependable 24-hour transporta- tion (5) building, extending, improving of highways in cooperation with Federal Aid would provide thousands of jobs for Kentuckians, and (6) the highway system is the only method of transportation which can affect the State's economy favorably, in every area. Therefore, we recommend, as a basic, all-over post-war plan the pro- motion of trade through the medium of more adequate transportation facilities, with emphasis on highways. CONCLUSIONS This plan is respectfully submitted for your earnest consideration. Careful study of the foregoing reports indicates that a progressive postwar Kentucky should adopt the following policies: (a) Guarantee that the proceeds from all special highway user taxes be expended for highway purposes. (b) Continue as rapidly as possible the expansion of our state high- way System and farm-to-market road system in order that Ken- tucky agriculture and industry may expand and visitors desire to come here and enjoy temporarily sojourning with us and ultimately making Kentucky their home. (c) Redraft our highway regulatory statutes so that the citizens of Kentucky may enjoy and utilize our highways to the extent for which our respective roads have been designed, engineered and 256 constructed, with road use tax rates that will produce revenues fully insuring the maintenance, reconstruction, and orderly ex- tension of the state's highway system. (d) When we have revised our fees and regulations so that they will more nearly approximate standards in effect in our neighboring States we should reciprocate with them by extending the courtesies and privileges of highway use which they stand ready to accord Our Own citizens. (e) Fully develop and capitalize Kentucky’s recreational areas. Much has been said in this and previous years about Kentucky’s un- favorable position when compared with other states relative to aviation, education, housing, industry and highways, but little can be accomplished by the written or spoken word. It is now the duty of Kentuckians to translate the solution of all these problems from language to action and your Highway Transportation Sub-Committee is very hopeful that the highway users of Kentucky will not only give their wholehearted support to an action program for the betterment of our transportation, but will also inaugurate a vigorous action policy in elevating all other Kentucky presently sub-standard classifications to a position of which we may all be proud. INTERIM REPORT of THE SUB-COMMITTEE ON AVIATION PREFACE Kentucky stands astride the continental airline routes both east and west and north and south. And yet, unbelievably, Kentucky has at this time only one city which boasts an airline stop. At the same time Ken- tucky has, on a per capita basis, the highest enlistment in the Air Corps of any state in the Union and the fewest airports. No matter which way you turn you find the curious spectacle of opportunity on one side and apathetic Kentucky on the other. The people of Kentucky are air minded. No one who has ever been in the aviation business in Kentucky can deny that interest, curiosity and investment capital are willing and eager to enter this new field and exploit it to the advantage of all our people. There are hundreds of opportunities and thousands of willing hands and yet, up to the present, the two factors that make for healthy business have not been able to get together. The retarding factors, the causes, of Kentucky’s poor showing are difficult to analyze and basically extend into many of our Commonwealth’s economic and political idiosyncrasies, but these causes are surmountable and in most cases simply ignorance or a lack of understanding. We must open up Kentucky to this new industry. Opposition or no opposition, the leader- ship of this State must pave the way for expansion and progress. Eco- 257 nomically, we must press every opportunity to create jobs and more jobs: our national life depends on it. And politically, let him beware who stands between a job and our returning pilots, dispatchers, mechanics, meteorologists, aero engineers, just to mention a few, who expect to earn a livelihood in the aviation industry in our State. We need a sane and economically feasible plan to aid or to guide this expansion. Unless we attack this problem and solve it in such a way that the results are economically practical and self sufficient we shall fail. Let us accept subsidies or grants from the Public Funds only when we are sure they provide the building stones for a foundation that will sup- port its own expansion and pay its own way. Let us encourage the little man, the small capitalist, to establish his own business and to run it profitably. We can, by educational and simple advertising means, acquaint the executives of our large corporations of the possibilities which aviation presents. And above all, we must deal intelligently with our people; we must be able to tell them the truth about aviation, what they can reasonably expect from it, what it can and can- not do both as a business and as a means of transportation. After all, it is the Public that ultimately pays the bill. Even a cursory examination of the Aviation Industry as a whole re- Veals some astonishing and disjointed facts. First of all, it is the largest single production unit in the country at the present time. This is the result of the war. Second, it grew into this monster in the short period of five years. Prior to the war in Europe it was a struggling molecule lost in the body economic. Such growth has produced a moloch that has helped destroy our enemies and shortened this war by years and possibly by decades. The results have been, from a military point of view, sensational. The possibilities for turning this huge productive capacity from bomber to commercial aircraft are appalling, since we could, at present capacity, probably produce sufficient aircraft to load every airport in the land with- in the year to such an extent that the available facilities would be unable to allow a take-off or landing. Third, the postwar aviation industry will be scaled down drastically: in part painlessly because much of the indus- try's productive components at the present time are normally engaged in a manufacturing or fabricating business not a part of the aviation indus- try and will reconvert to their old lines. An example of this can best be found in the automotive industry much of which is now a part of the military aviation component. It cannot be denied that the manufacturing of commercial aircraft is at present a chaotic assembly. V-E day undoubtedly will see the re- Sumption of manufacture of some commercial aircraft both of the trans- port and private type. At first these aircraft will be of the familiar con- Struction; the Cub, Taylorcraft and Stinson for private use; the conversion 258 and manufacture of the familiar transports. The helicopter millennium by all engineering standards is still a future projection and cannot be reasonably anticipated in the near future. Despite the Sensational and romantic newspaper and magazine articles which have succeeded in build- ing up a Hollywood nightmare are in the public mind, there is no reason to expect a drastically different private aircraft than that popular before the war. True, it will be safer and faster, be comfortable and easier to fly, but the fundamental machine is the same. And the price tag is SOme- thing to worry about. From hints let out by harrassed manufacturers the price tag for the family car of the air will be in the neighborhood of $3500. This will provide a minimum vehicle for the transport of four adults. Mass production can and will lower costs which will be passed on to the consumer. Sales must justify mass production methods and the post war period will be critical. Contrary to popular belief our huge bombers are useless as com- mercial transports. Cost of conversion is only a minor item. Basically it is a problem of unfit equipment. By design and purpose the modern bomber is no more useful as a commercial transport than is a jeep. It was built for a highly specialized purpose and that purpose is definitely not the same as that of the modern airliner. The Air Transport Com- mand has literally thousands of available DC-3's, the standard Douglas Airliner, available for conversion; and this and other similar types built by Consolidated Vultee, Lockheed and Curtiss provide an immediate back- log for airline expansion. The super-transcontinental, trans-Ocean air- liners are either in the experimental stage or actively flying now in the Air Transport Command’s worldwide routes. They will provide the fast, safe and comfortable inter-continental travel. Have no doubt about it. Dinner in New York and breakfast in London have long been a reality. To summarize: The aviation manufacturer faces a hectic post-war period. His very existence depends upon the acceptability of his product, sufficient outlets for sales and service, a simple solution to the complex problems presented by all weather flight, and a liberalizing of Federal Civil Air Regulations. Military requirements undoubtedly will provide some cushion, some subsidy; for it is inconceivable to imagine that the people of this country will allow so vital a defense industry to languish and to abandon the constant research necessary for military air supremacy. Kentucky’s Share of Aviation The best available authorities estimate that by 1950 there will be 500,000 airplanes in this country and better than 2,000,000 pilots. In 1944 there were approximately 17,000 civil aircraft and 100,000 civil pilots in this country. The growth curve here exhibited does not compare unfavorably with the automobile sales curve between 1910–1915, and may be the forecast for the spiraling curve of general acceptance. If we ac- 259 cept this estimate subject to reasonable corrections, we can break these numbers down into categories which help to define our post-war oppor- tunity. Private Aircraft The function of all aircraft is to provide transportation for persons and things. Just as the automobile industry depends upon the passenger car for by far the bulk of sales, so the aviation industry in like manner depends upon the public acceptance of the family car of the air. We can 'estimate that there will be in 1950 better than 300,000 aircraft in the United States of this type. A second group of 125,000 planes will be those serving both business and pleasure, the salesman and engineer who regularly travel. A third group of 60,000 planes, owned by local com- mercial operators, engaged in charter work, air taxi service, flight instruc- tion and rentals, and sales demonstration. This is a forecast of heavy air traffic and commerce. The subsidiary services alone; i.e., air parks, gaso- line, oil, and mechanical repair stations stagger the imagination and in terms of dollars run into billions. Particularly, it means we must have more airports and more airports and more airports. So that we may see more closely what this development means, let us take the estimates as given and reduce the overall factor to one precise locality: Louisville. At the present time Louisville has 37 purely private aircraft and 9 or 10 engaged in commercial operation off of one field. By 1950 Louisville should have 1500 aircraft and five airports to provide landing and take-off facilities. It will be necessary to construct hangars, Service facilities, gasoline and oil outlets, sales and overhaul shops, ex- press highways to the cities from the airports, a vast increase in radio and navigational aids within the area, and possibly a block system of traffic control. All this requires invested capital, engineering brains, jobs —and let us never forget the jobs Intrastate Air Carriers or Local Carrier Another category of aircraft use is the Intrastate Air Carrier or the feeder airline. These short line operators will funnel mail, express, light freight and passengers into the major airlines. There is room for 10,000 aircraft of this type within the system. They will be small ships, carry- ing possibly five or six passengers and 1500 pounds of express and air mail. In Kentucky we may anticipate 250 feeder aircraft providing service within a reasonable distance of even towns of as little as 1500 population. Again we see the necessity for a tremendous expansion of facilities. Al- ready the Kentucky Aeronautics Commission has begun to receive a deluge of applications for Certificates of Convenience and Necessity, which are 260 necessary before operations of this type can be started. (Appendix A.) Inter-State Air Carriers Our estimates call for 9,000 transport aircraft within the Continental United States. 8,000 of this group will be used in the transportation of passengers, mail and express; 1,000 for air freight. These figures do not take in the aircraft used in International Services. APPENDIX A The following is a list of applications for feeder and trunk airline routes affecting Kentucky to be heard before the Civil Aeronautics Board On May 28th. Applicant Proposed Route All American Aviation, Inc. Between the terminal points Nashville, (Docket No. 1738) Tenn. and Louisville, Ky., via the inter- mediate points, Lebanon, Gallatin, and Portland, Tenn., Franklin, Bowling Green, Glasgow, Horse Cave, Hodgen- ville, Elizabethtown, Ft. Knox, and Shepherdsville, Ky. American Airlines, Inc. Amendment of Route No. 23 to include (Docket No. 1766) (a) Louisville, Ky., between Knoxville, Tenn., and Nashville, Tenn., and (b) Louisville, Ky., Evansville, Ind., and Paducah, Ky., between Washington, D. C., and Memphis, Tenn. Tri-State Transit Company of Between the terminal points Memphis, Louisiana, Inc. Tenn., and Memphis, Tenn., via the in- (Docket No. 1779) termediate points, Jackson, Tenn., Ful- ton, Mayfield, Paducah, Dawson Springs, Greenville, Leitchfield, Elizabethtown, Louisville, Lexington, Danville, Glas- gow, and Bowling Green, Ky. ; Clarks- ville, Paris, and Jackson, Tenn. Commonwealth Air Transport, (1) Between the terminal points Cov- Inc. ington, Ky., and Middlesboro, Ky., via (Docket No. 1350) the intermediate points Portsmouth, Ohio, (alternate Maysville, Ky.), Ash- land, Ky., Huntington and Williamson, 261 Applicant Delta Air Corporation (Docket No. 1720) Gillespie Airways (Docket No. 1081) Proposed Route W. Va., Pikesville, Hazard and Harlan, Ky. (2) Between the terminal points Cov- ington, Ky.-Cincinnati, Ohio and Knox- ville, Tenn. via the intermediate points, Frankfort, (alternate Lexington direct), Lexington, Danville, Somerset, London- Corbin, and Middlesboro, Ky. (3) Between the terminal points Padu- cah, Ky. and Covington, Ky., via the in- termediate points Princeton, Madison- ville, Ky., Evansville, Ind. (Henderson, Ky.) Owensboro, Louisville, Ky. (alter- nate Covington direct and Frankfort, Ry.) (4) Between the terminal points Hunt- ington, W. Va., and Paducah, Ky., Via the intermediate points, Ashland, Lex- ington, Frankfort, Louisville, Eliza- bethtown, Glasgow (optional) and Bowling Green, Ky., Nashville, Tenn., (alternate Hopkinsville-Clarksville di- rect), Hopkinsville, Ky., and Clarks- ville, Tenn. (5) Between the terminal points Louis- ville, Ky. and Durham-Raleigh, N. C., via the intermediate points, (Frankfort, optional stop), Lexington, and Hazard, Ky. ; Bristol, Tenn., Winston-Salem, and Greensboro, N. C. The amendment of route No. 24 to in- clude the intermediate point, Louisville, Ky., as an intermediate stop alternate to Lexington, Ky., between Cincinnati, Ohio, and Knoxville, Tenn. Between the terminal points Nashville, Tenn. and Louisville, Ky., via the inter- mediate points Gallatin, Tenn., Scotts- ville, Bowling Green, Glasgow, Horse Cave, Glendale and Elizabethtown, Ky. Between the terminal points Nashville, 262 Applicant Mountain Airways Co. (Docket No. 1122) Blue Grass Airlines (Docket No. 1777) Proposed Route Tenn. and Evansville, Ind., via the inter- mediate points Springfield and Clarks- ville, Tenn., Hopkinsville, Mortons Gap, Earlington, Madisonville, and Hender- son, Ky. (1) Between the terminal points Haz- ard, Ky. and Cincinnati, Ohio, via the intermediate points Jackson and Mt. Sterling, Ky. (2) Between the terminal points Haz- ard, Ky. and Knoxville, Tenn., via the intermediate points Harlan and Mid- dlesboro, Ky. (3) Between the terminal points Haz- ard, Ky. and Louisville, Ky., via the in- termediate points Winchester, Lexing- ton and Frankfort, Ky. (4) Between the terminal points Haz- ard, Ky. and Charleston, W. Va., via the intermediate points Paintsville-Pres- tonsburg, Ky., and Ashland, Ky.- Hun- tington, W. Va. (5) Between the terminal points Haz- ard, Ky. and Bluefield, W. Va., via the intermediate points Pikesville, Ky. and Beckley, W. Va. . (1) Between the terminal points Mem- phis, Tenn. and Cincinnati, Ohio-Coving- ton, Ky., via the intermediate points, Jackson, Tenn., Camp Campbell Airport, Bowling Green, and Louisville, Ky. (2) Between the terminal points St. Louis, Mo. and Nashville, Tenn., via the intermediate points, Cape Girardeau, Mo., Paducah, and Camp Campbell, Ky. (3) Between the terminal points, Padu- cah, Ky. and Ashland, Ky., via the in- termediate points, Madisonville, Owens- boro, Louisville, and Lexington, Ky., . (4) Between the terminal points Owens- boro, Ky. and Ashland, Ky., via the in- 263 termediate points Bowling Green and Lexington, Ky. ; Cincinnati, Ohio, and Covington, Ky. Transcontinental & Western The amendment of route No. 58 to in- Air, Inc. clude the intermediate point of Louis- (Docket No. 1727) ville, Ky. The following is a list of airlines serving Kentucky with number of trips per day and the type of aircraft flown. Airline No. Trips Type Aircraft Eastern Air Lines..................... 10 (6 Chicago–Miami) Douglas DC-3 (4 St. Louis-New York) 21 Passenger American Airlines.................... 6 (Nashville-Cleveland) Douglas DC-3 Blue Grass Airlines.................. 2 (1 Bowling Green- 21 Passenger Ashland) Stinson 1 Paducah-Louisville) 9 Passenger Chicago Southern—authorized to stop at Paducah when airport facili- ties are completed. Delta Airlines and Eastern Airlines—authorized to stop at Lexington when airport facilities are completed. Proposed System of Airports The development or expansion of air transportation is controlled by the Operable airports in any given section of the country. There are three coordinates as related to airports that govern utility. They are: 1. Number of airports. 2. Distance of airport from population center. 3. Size of airport as a limiting factor. The development of a statewide airport plan requires the integration of these three factors with local conditions, which in the case of Kentucky 2.I’é . 1. Recreational areas and state parks. 2. Emergency facilities in rough terrain. Due consideration of the above points, in light of the anticipated ex- pansion of private, commercial and transport operations, has resulted in the following general basis for the selection of airports of the proper class:* * (Class refers to airport classes as determined by the C. A. A.—See Table No. 1. 264 DESCRIPTION OF AIRPORTS BY CLASS TABLE NO. I Class 1 Class 2 Class 3 Class 4 Class 5 Landing Strip Length” 1800' to 2700' 2700' to 3700' 3700' to 4700' 4700' to 5700' 5700' and Over Width 300' 500' 500’ 500' 500' Runways-Hard Surfaced Length” None” 2500' to 3500' 3500' to 4500' 4500' to 5500’ 5500' and over Width None 150' Night Oper. 200' Instrument 200' Instrument | 200' Instrument 100' Day only 150' Night Oper. 150' Night Oper. 150' Night Oper. 100' Day only 100' Day only 100' Day only Percentage of all winds to be covered within 22% 96 at run- way and landing strip align- ment. 70% 7% 80% 90% 90% Facilities Drainage Same as Class I | Same as Class 2 | Same as Class 3 | Same as Class 3 Fencing Plus— Plus— Marking Lighting Weather Bureau Wind Direction Hangar & Shop Two-Way Radio Indicator Fueling Visual Traffic Base Lighting Weather Infor. Control—Instru- (Optional) Office Space ment Approach Parking system when required—Taxi- ways and Aprons Administration Bldg. *All landing strip and runway lengths are for usable, unobstructed distances and are based on sea level conditions; for higher altitudes increases are necessary. For most Kentucky situations, add 25 ft. to minimum lengths for each 100 ft. of ele- vation above sea level. **Present standards do not call for surfaced runways on Class I airports or “Airparks”. operations on these airports in the future will require hard surfaces for year-round operations. Source: CAA—“Airport Design.” It is possible that increased # That the center of population in each county, usually the county seat, shall be provided with adequate facilities, usually a Class 1 airport except as herein provided. Each city of 5,000 population or more shall be within a ten mile radius of a Class 2 airport suitable for private, commercial and feeder line operation. Each city of 30,000 population or larger shall be within a fifteen mile radius of a Class 3 airport suitable for interstate, feeder, private and commercial operation. Any large center of population shall be provided with a Class 4 or/ and 5 airport located within fifteen miles of the business section. Said airport is to be suitable for feeder, interstate, and commercial opera- tions. In addition Class 1 or 2 airports shall be provided as required for private, commercial and other feeder line service. Each State Park or Recreational Area shall be provided with landing Strips, where practicable and as nearly adjacent the center of interest as possible. Additional landing strips are provided where required in the interests of flying safety. In carrying out the selection of landing facilities the above basis was used as a general guide; strict adherence cannot be used although the exceptions are limited. For instance, the City of Frankfort (Pop. 11,402) should be provided with a Class 3 airport. A single Class 1 airport, cen- trally located, is adequate for two smaller cities in most instances where the cities are less than 12 miles apart. Table 2 presents a summary of the existing airports and proposed additions. The complete data are presented in Table 3. Military airports are not included in this proposed system for obvious I’éaSOI].S. TABLE NO. 2 SUMMARY OF PROPOSED SYSTEM OF AIRPORTS Proposed TO tal Airport Class Eacisting” Additions in Plaſm. Landing Strip 0 18 18 1 13 74 87 2 1. . 16 17 3 3 3 7 4 2 1 2 5 0 1 Totals 19 112 131 266 TABLE NO. 3 1940 Airport Class County City Population Present Proposed Justification Adair 18,566 Columbia”-------------- 1,372 1 C Wolf Creek Dam.... LS SP-E Allen 15,496 Scottsville”------------ 1,797 1 (2) AP-F-C Anderson............ - - - 8,936 (Lawrenceburg.” ----- 2,046) (Versailles....----------- 2,548) Jointly C Ballard.----- 9,480 Wickcliff” --------------- 1,039 1 C Barren................ 27,559 Glasgow”---------------- 5,815 2 AP-F-C Bath................................ 11,451 Owingsville”---------- 960 1 C Bell…~~~~~ 43,812 Middlesboro........... 11,777 3 AP-F-C Pineville” ............... 3,882 1. Boone..................................................... 10,820) 4 Kenton............................................................ 33,139) Bourbon.......................................................... 17,932 Paris........................ 6,697 2 C Boyd… 45,938 Ashland................... 29,537) 1 3 AK-AP-F-C Catlettsburg----------. 4,524) Jointly Boyle…~~~~~~~ 17,075 - Danville” ---------------. 6,734) 1. 1(2) AP-F-C Dix Dam..................... LS SP-E Bracken.... 9,389 Augusta................... 1,701) Chatham................. ) 1. C Brooksville” ........... 656) Breathitt....---------- * * * * * * * * * * * * * * * * * * * * * * * = a m = m = * * * * * 23,946 Jackson*................. 2,099 1. C Breckenridge........ 17,744 Hardinsburg+-------. 930 1. C Big Spring.............. LS E Bullitt............................ 9,511 Shepherdsville+.... 762 1. C Butler 14,371 Morgantown----------. 859 1 C Caldwell 14,499 Princeton” -------------. 5,339 2 AP-F-C Calloway........................ 19,041 Murray” ------------------ 3,773 1(2) AP-F-C Campbell 71,918 Newport.----------------- 30,631) Comb. with Covington............... ) Alexandria............. 430 1. C Carlisle..... 7,650 Bardwell” --------------. 1,218 1. C Carroll 25,545 Graybank” -------------. 1,176 1. C Olive Hill---------------- 1,491 LS C-E Casey.................... Liberty” ------------------ 676 1. C Christian 36,129 Hopkinsville” ........ 11,724 2 AP-F-C-ARC 267 TABLE NO. 3 (Continued) 1940 Airport Class County City Population Present Proposed Justification Clark 17,988 Winchester*........... 8,594 1 2 AP-F-C Clay 23,904 Manchester*----------. 1,509 1 C Clinton 10,279 Albany”................... 1,259 1 C Crittendon 12,115 Marion*................... 2,163 1 C Cumberland 11,923 Burkesville” .......... 1,092 1. C Daviess...........................….......................... 52,335 Owensboro” -----------. 30,245 1 3 AK-AP-F-C Edmonson....................................................... 11,344 Brownsville” .......... 451) 1 C-SP Mammoth Cave..... ) Elliott.…. 8,713 Sandy Hook*......... 160 LS E Estill.… 18,978 Irvine”.................... 3,681 1. SP-C Fayette 78,899 Lexington............... 49,304 3 4 APC-AT-AP-F 1 1 Fleming.......................................................... 23,327 Flemingsburg+...... 1,542 1 C Floyd 52,986 Prestonsburg+....... 2,328 Franklin 23,308 Frankfort*............. 11,492 1 3 AP-F-C Fulton 15,413 Hickman................. 2,268 1 C Fulton.............-------- 1(2) AP-F-C (Miller...................... (Reelsfoot Lake...... LS SP Gallatin 4,307 Warsaw” ----------------. 880 1. 1 C-E Garrard - - - - - - - 11,910 Lancaster*.............. 1,999 1 C (COmb. with Stanford) ............. Grant...... 9,876 Williamstown” ...... 1,077 1 C Graves 31,763 Mayfield*................ 8,619 2 AP-F-C Grayson 17,562 Leitchfield*............ 1,146 1(2) AP-F-C Short Creek............ 60 LS E. Green 12,321 Greensburg+---------. 1,176 1 C Greenup 24,917 Greenup”................ 1,063 1 C Hancock 6,807 Hawesville” ........... 896 LS E Hardwin 29,108 Elizabethtown” ..... 3,667) 2 AP-F-C Comb. with Glendale.................. ) Upton...................... LS E. Harlan 75,275 1 Harlan”------------------. 5,122 2 AP-F-C Lynch...................... 10,000 2 F-C 268 TABLE NO. 3 (Continued) 1940 Airport Class County City Population Present Proposed Justification Harrison - 15,124 Cynthiana”............. 4,840 1 C Hart…~~~~~~ 17,239 Munfordsville” ...... 832 1. C HendersOn........................ 27,020 Henderson.............. 13,160 2 AP-F-C Henry------------------------------------------------------------- 12,220 Eminence................ 1,411 1. C Hickman - - - - 9,142 Clinton” -------------...-- 1,540 1. C Hopkins - - - - 37,789 Dawson Springs.... 2,560 1. SP-C Madisonville” ........ 8,209 1 2 AK-AP-F-C Jackson - - - 16,339 McKee”-------------------. 255 1 C Jefferson 385,392 Louisville” ............. 319,077 3 & 4 4 & 5 A-AK-AP-F-C Shively.................... 1,273 2 F-C (St. Matthews.......... 5,449) 1. C (Lyndon................... ) Fern Creek------------- 1. C-E Jessamine 12,194 Nicholasville” ------- 3,192 1. C Johnson 25,771 Paintsville”............ 2,324 1. C Knott 20,007 Hindman”............... 625 LS E RnOX 31,029 Barbourville” -------- 2,420 1. C LaRue - - - - 9,622 Hodgenville” ---------. 1,348 1. C Laurel 25,640 London”.................. 2,263 1. 1 (2) AP-F-C LaWrence 17,275 Louisa”-------------------. 2,263 1. C Lee 10,860 Beattyville” ........... 1,012 1. C Leslie - - - - 14,981 Woolen”.................. 1,763 1. C Letcher 40,592 Jenkins 9,428 2 F-C Whitesburg”.......... 1,616 LS E Lewis 15,686 Vanceburg”------...... 1,184 C Lincoln. 19,859 Stanford.................. 1,940) 1 C (Comb. with Lancaster) ........... ) Livingston.---------------------------------------------------- 9,127 Smithland”.-----------. 592 1. C Logan............ 29,345 Russellville” ---------- 3,983 1 C Lyon.............….--------------------------------------------- 9,067 Eddyville” .............. 2,407 1. C McCracken.....................-------------------------------- 48,534 Paducah.................. 33,765 3 3 AK-AP-F-C Paducah.................. 1 1. C McCreary 16,451 (Stearns.................... 1,548) 1. C (Whitley City*....... 1,500) 269 TABLE NO. 3 (Continued) 1940 Airport Class County City Population Present Proposed Justification McLean.….----------------------------------------------------. 11,446 LiVermore.............. 1,601 1 C Madison.......................................................... 28,541 Richmond* ............. 7,335 2 C Magoffin.......................................................... 17,490 Salyersville” .......... 1,254 1 C Marion 16,913 (Lebanon................. 3,786) 1. C (Comb. with Springfield............. Marshall 16,602 Benton”................... 1,906 1. C Martin.…..…. 10,970 Inez”........................ 500 LS E Mason.…. 19,066 MaySVille” .............. 6,572 2 AP-F-C Meade.…...............….... 8,827 Brandenburg”........ 561 1. C Menifee................ - - 5,691 Frenchburg............ 289 LS SP-E Mercer 14,629 Harrodsburg”........ 4,673 1. C Metcalf 10,853 Edmonton” ............. 403 1 C Monroe............................................................ 14,070 Tompkinsville” ..... 1,438 1. C MOntgomery 12,280 Mt. Sterling”.......... 4,700 1 (2) AP-F-C Morgan.…....................................... 16,827 West Liberty.......... 573 LS E. Muhlenburg........... - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 37,554 Greenville” ............. 2,347 1 (2) AP-F-C Dunmoor................. 158 LS E Nelson.….................................................... 18,004 Bardstown.............. 3,152 1. C Nicholas.......................................................... 8,617 Carlisle.*................. 1,414 1 C Ohio… 24,421 Hartford *............... 1,385 1 C FOrdsville............... 200 LS E Oldham............................................................ 10,716 LaGrange” .............. 1,334 1 C OWen.…..................... 10,942 Owenton” ................ 1,190 OWsley............................................................. 8,957 BOOneVille” ............ 283 LS E Pendleton....................................................... 10,392 Falmouth*.............. 2,099 1. C Perry.….................. 47,828 Hazard*.................. 7,397 2 AP-F-C Pike…......... 71,122 Pikeville” ............... 4,185 1 (2) AP-F-C POWell 7,671 Stanton”................. 625 1 C Slade........................ 450 LS SP-E (Natural Bridge) ... Pulaski - - 39,863 Somerset”............... 6,154 2 AP-F-C Robertson - - - 3,419 Mt. Olive*............... 573 1 C 270 TABLE NO. 3 (Continued) 1940 Airport Class County City Population Present Proposed Justification Rockcastle...................................................... 17,165 Mt. Vernon*........... 1,100 1 C Rowan.…......…. 12,734 Morehead.*.............. 1,901 1. C Russell * * * * * * * * - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - 13,815 Jamestown”........... 476 1. C Scott… 14,314 Georgetown”.......... 4,420 1. C Shelby.…..........................…. 17,759 Shelbyville”........... 4,392 1. C Simpson.......................................................... 11,752 Franklin” ............... 3,940 1 C Spencer........................................................... 6,757 Taylorsville” ......... 921 1 C Taylor.….......….................…. 13,556 Campbellsville *..... 2,488 1 (2) AP-F-C Todd.… 14,234 Elkton” ................... 1,214 1. C Trigg.…. 12,784 Cadiz"...................... 1,228 1. C Trimble........................................................... 5,601 Bedford *................. 387 Union.… 17,411 MOrganfield*.......... 3,079 1 (2) AP-F-C Warren............................................................ 36,631 Bowling Green *..... 14,585 2 3 AR-AP-F-C Washington................................................... 12,965 Springfield*........... 1,767 (See Lebanon, Marion Co.) Wayne.….................................................. 17,204 Monticello............... 1,733 1. C Webster........................ 19,198 Providence------------- 4,397 1. C Whitley 33,186 Corbin..................... 7,893 2 AP-F-C Williamsburg+...... 2,331 1 C (Pleasant View.... .. 335) (Cumberland Falls. ) LS SP-E Wolfe.…............................ 9,997 Compton” ............... 418 LS SP-E Woodford........................................................ 11,847 Versailles”............. 2,548 (See Lawrenceburg) Note: Class 4 Airport to serve the needs of Newport, Covington, Cincinnati. The following abbreviations are used in the column headed “Justification”: A—Air Carrier Airport AK–Air Carrier-Intrastate AT—Air Carrier Service Temporarily suspended AP–Named in Application for Certificate of Convenience and Necessity. F—Proposed Feeder Line Airport C—Civil Aviation SP–State Park Or Recreational E—Emergency (2) Approval Of these cities as stops on route applications pending Civil Aeronautics Authority action. On May 29, 1945, will necessitate a Class 2 rather than Class 1 airport. 271 Plan of Action To realize the type of air development that the State of Kentucky is justly due will call on the air minded as well as all the people in the State. It is the solemn responsibility of the people of Kentucky to save Kentucky from the bottom of the list on Air Development. The first and more important single thing is the maintenance of a strong, efficient, well-financed State Department of Aeronautics. The Air Development in any of the States is in direct relation to the size of the Department of Aeronautics. The Department for Kentucky must be organized on the following lines. DEPARTMENT CHART Commonwealth of Kentucky Department of Aeronautics | cow Mission Director of Aeronautics Assistant Director | Secretary | Intrastate Engineering Airlines Charter Operations Development Airport Safety & 4 * | * tº |º Inspection Education Prolm Otioln 272 DEPARTMENT CHART COMMONWEALTH OF KENTUCKY DEPARTMENT OF AERONAUTICS DEPARTMENT OF AERONAUTICS JOB AND COST LIST PER ANNUM Director of Aeronautics.......................................... $ 5,000.00 Administrative .................................................... 4,500.00 Secretary … 2,100.00 11,600.00 Chief Engineer ........................................................ 4,000.00 6 Jr. Engineers ($3,000 per annum) ---------------- 18,000.00 2 Draftsmen ($2,100 per annum) .................... 4,200.00 Safety Engineer ...................................................... 3,600.00 Foreman ------------------------------------------------------------- 2,400.00 2 helpers ($1500 per annum) ............................ 3,000.00 Secretary … 2,100.00 Typist --~~~~~~~~~~~~~~~~ 1,200.00 38,500.00 Development Director ............................................ 4,000.00 Assistant Development Director ---------------------- 3,000.00 Secretary … 2,100.00 9,100.00 Traveling Expenses ................................................ 23,000.00 Office rent and supplies .......................................... 5,000.00 Airplane operation 600 hours (@ $ 3.50............................................ 2,100.00 300 hours (a) $10.00.....--------------------------------------- 3,000.00 33,100.00 *Office Equipment .................................................. 5,000.00 1 truck …~~~~~~~~~~~~~ 2,000.00 1 4-place Airplane ............................................ 5,000.00 2 2-place Airplane ............................................ 4,000.00 16,000.00 TOTAL --~~~~~ * These items may be depreciated over five or ten years. $ 11,600.00 38,500.00 9,100.00 33,100.00 16,000.00 $108,300.00 273 In the postwar period and especially in the first year after the war, the air development will take place. Kentucky’s aeronautical position is in the balance. So important is the air development, that Federal Aid is al- most sure to be forthcoming. Numbers of bills giving Federal Aid to air- port construction are in Congress. The hearings have been held and more complete Aid legislation has been ordered written by the committee. The planning necessary to make it possible for Kentucky to be ready to go forward with the National plan is imminently necessary. It will take time and work by a carefully selected group of experts, which will make up the Department of Aeronautics. Because of the lack of planning in Kentucky, our share of Federal Aid as set up in the National plan is about half of that set up for the other comparable states. This must be corrected; and the airport outline of this report does just that, provided the means are available. Every airport however large or small must be planned for present and future needs; and before Federal aid can be given a complete set of plans must be furnished the Civil Aeronautics Ad- ministration. The Department will have to help the small cities to ac- complish this. Necessary Legislation In addition to all of the above, if Kentucky is to get Federal Aid on its Airport construction plan, certain legislative changes in the Kentucky Statutes are necessary to comply with the Federal Acts. 1. An Act for the zoning of airports (a model Act is being submitted by the Zoning Committee). 2. The tax collected on aviation gasoline must be used for aviation. Without these two changes in our law, we will not be allowed Federal Aid which we hope will be over $7,000,000. Recommendations Sound Airport Plan. Sound Air Transportation Plan. Sound Plan to absorb Veterans in aviation jobs. Sound Plan to include aviation in our educational system. State owned airport at Frankfort. Legislation (Zoning and Aviation Gas Tax). $100,000 annually for State Department of Aeronautics. $500,000 to help small cities and build State airport. $75,000 immediate emergency appropriation. 274 ACKNOWLEDGMENT The Aviation Sub-Committee of the Transportation Committee wishes to take this opportunity to acknowledge with grateful appreciation the extensive and valuable assistance rendered by Carl W. Ulrich, Director of Aeronautics for the Commonwealth of Kentucky, and by the Aero Club of Kentucky, Incorporated, National Aeronautics Association Chapter. Without this aid the report could not have been prepared in the limited time available. Members of the Aero Club who have assisted the Aviation Sub-Committee are: HOWARD COONS HARRY MOSS JOHN T. EIKER ALICE PARKER BLANCHE HENRY JOSEPH L. RAHM FRANK HOLZAPFEL MURRAY TAYLOR PAUL JONES ALFRED J. STROHMAIER RUEY M. WADE 275 COMMITTEE ON TRANSPORTATION PAUL G. BLAZER, Chairman, Ashland E. J. BUHNER, Louisville HERBERT L. CLAY, Louisville GUY A. HUGUELET, Lexington J. H. MCCHORD, Louisville VEAR MANN, Lexington JOHN WESLEY MARR, Lexington LT. COL. A. H. NEAR, Louisville JAMES B. O’REAR, Frankfort JAMES C. STONE, Lexington EUGENE STUART, Louisville J. S. WATKINs, Frankfort Rail Sub-Com mittee J. H. MCCHORD, Chairman, Louisville E. P. HUMPHREY, Louisville GEORGE J. LEWIS, Lexington ROY M. SHELBOURNE, Paducah. G. B. WALL, JR., Huntington, W. Va. THOMAs J. Wood, Louisville Highway Sub-Committee EUGENE STUART, Chairman, Louisville Truck; Division, E. J. BUHNER, Chairman, Louisville RAY GUSTAFSON, Louisville S. C. HARLAN, Glasglow W. W. HENDERSON, Hopkinsville E. J. LUCAS, Louisville HAROLD H. NEEL, LOuisville E.J. O’BRIEN, JR., Louisville R. H. PROCTOR, Owenton ROBERT H. RAIBERT, LOuisville DOC RHODES, Lexington GEORGE S. SULLIVAN, LOuisville W. E. WELLs, Carrollton RICHARD A. WHITTY, Louisville Bus Division GUY A. HUGHELET, Chairman, Lexington Private Car O'M577 er’s Division, VEAR MANN, Chairman, Lexington LEN B. SHOUSE, Lexington THOMAS R. UNDERWOOD, Lexington Aviation. Sub-CO’m/mittee LT. COL. A. H. NEAR, Chairman, Louisville DR. L. K. CAUSEY, Bowling Green RICHARD LEROY, Paducah. DIC K POWELL, Lexington DR. W. H. STARK, Louisville J. E. STUART, Russellville P. G. WONDERSMITH, Covington Special COm mittee on Coordination of Reports H. FREDERICK WILLRIE, Chairman, Louisville PAUL G. BLAZER, Ashland JAMES C. STONE, Lexington 276 The following dissent on the Transportation Report was filed with the Office of the Chair- man. It is reproduced here with by permission of the Commission which does not necessarily endorse or concur in whole or in part with the representations of the dissentor. 277 TRANSPORTATION A dissenting report and statement concerning the report adopted by the Postwar Advisory Planning Commission. By : J. B. HILL Member of the Postwar Advisory Planning Commission July 28th, 1945 I regret that I am unable to concur in so much of the report of the Postwar Advisory Planning Commission, hereinafter called Commission, as relates to the subject of Transportation, and accordingly, as a member of that Commission, tender this statement of the reasons for my dissent and views. To properly evaluate the substance of the so-called Trans- portation Report, its origin must be considered. 1. Transportation Report is entitled to little weight a. The Committee and How Report Prepared and Adopted. The Postwar Advisory Planning Commission originally appointed chairmen of several general committees to study and report upon numerous subjects, such as Transportation, Agriculture, Education, etc. The chair- men so appointed were permitted to select the members of their respective committees, regardless of whether or not they were members of the Com- mission. The Chairman of the Transportation Committee appointed twelve mem- bers on that committee, including the Chairman of the Commission as ex- officio member. These included sub-chairmen to represent the various forms of transportation, i.e., one each for aviation, railroads and high- way, with one additional sub-chairman for each of the divisions into which highway transportation was, for the purposes of the report, divided, i.e., trucks, buses and private automobiles. Including the Chairman, there were two representatives of the petroleum interests. At least nine of the thirteen members had interests in highways, highway transportation or associated interests. The Chairmen of the Sub-committees for Railroads, Trucks, Buses, Private Automobiles and Airways made interim reports for consideration by the Transportation Committee, and in an effort to evaluate the many and differing viewpoints, a Drafting Committee of five was appointed to prepare a tentative report for the Transportation Committee. The gentle- man proposed for Chairman did not serve as such, two others asked to be excused of the assignment, and the fourth said the views were so con- flicting there was no need to meet to try to reconcile them. The Chairman of the Transportation Committee became so engaged he could not prepare the report for consideration of the Transportation 278 Committee. Thus, the date of the meeting on July 10th was approaching without the Transportation Committee or the Planning Commission hav- ing a report prepared for consideration. Under date of July 7th, the Chairman of the Planning Commission, signing as “Chairman, Sub-com- mittee on Transportation” mailed to its members of the Commission a “report on Transportation” for “discussion at the meeting on July 10th, for approval by the Transportation Committee and the Commission.” The text of the report presented at the meeting of the Planning Com- mission on July 10th, was of undisclosed authorship. Certainly, it was not the product of the Committee of five who were appointed to prepare it, nor had it been approved by the Transportation Committee which had not met since May 10th. It had evidences of being hurriedly prepared from a survey of the preliminary reports of the different groups, with some ad- ditional individual opinion offered. From the composition of the Transportation Committee and the ap- parent hurried consideration of the text submitted to the Planning Com- mission, it is not surprising that the draft of the report submitted to the Planning Commission, and as amended and adopted by less than half of the total membership of that Commission, should signally fail in a broad recognition and consideration of the overall transportation problem. This is not intended as a personal criticism of the gentlemen adopting the report, but it would be only natural for their expressed viewpoints to give only scant and critical treatment of the railroads, and at the same time magnify the consideration of lesser agencies in which many had a great interest. Nor, could the conclusions in such a report, involving such a complicated and important matter, presented for the first time to only a portion of the Commission's membership and to be passed upon in such a limited time, possibly have the thoughtful consideration it deserved. b. Partiality Shown in Other Ways. A scant page of the initial report was devoted to the greatest of all transportation agencies, the railroads, and then largely to a criticism of three matters of small importance. Even this criticism displayed much ignorance of the movement of freight cars and less-than-carload freight. On the other hand, in the five pages of the report devoted to a considera– tion of the trucks, there was incorporated most of the propaganda ordi- narily advanced by the trucking interests to secure the enactment of laws permitting the operation of trucks of excessive size and weight and the construction of highways of strength and capacity adequate to support them. This propaganda included a number of erroneous statements of fact and many unsound conclusions. Some of these errors will be pointed out hereinafter. - 279 2. National Transportation Policy a. Its Adoption Most Important Part of Report. The adoption by the Planning Commission of the National Trans- portation policy as expressed in the Transportation Act of 1940 should be considered its most significant action. This Transportation Policy is quoted below: “It is hereby declared to be the national transporta- tion policy of the Congress to provide for fair and im- partial regulation of all modes of transportation subject to the provisions of this Act, so administered as to recog- nize and preserve the inherent advantages of each ; to promote safe, adequate, economical, and efficient Service and foster sound economic conditions in transportation and among the several carriers; to encourage the estab- lishment and maintenance of reasonable charges for transportation services, without unjust discriminations, undue preferences or advantages, or unfair or destruc- tive competitive practices; to cooperate with the several States and the duly authorized officials thereof; and to encourage fair wages and equitable working conditions; —all to the end of developing, co-ordinating, and pre- serving a national transportation system by water, high- way, and rail, as well as other means, adequate to meet the needs of the commerce of the United States, of the Postal Service, and of the national defense. All of the provisions of this Act shall be administered and enforced with a view of carrying out the above declaration of policy.” The text of the report initially submitted to the Commission did not endorse this as having the Planning Commission’s approval and recom- mendation. It was presented merely as a review. Fortunately, it was fully endorsed and adopted as its general recommendation. b. What Its Application Would Result In. State and Interstate Commissions have full power to prevent monopoly or undesirable transportation practices. Laws and administrative control should be exercised in accordance with the National Policy which, among other things should provide fair and impartial regulation of all forms of transportation; recognize and preserve the inherent advantages of each; promote safe, adequate, economical and efficient Service; 280 foster Sound economic conditions in transportation and among the Several carriers. c. Report Conflicts with Policy. Having so adopted this broad constructive policy as that to be recom- mended to the State authorities, the balance of the report should have been directed to the understanding and accomplishment of such a policy. Such was not the case. In fact, some of it was contradictory of such a policy. Some parts of the Report advocate principles which would result in the furnishing, at Government expense, of transportation facilities for agencies operating for private profit in the transportation field in competition with railroads. It would result in paralleling railroad lines with superhighways, all with a little or no regard to the question as to whether the additional facilities are really needed to furnish the public adequate transportation at equal or lower costs, or whether the carriers’ beneficiaries would pay the cost of what they receive. It advocates that Kentucky permit the motor carriers of all other states to use her high- ways free of charge in order that Kentucky truck operators may be re- lieved of the obligation to pay for their use of the highways in such other States. Such policies are not in accord with the principle of impartial regula- tion, nor do they foster sound economic conditions in transportation, or among the several carriers, nor do they tend to preserve and coordinate a national transportation system by water, highway and rail. 3. Transportation Problem a. Prewar Conditions Should Be Considered. In the prewar depression years there was an excess of both passenger and freight transportation, both intra and interstate. About 30% of the railroads in the Southeast were in bankruptcy and others were near the border line. Truck transportation was chaotic, only a few common carrier lines were reliable or successful, and all of these had many problems yet to be solved in connection with the contract and itinerant trucker and private, commercial highway carriers. A constant growth of waterways and pipelines increased the nation’s aggregate freight carrying capacity. All of these various agencies added up to more facilities to handle freight traffic than there was traffic to be handled. In view of these difficult, if not desperate, conditions in the transportation world, Congress undertook an elaborate and comprehensive study of the transportation problem. Through laws already on the statute books, state and federal, the prin- ciple of regulation had been substituted for that of free competition. b. Confused Conditions Led to Transportation Act of 1940 and the Statement of National Policy. 281 Upon the completion of this study, Congress for the first time, in 1940, announced a National Transportation policy, which has been concisely stated and adopted by this Planning Commission. In the years ultimately following the war prosperity, prewar conditions are almost Sure to pre- vail or even be more adversely accentuated. State postwar policies should, therefore, fail to encourage a return to the prewar chaotic transportation conditions. The State should consider well how to effectively contribute to the National Transportation policy. Now, dealing concisely with each principal form of transport: 4. Railroads a. Railroads’ Place in Transportation Field. The railroads for Kentucky, as for the Nation, comprise by far the most important transportation agency, equally essential in peace and war. Their lines are so coordinated as to service that they function as one agency, although separately and privately owned and operated. It is es- sential in the public interest that they be fully preserved, whether by private or public means. They produce the most economical freight trans- port, all costs included, carrying a ton of average freight—coal to silk—at about one cent per ton per mile. They cannot pick and choose what they will carry—such as the high class freight alone—they must afford a com- plete service. During the present war it has been clearly demonstrated that their prewar trouble was an insufficiency of traffic. Given traffic volume, their performance would continue to be exceptional. The State and the public must, therefore, look carefully at the development of dupli- cate agencies of transport where existing railroad service is sufficient for the public’s reasonable needs. b. Other Contributions of Railroads to Welfare of State. During the years 1942, 1943 and 1944, railroads expended in Ken- tucky more than $12,000,000 for extension and reconstruction of line and structures, for installation of traffic control devices and other improvements to promote efficiency or safety of service. They have under contract or have definite plans for similar improvements in this state during the five- year period 1945-1949 aggregating $36,491,681. In a normal prewar year, 1938 for example, the railroads in Kentucky paid property taates amount- ing to $4,700,000. In 1942 these taxes were in excess of $5,000,000. The taxes paid by railroads in Kentucky for school purposes alone in a normal prewar year averaged more than $18,000 for each county in the State. In 1940, the last full prewar year, the railroads paid more than $18,000,000 in 377 Kentucky cities and towns for fuel, material and supplies. They paid more than $47,000,000 to nearly 29,000 employees in Kentucky for wages. Similar sums will continue to be expended in this state for these 282 purposes after the war. Still more important than these expenditures, however, is the fact that the railroads carry over their own roadways the great bulk of the nation's transportation load and have handled nine tenths of the war traffic. These huge sums are real postwar action, not mere planning or assertions. The railroads' belief in Kentucky’s future as shown by this stimulating action deserves such consideration by the pub- lic that no policy harmful to them should be adopted, unless greater public advantages accrue by the fostering of other duplicate and competitive forms of transport, a subject requiring comprehensive and careful con- sideration. Under a discussion of highway transport this will be further enlarged upon. - c. Railroad Report. The report of the Sub-committee on Railroads is a thoughtful, well- prepared treatise. It was received and filed but neither adopted nor re- jected. It did not receive the consideration it deserved and is commended to the Governor, the Legislature and the Public as worthy of careful at- tention. 5. Highway Transportation a. Issue Should Be Determined From Standpoint of Public Interest. Is not a Controversy Between Railroads and Trucks. Those favoring freight trains on highways are making a concerted effort all over the country to raise load limits and make them uniform. Note the following quotation from Transport Topics, the national publica- tion of trucking interests: “The trucking industry gains in the State Legisla- tures did not just happen. They are the result of organized team work, of energy expended, and of good planning.” The highest limits in any State will be ultimately aimed at. A studied effort in Kentucky is made to make it appear that the question is merely a controversy between the railroads and the truckers. Nothing is further from the facts. The greatest harm that can come from an improper solu- tion of the question will fall upon the public and the ordinary users of the highway. As a railroad man, I might be accused of arguing the question from a self-interest standpoint, but I maintain the position I have ad- vanced with respect to keeping freight trains off the highways is a much greater protection to the public, but more particularly to the Ordinary automobilist, the farmer, country man, and small trucker, in his enjoy- ment and use of that he largely created and pays for. 283 b. Attitude Toward Highways. The railroads' attitude toward highway or any other form of transport is either misunderstood or misrepresented. Railroads unqualifiedly favor the development of a good roads system of such construction as to meet the needs of ordinary transportation—roads to accommodate passenger cars and medium trucks, which pay the greater part of highway costs. They favor roads of this type and service to all communities, and particularly those communities where hard surface roads do not exist, including farm to market roads and the operation of trucks thereon, such as the farmer uses. They do not favor the expenditure of huge sums on a few first class highways essential to support trucks of excessive weights, when the ordinary auto and truck user, and many communities, would be better served by an extension of the ordinary hard surfaced road system. Most railroad employees, as members of one of the transportation agen- cies, reason as follows: To spend the money on extraordinary highways merely to accommodate vehicles of excessive weight, tends to create a duplicate and unnecessary additional transportation system resulting in an aggravation of the postwar transportation problem without corresponding benefits to the public; . . . . As citizens and taxpayers they express the views of many others, as follows: Moneys from taxation should build more roads of the ordinary hard surface type for a wider benefit of rural communities, farmers, and operators of all moder- ately sized vehicles, rather than building fewer miles of extraordinary highways for the private benefit of a priv- ileged class. Heavier loads should not be authorized on the State's highways be- cause only a very few of the roads in Kentucky are equal to carrying, with- out excessive maintenance, weights in excess of the present limitation of 18,000 lbs. To permit greater weights upon them would therefore cause abnormal wear and tear and high maintenance costs, thus diverting to maintenance expenditures, funds which might with better purpose, be spent for building more farm-to-market and other secondary roads. Because Tennessee or any other State permits a higher gross load is no sound argument for increasing Kentucky’s load limit. In many States the load limit may have been raised by organized political effort and not because the higher limit was soundly considered and established. Kentucky has practically no road debt, many other States have tremendous highway in- debtedness. 284 c. Highways for the Greatest Number. The development of auto-motive transport and good highways have added measurably to communication, distribution and the public welfare. The private car and small truck have made life more comfortable for the general public, have improved the farmers’ lot and have added much to the convenience, commercial and social uplift of the whole people. The further extension and use of both highways and such transport should be fostered and developed along sound economic lines to the ultimate better- ment of the greatest number. These are the private car owners and owners and operators of medium size trucks and the traveling public for whom roads are primarily built and maintained. Hence, since these also pay much the larger part of highway construction and maintenance, road building and use should conform to that pattern serving them in the widest-spread way and with the least possible interference with safety and convenience. Under such a State highway policy the largest road mileage could be built and serviced and the greatest number of persons satisfactorily served at the lowest cost. Such a policy is contrary to the building of fewer miles of wider, stronger and more expensive highways, the prin- cipal purpose of which is to profitably serve private commercial interests of less than 2% of highway vehicles. The Transportation report as adopted, abundantly praises highway transport and the desirability of reaching farmers and communities not now properly served, though it makes no mention of the shortcomings. By statement, inference and conclusion, it would undertake to leave the impression that only by the building of super-expensive highways and the operation thereon of vehicles of great size and weight can the improve- ment of the whole community be rapidly advanced. Such a plan and policy is in direct conflict with the interests, safety and convenience of the general public and the ordinary automobile and truck user. With a limited amount of funds for highway construction and maintenance, it would actually restrict the good road mileage of a satisfactory kind and lessen the use by the greater number who largely pay for road construc- tion and maintenance. In support of these statements it is pointed out that of all of the trucks on the highways of the United States in a normal prewar year only about 8% were of 2 tons or greater capacity. These are owned and operated in a large part for profit and are for the most part as common, contract or private carriers. The agitation for the superhighways is created and directed by those who profit most by such construction—namely, those who sell road material, oil, gasoline, large trucks and particularly trailers, and by contractors and those who use the highways for business and profit. 285 d. Safety. Loss of life, accidents, and destruction of property in 1944 due to motor transportation are frightfully heavy. In 1944 casualties on highways were 24,300 killed and 750,000 injured. When gasoline and speed restric- tions are removed, the dangers on highways will be increased by reason of so many old vehicles and careless drivers. It is desired to emphasize, that constructive effort should be aimed at effecting a decrease. The ten Sug- gestions of the National Safety Council should be adopted. This will re- guire an educational program directed at the public and highway users and if essential a fund should be set aside from highway revenues to achieve that purpose. Highway patrolmen should be also carefully trained to aid in such results. e. Civil Service. As far as feasible all persons connected with the Highway Depart- ment in all of its activities should be placed under Civil Service, thus insuring a better qualified and trained personnel and the removal of dis- turbing political considerations. f. Kentucky’s Law Not a Trade Barrier Some of the statements in the Transportation Report are herein chal- lenged as being insupportable. For example, it is said the present gross load limit of 18,000 pounds sets up trade barriers, yet the Court of Ap- peals of Kentucky has decided that this load weight limitation for the protection of the State highways is not a “trade barrier,” and the United States Supreme Court has affirmed a Federal District Court decision to the same effect. The 18,000 pound weight limitation has been virtually set aside during the war emergency. The truth is, the words “trade barrier” is an ill-defined catch-all susceptible of promoting misleading propaganda. Weight limitations vary in many States, one from another. It would then follow that any limitation in weight short of the highest allowable weight in any State would, according to claimants, create a trade barrier. This is an absurdity as all States do not have equal roads and similar use. Nor would the so-called “trade barrier” be eliminated by setting any specified load limit and permitting the Highway authorities to specifiy the high- ways on which the heavier loads could not go. Any such limitation on use to any community would become a “trade barrier” for that community. It is as equally indefensible to claim that legitimate taxation constitutes a “trade barrier.” There are seven statements as to how present weight and size limita- tions constitute “trade barriers.” These are mere assertions and not facts. They are partially quoted and discussed as follows: 286 “Restricts development of highway transportation.” The reverse is true. A limitation on weight preserves the high- ways, makes highly expensive construction unnecessary, reduces main- tenance and in the end leaves more funds available to further extend satisfactory roads for those who largely pay for them. It makes the highways safer and more attractive to tourists and others. “Penalizes receivers and shippers through increasing transportation costs.” - This statement is refuted by the existing facts that goods are moved by common carrier trucks at prescribed legal tariff rates, today generally higher than railroad rates, and these have no relation to the size of the vehicle handling them. Common carrier truck rates are no lower in States where greater loads are permitted. A business which does its own transportation, or by contract, does not pass the Savings, if any, on to the consumer. It adds them to its profit. Truck trans- portation is not cheap. It often is quite flexible and convenient and for short distances, somewhat faster. Its common carrier freight rates are today generally higher than railroad rates. It desires only the highest paying traffic, leaving the remainder for Some other stand- by service. No mention is made of the disruption of organized estab- lished marketing practices by the itinerant trucker and peddler and with frequent losses to the producer. No, a limitation in weight is not a trade barrier—the same freight will move in two medium trucks as One large one—and at the same freight rate. “Delays industrial development of Kentucky . . . . as compared with Other States.” This is a mere assertion unsupported by any facts. Large industry generally locates on the rails or water, or where there is a back-log of local markets. Moderate industrial development could be served by moderate road and moderate vehicles. The big trucks, if allowed, do not generally serve small communities—they pick and choose the high grade traffic originating and terminating at established centers on railroads. Lack of industrial development may result from many conditions unconnected with large truck transport. “Tends to create new and competing forms of transportation, etc.” This is about as clear as mud. If it means that heavier loads are kept off of insufficient highways much to the benefit of most users and certainly to their financial benefit—all well and good. It at least defeats the duplication of unneeded facilities for long distance trans- port. “Militates against agriculture and Kentucky farmers, etc.” The reverse is generally true. The big truck charges the farmer 287 the same rate that the smaller one charges and the prohibition of the larger trucks preserves the existing roads and makes more funds available for more roads and more farmers. 6. “Increase costs to consumers, etc.” This is a mere repetition of Item 2, and is fully refuted. 7. “Deprives the State Highway Department of substantial revenues which would be derived from taxes on additional gasoline consumption and license fees.” This is a mere statement but lacks authoritative confirmation. It is somewhat contradictory as if “reciprocity” as otherwise proposed is made effective, no license fees would accrue against the visiting trucker. If the truck weight is great, its gas tax, even if collected in Kentucky, will not pay his fair proportion of all costs. Finally, an increased number of great vehicles may actually reduce the number of smaller Vehicles using the highway and consequently reduce road revenues. g. Commercial Carriers Pay Inadequately for Highway Use. At page 9 of the report it is said an analysis or study developed by the Division of Planning of the Department of Highways shows that “commercial highway carriers actually pay more than the total annual highway costs for the roads over which they travel.” THERE IS NOT A SYLLABLE IN THAT STUDY WHICH JUSTI- FIES OR IN ANY WAY SUPPORTS SUCH A STATEMENT OR CON- CLUSION. The study, which is entitled, “Highway Costs and Revenues at Three Selected Points on Heavily Traveled Highways,” nowhere indicates that it was intended to show or does show what commercial carrier pay or the revenues received by the State from commercial carriers. No such claim was made for it by the Department that made the study or by those who first presented it in the report of Truck Division of the Highway Trans- portation Committee. It is true that if revenues from busses and trucks if correctly esti- mated and actually received annually from the three selected sections, be added, the result exceeds the incorrectly estimated annual costs of the three sections; but there are included in those estimated revenues the taxes received from all trucks (private and commercial), as well as all busses. There is no division of the revenues received from private and commercial trucks. The taxes paid by both classes are included in one lump sum along with those received from busses. It is well known, however, that commercial trucks constitute only a relatively small proportion of all trucks, and, fortunately, that figure is given in the report in another connection; the proportion, as stated at 288 page 6 of the report, being 13% per cent. Yet apparently, because it ap- pears from these estimates that the revenues received from “trucks and busses” on these three heavily-traveled sections exceed the cost of mainte- nance of those sections, the bold assertion is made that this study clearly shows the “commercial highway carriers actually pay more than the total annual highway costs for the roads over which they travel.” This report with this glaring misstatement as to one important phase of the subject should not be presented to the Governor and the public as the considered judgment of the Planning Commission. It appears from the explanatory statement in the report of the Truck Division which first presented this study, and also from the heading given to it by the Highway Department, that its only purpose was to show that the annual revenues received by the State from all motor vehicles using heavily- traveled sections of the highways eacceed the annual cost of those par- ticular sections. This conclusion, even if correct, would have little bear- ing on anything pertinent here. In the judgment of capable and impartial engineers the estimated annual costs of the three selected segments of highways are much too low because of errors in the assumed service life of the highways and because of the omission of interest on the cost of the highways. The estimated service life is about double the actual expected life. The results on a Sparsely traveled highway would show a great disparity between receipts and expenses. There are so many things wrong with the formula used and the con- clusions drawn therefrom, it is utterly of no value. The study has no standing whatever to show that the large commercial trucks pay their fair share of highway construction and maintenance. Eminently qualified and practical engineers have refuted the Morgan-Eastman report and have shown that the large trucks fall short of what they should pay by more than $2,047 per year. In fact, careful estimates show that in a normal or prewar year, the amount of special highway taxes (including gasoline taxes, license fees, weight and mileage taxes) paid in Kentucky by all commercial motor carriers (common and contract carrier trucks and busses), are less than 10 per cent of the total highway taxes paid in the State. More than 90 per cent of these taxes are paid by the private auto- mobilists and the operators of private trucks of 11% ton and less capacity. h. Proposal That Roads for Heavy Trucks be Selected by Commis missioner Unsound. The situation will not be satisfactorily met by the legislature raising the load limit and then delegating the authority to the Highway Commissioner or others to determine only on what roads the higher limit would be per- mitted. This would be impossible of enforcement in a practical way. It 289 would require excessive supervision and the weighing of truck loads in many instances, all of which would result in a constant wrangle between truck operators and the governing authorities. It would offer opportuni- ties for favoritism, irregularities, and temptation for graft, not only in the use of roads, but in their location. It would also subject the governing authorities to the constant importunities of trucking operators to raise some load limits in some instances and to remove them in others—a situa- tion certain to arise with unnecessary distraction from more important duties. - Above all, however, it could prove hurtful to the best interests of the public and the State. Such a measure would be a complete abdication by the Legislature of its duty to determine the size and weight limitation applicable to Kenucky highways. Such a delegation of authority to the discretion of the Highway Commissioner would still further increase the great political power he now has through the patronage of his office and through his authority to determine the specifications for and what high- ways shall be constructed or reconstructed. The public interest may not be well served by placing such discretionary power, where millions are involved, in the hands of one man. I want to make it plain, however, that all that is said concerning the placing of such important, discretionary power in the hands of one man has no personal application. It is not intended as a reflection on any incumbent in office—it is directed against the establishment of a plan which could lead to such unsatisfacory situations and results. i. Reciprocity. The report also says Kentucky should enact legislation providing full reciprocity with other States on truck license fees. Now, that means simply this: While the resident truck owner in Kentucky, who never operates outside the State, will continue to pay his tag and license fees, the few large operators licensed in other States will operate in Kentucky without paying a license fee in Kentucky for the return courtesy to a few large Kentucky operators who go to other states. This discriminates against local men in favor of the few interstate carriers. If the large trucker hauls from a State where the gas tax is lower than in Kentucky, he will buy his gas in that State and use Kentucky highways free. Again, and more important, the relief of another State’s trucker from Kentucky’s license fees, merely for a reciprocal favor to an interstate Kentucky truck operator, is a direct subsidy or gift to interstate com- mercial truck operators, as they would thus escape paying some of the charges appropriately assessed as license fees for the use of the highways of every State except their home State. Because Kentucky's highways are a direct route between northern and southern commerce, such a policy 290 . of reciprocity would be an exceedingly costly one for Kentucky to adopt. j. Withholding Federal Funds. The Transportation Report, as adopted on page 7, made the following Statement: - - “The Federal law provides for withholding Federal aid from those states which divert road-use revenues in violation of the 1944 Federal Aid Act.” As written, this could easily be misleading. A clearer statement would be as follows: - “The Federal law provides for withholding one-third of the amount of Federal aid to which a State would otherwise be entitled if the State in question uses for highway purposes less than it provided by law for those purposes in 1934.” (Emphasis supplied). k. Federal Aid. It is frequently stated and believed by many that Federal Aid will be withheld from any State that does not adopt highway construction of a type sufficient to carry great axle loads or high total weights, or if limita- tion is made on vehicle length or width. This is not true. The Govern- ment does not require any State, as a condition precedent to receiving road funds, to adopt any particular weight limit or size of vehicle. That is the province of the State. The Government does require, however, that the State having adopted a weight and size limit, it shall build to Govern- ment specification sufficient for that load, all roads to which Federal aid is contributed. It follows, therefore, that any amount allotted to Ken- tucky by the Federal Government, when matched by State funds, can build many more miles of road, either in the main highway system or in secondary roads, if weight limits are low, than if they be increased. An increase in weight limitation means fewer miles of sufficient roads for the ordinary automobilist, the moderate trucker, the farmer and that large number of communities for which the big freight trucker is now pouring out his heart. WATERWAYS An authority of high recognition, has rendered an exhaustive report of several hundred pages on waterways, yet the Planning Commission would dispose of the subject with scarcely no informative treatment and the slightest consideration. No Committee was ever appointed to consider waterways, nor was such a report ever made or presented to the Transportation Committee. The report presented the Planning Commission did not touch the funda– 291 mentals of the preparation and maintenance costs of inland waterways nor to showing that for 1942, for example, almost 95 per cent of the tonnage handled on inland waterways, great lakes excluded, was by private carriers for their own purposes and profit. The savings did not accrue to the general public, but to the private user for whom the ordinary taxpayer provides and maintains the facility without requiring from the private user any compensation for what he uses free. Reliable authority has shown that all costs considered, inland waterway transportation as a whole is not cheap. Even on the Ohio River, the best of the Inland Water projects, it costs more to prepare that river for navigation purposes and annually costs more per mile to maintain it than it would have cost to build a first class railroad and now to maintain it. AVIATION That aviation is perhaps in its infancy and has possibilities almost beyond comprehension is evident to all. It is no longer an infant industry. Its civil status is mainly in the hands of strong companies of great financial resources and ingenuity. It is the “glamour boy” of transpor- tation. From a military standpoint and use its development must be under wise national development. What was militarily sufficient when the war began is now obsolete. Today’s civil and military aviation may be a similar story tomorrow. The four recommendations on Aviation in the Transportation Report begin with the word “Sound.” That would have more appeal if it had been better defined. If it means that the four recommendations should be first studied and proven economically wise and consistent with the Na- tional Transportation policy, they could be more readily accepted. Other- wise, the taxpayer is in for another milking and had better watch out. The public may rest assured that when the prospective business offered is sufficient, the commercial air lines will develop it without the taxpayers’ gratuity. Now, in conclusion— Along with a consideration of transportation development constant thought should be given to the tremendous public debt and the taxes essential to service or reduce it. Taxes are a greater deterrent to the de- velopment of the State or Nation than many other things. Thrift, rather than speculative expenditures, should guide the State’s course with respect to transportation and all other matters. Whether my personal views, (and not as a railroad official) based upon experience and study, should receive any consideration or carry as much weight as those presented to the Planning Commission for adoption by an unidentified author, may be open to question. They should at least 292 raise serious doubts as to whether the subjects received the studied and thorough consideration they deserved. The chapter on “Lanes of Commerce” in the recent book “Kentucky, Designs for Her Future” shows a much more thoughtful and unprejudiced expression on the large subject. The public and those representing it in office can read the entire book with refreshment and profit. Respectfully submitted, J. B. HILL, Member of the Postwar Advisory Planning Commission. 293 COMMISSION PROCEDURE 295 ARTICLES OF ORGANIZATION Governor Simeon S. Willis of Kentucky, by Executive Order has desig- nated a POSTWAR ADVISORY PLANNING COMMISSION composed of representative citizens of the Commonwealth. This Commission, mindful of the fact that we are engaged in a grim and all out war until victory, will undertake to formulate suggested plans and programs for a public policy to afford gainful employment and eco- nomic security to all Kentuckians (including those who are a part of our armed forces as well as those in war work and war services) so as to cushion the economic shock of postwar conversion. This Commission, in its investigations and recommendations relative to social and economic development in PREPARATION FOR PEACE, does not propose to take over the work of responsibilties of any public agency or private enterprise. This Commission is created to promote the general welfare of Ken- tucky by providing constructive policies pertaining to Agriculture, Educa- tion, Finance, Forestry, Industrial Relations, Industrial Resources, Labor, Manufacturing, Mining, Public Welfare, Transportation, and coordination of all governmental, productive, and industrial activity. This Commission is to ascertain the physical and human resources of the State and to formulate plans and make recommendations for full postwar utilization and development of Kentucky’s resources. This Commission is to secure, so far as possible, full information on all possible postwar planning and information prepared by others, such as the Federal Government, various States, Counties, Cities, Private Enterprise, and Individuals, for its use, guidance, and cooperation. THEREFORE, the Postwar Advisory Planning Commission herewith adopts this outline of policy and sets forth its membership, its plan of Organization and its rule of procedure. 1. The name Of this commission is the POSTWAR ADVISORY PLANNING COMMISSION OF KENTUCKY, herein called Com- mission. The Commission’s place for meeting is Frankfort, Ken- tucky, on the second Tuesday of each month, unless otherwise ordered and changed by the Commission. 2. The Commission’s length of tenure will be as defined by the Gov- ernor of Kentucky. 297 The administration and control of the property, funds, and affairs of the Commission shall be vested in the whole Commission by majority vote. Fifty per cent of the membership shall constitute a quorum at any Commission or Committee meetings, except, that when called into executive meetings, a majority of the whole Com- mission shall be required by action. The Postwar Advisory Planning Commission is formed for the following purpose: a. To exercise the power granted under Executive Order. b. To encourage and secure cooperation by the people of Ken- tucky, various governmental agencies, agriculture, education, industry, labor, and commerce in postwar planning. c. To formulate and present to the Governor of Kentucky, the various governmental departments, the governmental agencies, and citizens of Kentucky factual data and recommendations in connection with planning postwar development of the Com- monwealth. d. To acquire, preserve, disseminate, and publicize information relating to the future utilization of resources of Kentucky and the welfare of the Commonwealth. The executive officers shall be a Chairman, Vice Chairman, Secre- tary, and Treasurer. An Executive Committee, consisting of the elected officers of the Commission, together with the chairmen of the Committees, shall be empowered to act for and on behalf of the Commission during intervals when the Commission is not in session. These rules of procedure may be amended from time to time by majority vote of the Commission. The Commission may name committees and appoint committee Chairmen from Commission membership, such committees to gather information and to report their findings and recommenda- tions to the Commission. Meetings of such committees may be conducted as closed hearings except that any Commission mem- ber is privileged to attend any committee meeting. The Commission may authorize and empower all duly elected Com- mittee Chairmen with the right and power to select a suitable Com- mittee membership from Commission members and /or to supple- ment Committee membership by the appointment of Associate Members, such Associate Members having the right to vote only 298 10. 11. on Committee questions. The findings, factual data, and recom- mendations of each committee are to be presented to the Com- mission for action on majority vote. All Commission meetings are to be open to the public. Records shall be kept of all Commission proceedings and copies furnished all members promptly. The Governor of Kentucky and the Attorney General of Kentucky shall be ex-officio members of the Commission. Suggested list of committee titles and grouped allied subject matter for consideration in formulating plans and recommendations in connec- tion with postwar development of the Commonwealth : 1. COMMITTEE ON AGRICULTURE JAMES C. STONE, Chairman Materials and Resources, Soil Conservation, State and County Fairs and Racing, Farm Bureaus and Cooperative Markets. COMMITTEE ON NATURAL RESOURCES TOM WALLACE, Chairman Conservation, Forestry, Game and Fish, Mines, Minerals, Public Health, Public Parks, Water Power, Oil, Natural Gas, Commerce and Markets, Department of Statistics on Resources and Markets, Tourist Travel, Rivers and Streams, State, County and City Zoning. COMMITTEE ON MILITARY AFFAIRS AND RETURNED VETERANS E. E. STOKES, Chairman COMMITTEE ON INDUSTRIAL RELATIONS O. K. PEMBERTON, Chairman Labor, Social Security, Old Age and Unemployment Benefits. COMMITTEE ON EDUCATION DR. H. L. DONOVAN, Chairman Common Schools, High Schools, Colleges, Universities, Private Schools, Textbooks, Federal and State Aid. COMMITTEE ON INDUSTRIAL PLANTS AND OPPORTUNI- TIES JAMES B. O’REAR, Chairman Survey Existing Industrial Plants, Conversion War Plants, Indus- trial Planning, Resources, Opportunities, Raw Materials, Markets and Labor. 299 10. 11. 12. COMMITTEE ON TRANSPORTATION PAUL G. BLAZER, Chairman Aeronautics, Motor Transportation (Passenger and Freight), Rail- roads, Waterways, Pipe Lines, Electric Transmission Lines, Termi- nals, Rate Structure. COMMITTEE ON PUBLIC RELATIONS AND PUBLICITY CARL B. WACHS, Chairman Radio, Newspapers, Magazines, Advertising, News Articles, Public Addresses. COMMITTEE ON FINANCE GEORGE E. TOMLINSON, Chairman Public Debt, Taxation, Federal Grants. COMMITTEE ON ORGANIC LAWS AND LEGISLATION THOMAS GRAHAM, Chairman Constitutional Law, Acts of General Assembly, Rules and Regula- tions of Departments, Banking, Insurance, and Security Acts and Laws. COMMITTEE ON COORDINATION OF FEDERAL, STATE, COUNTY AND CITY GOVERNMENTAL ACTIVITIES J. S. WATKINS, Chairman Postwar Planning, Public Works and Housing, Research and Co- Ordination of Kindred Activities. COMMITTEE ON WAYS AND MEANS H. F. WILLKIE, Chairman Rules of Procedure and Finances of the Commission. 300 REPORT OF THE PUBLIC RELATIONS AND PUBLICITY COMMITTEE Interim Report Submitted on January 9, 1945 Final Report Submitted on February 13, 1945 Final Report Accepted on February 13, 1945 Commissioners present on February 13, 1945: ATWOOD, R. B. OFFUTT, W. P. BLAZER, P. G. O’REAR, J. B. BROWNING, J. N. PEMBERTON, O. K. BURLEW, ROY STONE, J. C. CAIN, H. W. TOMLINSON, G. E. DONOVAN, H. L. WACHS, C. B. EVANS, E. J. WALLACE, TOM GRAHAM, THOMAS WATKINS, J. S. GRUVER, R. S. WEBB, FREEMAN HARRISON, W. B. WILLIS, GOV. SIMEON MARR, J. W. WILLKIE, H. F. MUTCHLER, FRED REPORT OF THE COMMITTEE ON PUBLIC RELATIONS AND PUBLICITY The duties of this Committee will be to interpret the program of the Commission, and acquaint the citizens of Kentucky with its objectives through all available media. To maintain working relationships with all other similar agencies, government and private, for the purpose of ex- changing information and assistance, harmonizing proposed plans, policies and programs, and Securing proper timing in their execution. In addition to selling the Commission, its activities and final program to the people of Kentucky, it could also be the duty of this Committee to then sell KENTUCKY—its advantages and resources—to the entire United States. The Committee will need the full coperation of the Commission to enable it to publicize all findings and recommendations sufficiently in ad- vance of the time at which legislative or other action on them will be re- quired, in order to permit the development of an informed public opinion on all issues involved. The Committee recommends that all meetings of the Commission shall be open to the public. That any idea of the commonly called “gag rule” be dispelled, but that the members of the Commission mutually agree that any release of material, either oral or written, be released under the name of the individual unless it has the sanction of the Commission, or an indi- vidual or committee of the Commission authorized to approve it. The Committee realizes that for some little time there will be no publicity other than the current activities of the Commission and organiza- tion and early procedure of the Committees. However, as information accumulates, Surveys are completed, Solutions to problems recommended, and execution of the programs begin, there will be an enormous amount of activity to carry on the work of the Committee. It is recommended that the Commission consider the employment of a Public Relations Director, with adequate staff, to carry on this work. This Director should be the best obtainable and the appointment should in no way be political. The Director would attend all meetings of the Commission and the Various Committees. He would be alert to the progress of the various reports, and would prepare addresses, radio talks, news items, magazine articles and other releases concerning them. In addition, church groups, farm groups, labor organizations, civic clubs, women’s clubs, art and musical Societies, in fact, every organized group would be listed for active cooperation in carrying out the program. It is your Committee’s idea that $10,000 to $12,000 would be necessary to properly conduct such a public relation and publicity activity, and it 302 is our sincere reaction that this is the only proper method of handling the job. The alternative—newspaper articles covering action at Commission meetings, releases prepared by the various Committees, publication and distribution of the final report of the Commission, and cooperation with other groups and promotion of the program in the best way possible. The Committee wishes to include in this report the following offer of cooperation of the Kentucky Press Association through its Secretary, Mr. Victor Portmann. If prepared copies of releases are delivered to the office of the Secretary of the Kentucky Press Association, that office will include such releases to every newspaper in the State of Kentucky with its regular confidential bulletin. The release coming through the Press Association office will naturally carry the weight of influence of that office for preferred publicity. The success of the Public Relations and Publicity program of the Post- war Advisory Planning Commission will depend entirely on the funds provided and the manpower available to carry on its work, as well as the extent of cooperation rendered by the various committees. No similar program, private or governmental, was ever a success without the above requisites and Kentucky will be no exception—in fact it may be one of the reasons why we are, where we are, doing what we are. The Committee will sincerely and gratefully receive any suggestions, criticisms and directions the Commission may wish to make and assures you that they will receive serious consideration COMMITTEE ON PUBLIC RELATIONS AND PUBLICITY CARL B. WACHS, Chairman, Lexington LEE COULSON, Louisville WILBUR CRAWFORD, Louisville JAMES C. FETZER, Frankfort LAWRENCE HAGER, Owensboro WILLIAM B. HARRISON, Louisville GEORGE JOPLIN, JR., Frankfort HENRY MCCLASKEY, Louisville JAMES T. NORRIS, Ashland CARL SAUNDERS, Covington WILLIAM G. SIMPSON, Louisville JACK R. STUETZ, Louisville 303 REPORT OF THE WAYS AND MEANS COMMITTEE Interim Report Submitted on January 9, 1945 Final Report Submitted on February 13, 1945 Final Report Accepted on February 13, 1945 Commissioners present on February 13, 1945: ATWOOD, R. B. BLAZER, P. G. BROWNING, J. N BURLEW, ROY CAIN, H. W. DONOVAN, H. L. EVANS, E. J. GRAHAM, THOMAS GRUVER, R. S. HARRISON, W. B. MARR, J. W. MUTCHLER, FRED OFFUTT, W. P. O’REAR, J. B. PEMBERTON, O. K. STONE, J. C. TOMLINSON, G. E. WACHS, C. B. WALLACE, TOM WATKINS, J. S. WEBB, FREEMAN WILLIS, GOV. SIMEON WILLKIE, H. F. REPORT OF THE COMMITTEE ON WAYS AND MEANS Your Committee on Ways and Means submits its findings to the Post- war Advisory Planning Commission for approval: The principal duties of this Committee are concerned with the financial operations of the Commission, the setting up of an estimated budget, the raising of money for preliminary needs for the publishing of the final Report to the Governor, and direction of disbursement of these monies. Financial Policy It is recommended that a conservative financial policy be followed by the Commission. That the Commission should operate through effort— not hired effort, but the enthusiastic and diverse effort of citizen groups— is essential. Other agencies are conducting surveys similar to those of the Commission through retained experts, and since these surveys have been offered to the Commission, it would be manifestly a duplication for us to use the same sources. Moreover, the validity of our findings is guaran- teed by the cooperation of large and effective groups, nor can it be ques- tioned due to choice of experts or funds disbursed to them. Financial Procedure The Commission seeks no state funds or general solicitation at this time. A petty cash account contributed from the membership of the Com- mission has been placed in the hands of the Treasurer and shall be dis- bursed by him as needed by requisition approved by this Committee or by the Secretary and the Treasurer jointly. At the present time, the $500.00 believed necessary for this account has been contributed by indi- vidual members who were limited to $100.00 each. An accounting of the financial status of the Commission shall be given at each scheduled Commission meeting by the Treasurer. Funds for the publication and distribution of the Final Report of the Commission, together with the operations of the Publicity Committee, are expected to constitute the major financial requirements estimated at $25,- 000. At the appropriate time the Ways and Means Committee will request each member to undertake a canvass to raise one thousand dollars for this fund. Thus, no undue burden will devolve upon any member and no state appropriation need be sought. As a parallel for this financial policy and procedure, it is interesting to note that the National Patent Planning Commission, appointed by the President of the United States in December, 1941, carried on its entire investigation and report without recourse to public funds. 306 COMMITTEE ON WAYS AND MEANS H. FREDERICK WILLKIE, Chairman, Louisville REV. W. P. OFFUTT, Louisville JAMES B. O’REAR, Frankfort GEORGE E. TOMLINSON, Winchester CARL B. WACHS, Lexington J. R. WEYLER, Louisville 307 REPORT OF THE CHAIRMAN H. F. WILLKIE Accepted on February 13, 1945 REPORT OF THE CHAIRMAN The operations of the Postwar Advisory Planning Commission during the past three months require the issuance of a Chairman's Report to resolve the organizational problems which have become evident. The following report is presented for consideration by the Commission as a whole because certain amendments to the Rules of Organization and Procedure are necessary to the functioning of the Chairman's office as outlined hereinafter. These rules provide for an Executive Committee to act on behalf of the entire Commission when the latter is not in Session. This Executive Committee, as constituted, would actually comprise a Com- mission quorum. Since it has been difficult to secure adequate attendance at the scheduled meetings of the Commission itself, it is evident that a hardship would be worked on the members required to attend Executive Committee meetings which would be more frequent. If the Commission sees fit to empower the Chairman to act for it and to dispense with the Executive Committee, it will limit the Ways and Means Committee solely to financial activities. It is felt that this, too, would be a desirable streamlining since, in any case, the Chairman may not initiate responsible action without express approval of the Commission. These decisions have been reached after consideration of the Com- missioners’ comment on the report presented by the Ways and Means Committee on January 9, at which time it was recommended by those present that the report be revised into two independent reports—one by the Chairman and one by the Ways and Means Committee. I. The functions of the Chairman are conceived as follows: A. Policies and Procedures of the Commission as delegated broadly by the Governor's Executive Order and in detail by specific vote of the members of the Commission. B. Correlation of Public Assistance and Support through miscellaneous contacts and correspondence directed to the Chairman by interested citizens, agencies, and bureaus. C. Supervision and Preparation of the final report of the Commission D. Distribution and Promotion of the Final Report with the Commit- tee on Public Relations and Publicity and through cooperating citi- Zen groupS. 309 E. Continuing Functions of the Commission after distribution of the Final Report and as directed by vote of the members of the Com- mission in regular session. II. Decisions and Operations of the Chairman's Office: The functions of the Chairman as set forth above make necessary an early report in order that the entire Commission may proceed with its work in an orderly, approved manner. However, it is appreciated that un- foreseen changes and expanded functions may be in order as the work of the Commission develops through its Committee actions. Your Chairman conceives his office as one of assistance and service to the other members of the Commission and as one of liaison between the Commission and the citizens of the Commonwealth as well as between the Commission and similar bodies in other states. A. Policies and Procedures of the Commission Maintaining complete freedom from political or sectarian associa- tions has been the first concern of the Commission. The validity of the final report and its acceptance by the citizens at large demand the avoidance of controversial affiliations. At the same time, the Commission must reflect the needs of all representative groups in the state and seeks their cooperation in fact-finding and in eventual support. Affiliation by members of the Commission with such groups as private citizens is desirable, but as representatives of the Commission only by express authority of the Commission members. Public addresses by members in the name of the Commission are to be cleared through the Secretary for prior approval, and copies of the address should be filed with him for referral to the Com- mission. It is the established policy of the Commission to produce and then inform. Consequently, only conservative publicity releases shall be made until the Commission has approved the Committee reports, after which time every effort will be made to bring these reports to the active consideration of the citizens of the Common- wealth through effective channels. All publicity is to clear through the Secretary and Chairman of the Public Relations and Publicity Committee prior to release. Procedure of meetings: An agenda for each meeting, initiated by the Chairman of the Commission, shall be forwarded five days in advance of the meeting date by the Secretary to each Commis- Sion member for his considered study of the business and reports at hand. Three semi-final Committee reports are to come under discussion at each meeting, and these are to be submitted in ad- 310 vance on the definite calendar dates set forth in the minutes of December 5, 1944. Your Chairman strongly recommends that the final report of the Commission be ready for distribution by July, 1945 in order that full effect of the recommendations may be taken advantage of by the Legislature and the electorate at that time. Correlation of Public Assistance and Support It is believed that the success of the Commission in its fact- finding, disseminating, and action-provoking interests will be in direct proportion to the quality and quantity of assistance sought by it in its operations. Consequently, your Chairman is making every effort to muster and evaluate all effectual public aid that may prove valuable to the several Committees at this time. The names of citizens and organizations who have volunteered aid and in- formation have been communicated to the Secretary for referral to Committee Chairmen. To expedite this activity the Commis- sion has referred on its Chairman discretionary authority to seek out and establish such affiliations as may work to the interests and advantage of the Commission. Among such affiliations already effected are: The Kentucky Development Association, The Committee for Kentucky, The Kentucky Society for Professional Engineers, The Veterans’ Administration, The Louisville Area Veterans’ Clearing House Association, The Louisville Board of Trade, The Bureaus and Departments of the Government of Common- wealth of Kentucky, The Industrial Sanitation Research Foundation, The Aero Club of Kentucky, and a number of private citizens. In addition, the several Committee Chairmen have called to their assistance similar groups and individuals for the furtherance of their reports. We have secured the published plans of a number of states. These have originated from many different types of planning or- ganizations, but each purports to represent the postwar program for its state. We are distributing to each member of the Com- mission one or more of these reports for study and discussion at Subsequent meetings. In this way, each member will gain a broad perspective of postwar planning and may benefit in particular from the ideas and methods adopted elsewhere for the specific problems of his Committee. 311 Supervision and Preparation of the Final Report In his steering capacity, the Chairman, together with the Secre- tary, will undertake the editing and preparation of the final report for the approval of the Commission. The unification of style, the Chairman’s Preface, choice of format, publication details, etc., will be determined for consideration by the members. At this time, the volume of circulation and cost of production and distribution will be estimated. Distribution and Promotion of the Final Report As an outgrowth of our activities under “B,” we shall develop a large potential of public acceptance and distribution for the effective presentation of the report to the Governor, the Legislature, and the citizens of the Commonwealth. Again, the majority of the effort is to be voluntary. A Speakers’ Bureau is to be organized immediately to acquaint the public in every county with the needs, work, and recommendations of the Commission. This bureau, under the Publicity Chairman, will be given plans for the organiza- tion of community postwar groups which can begin at once to render aid by studying and reporting on local problems. This localized activity will prepare communities for an intelligent ap- praisal of the Commission’s recommendations so that ready adap- tion to local needs may be effected without delay. It is important to realize that the Governor, this Commission, and even the State Legislature are in no position to make a pro- gram work; only the citizens in their communities and county Organizations can do that. Our report will be to them an inspira– tion and a guide, but it cannot by itself provide the necessary follow-up. Continuing Functions of the Commission The most important function of the Commission is to see that its recommendations are translated into an effective program. Many valuable and extensive reports of a planning nature have died in this and other states for lack of follow-through. To avoid this untimely circumstance in our own case, we must make our in- fluence felt widely and strongly. Your Chairman will endeavor to represent the Spirit of the Commission and provide the necessary framework and facilities for the continuing functions of the Com- mission until its job is complete or adequately handled by a perma- ment state research department under competent direction. The membership of the Commission is such that it is in an unparalleled position to measure the accomplishment of the program in its 312 formative and mature stages. Your Chairman urges a sustained and wholehearted interest on the part of every member in the critical meetings to come. Each report will bear the closest scrutiny and constructive criticism. Decisions must be clear-cut and immediate. Our time is short, our job large; our audience is hopeful but reservedly critical. Already we have heard predic- tions of failure, of petering-out! Against this, your Chairman seeks the utmost resolution and perseverance of the membership of the Commission. 313 ORGANIZATION CHART HIS EXCELLENCY, GOVERNOR SIMEON WILLIS | POSTWAR ADVISORY PLANNING COMMISSION OF KENTUCKY Governor Simeon Willis, Ex-Officio, Frankfort Attorney General Eldon S. Dummit, Ex-Officio, Frankfort H. Frederick Willkie, Chairman, Louisville Paul G. Blazer, Vice-Chairman, Ashland Carl B. Wachs, Secretary, Lexington George E. Tomlinson, Treasurer, Winchester (Resigned) Dr. Rufus B. Atwood, Frankfort John N. Browning, Maysville Roy Burlew, Owensboro Harold W. Cain, Frankfort Dr. H. T. Donovan, Lexington E. J. Evans, Paintsville Thomas Graham, Louisville Robert S. Gruver, Ashland William B. Harrison, Louisville Louis Igert, Paducah ( Resigned) J. B. Hill, Louisville J. E. Johnson, Sr., Lexington John Wesley Marr, Lexington Dr. Fred Mutchler, Bowling Green (Resigned) Rev. W. P. Offutt, Louisville James B. O'Rear, Frankfort O. K. Pemberton, Louisville John E. Ramsey, Hopkinsville Fred L. Seale, Middlesboro E. E. Stokes, Covington James C. Stone, Lexington TOm Wallace, Louisville J. Stephen Watkins, Frankfort Freeman Webb, Olive Hill J. R. Weyler, Louisville 3 MILITARY AFFAIRS AND RETURNED VETERANS E. E. Stokes, Chairman, COvington W. D. Anderson, Covington 4 Lt. Col. Arthur J. Daly, Cincinnati T. X. Dillon, Covington C. W. Due, Covington Harry H. Jeffries, Louisville Brig. Gen. G. H. May, Frankfort Herbert Michaels, Cincinnati, Ohio Don W. Nichol, Covington O. K. Pemberton, Louisville P. G. Vondersmith, Covington 5. J. R. Weyler, Louisville AGRICULTURE James C. Stone, Chariman, Lexington John H. Browning, Maysville Thomas P. Cooper, Lexington John E. Brown, Shelbyville Dr. Paul J. Kolachov, Louisville John W. Marr, Lexington Dr. Fred Mutchler, Bowling Green EDUCATION Dr. H. L. Donovan, Chairman, Lexington Dr. R. B. Atwood, Frankfort H. P. Fowley, Louisville Dr. Francis S. Hutchins, Berea Dr. L. E. Meece, Lexington Roland Roberts, Nicholasville W. T. Rowland, Lexington Dr. W. S. Taylor, Lexington Dr. W. H. Vaughan, Morehead Carl B. Wachs, Lexington John Fred Williams, Frankfort INDUSTRIAL RELATIONS O. K. Pemberton, Chairman, Louisville Miss Ethel B. DuPont, Louisville Fred FOSS, Louisville Rev. W. P. Offutt, Louisville Edward H. Weyler, Louisville J. R. Weyler, Louisville Robert Woerner, Louisville INDUSTRIAL PLANT'S AND OPPORTUNITIES James B. O’Rear, Chairman, Frankfort Dana G. Card, Lexington Dr. Lyle R. Dawson, Lexington Robert S. Gruver, Ashland William B. Harrison, Louisville Dr. Marshall D. Ketchum, Lexington Dr. James W. Martin, Lexington Dr. Arthur C. McFarlan, Lexington Robert Montgomery, Louisville Dr. Edgar Z. Palmer, Lexington O. K. Pemberton, Louisville IDr. H. Bruce Price, Lexington Washington Reed, Lexington Dr. M. R. Sullivan, Lexington Dr. Daniel V. Terrell, Lexington J. V. B. Wells, Lexington Dr Edward Wiest, Lexington H. F. Willkie, Louisville 314 COORDINATION OF FEDERAL, STATE, COUNTY, AND CITY GOVERNMENTAL ACTIVITIES J. Stephen Watkins, Chairman, Frankfort H. St. G. T. Carmichael, Secretary and Editor, Frankfort Sub-Committee on Postwar Planning Carl B. Wachs, Chairman, Lexington Edgar Arnold, Madisonville Harold B. Browning, Frankfort H. St. G. T. Carmichael, Frankfort Russell Dyche, Frankfort William B. Harrison, Louisville Paul W. Jones, Madisonville Charles H. Kuhn, Fort Thomas Clarence Miller, Frankfort Eugene Stuart, Louisville Dr. Kenneth P. Vinsel, Louisville Claude Winslow, Mayfield H. A. Wortham, Louisville Gordie Young, Frankfort Sub-COmºmittee Om Public WOrk's W. O. Snyder, Chairman, Frankfort William S. BransOn, Madisonville J. P. Brownstead, Ashland T. H. Cutler, Frankfort 8. Frank Hill, Louisville E. A. Marye, Louisville E. C. McGraw, Frankfort 9. J. B. Morlidge, Newport Paul MOrton, Louisville Lt. Col. A. H. Near, Louisville Sub-Committee on Housing Hugh Meriwether, Chairman, Lexington Dr. Rufus B. Atwood, Frankfort Laurie. J. Blakely, Lexington Jack B. Bryan, Lexington N. H. DOSker, Louisville Harry W. Schacter, Louisville O. P. Ward, Louisville John F. Wilson, Lexington Sub-COm/mittee O’n Research, and Coordination of Kindred Activities Dr. D. V. Terrell, Chairman, Lexington Dr. C. S. Crouse, Lexington Howard J. Douglass, Middlesboro Rev. W. P. Offutt, Louisville Edwin J. Paxton, Paducah. E. H. Straus, Lexington Dr. Ford L. Wilkinson, Jr., Louisville H. Comer Wolf, Irvine Sub-Committee on State, County and City Zoming and Planning Carl Berg, Chairman, LOuisville J. R. Kinsella, Newport D. Collins Lee, Covington H. W. LOChiner, Chicago, Illinois M. J. McGruder, Lexington Sub-Committee Om Public Health. Dr. Carl M. Gambill, Chairman, Louisville Lawrence H. Ashmore, MadisonVille Judge Odis W. Bertelsman, Newport Dr. Charles D. Cawood, Lexington Dr. J. S. Chambers, Lexington Charles C. Cook, London Charles M. Davidson, Louisville Dr. Elmer E. Gabbard, Buckhorn Miss Florence I. Gibson, Berea, A. E. Hardgrove, Louisville E. M. Josey, Frankfort J. O. Matlick, Louisville Dr. O. O. Miller, Louisville Mrs. Bert R. Smith, Bowling Green Mohe H. Solworth, Louisville Dr. Russell I. Todd, Richmond NATURAL RESOURCES Tom Wallace, Chairman, LOuisville James B. Hill, LOuisville Dr. Paul J. Rolach OV, Louisville Harold Moser, LOuisville Fred L. Seale, Middlesboro Eugene Stuart, Louisville Carl B. Wachs, Lexington ORGANIC LAWS AND LEGISLATION Thomas Graham, Chairman, Louisville TRANSPORTATION Paul G. Blazer, Chairman, Ashland E. J. Buhner, LOuisville Herbert L. Clay, LOuisville Guy A. Huguelet, Lexington J. H. McChord, Louisville Wear Mann, Lexington John Wesley Marr, Lexington Lt. Col. A. H. Near, Louisville James B. O’Rear, Frankfort James C. Stone, Lexington Eugene Stuart, Louisville J. S. Watkins, Frankfort Rail Sub-COTm mittee J. H. McChord, Chairman, Louisville E. P. Humphrey, LOuisville George J. Lewis, Lexington Roy M. Shelbourne, Paducah G. B. Wall, Jr., Huntington, W. Va. Thomas J. WOOd, LOuisville Highway Sub-Com/mittee Eugene Stuart, Chairman, Louisville Truck, Division. E. J. Buhner, Chairman, Louisville Ray Gustafson, Louisville S. C. Harlan, Glasgow W. W. Henderson, Hopkinsville E. J. Lucas, Louisville Harold H. Neel, Louisville E. J. O’Brien, Jr., Louisville 315 R. H. Proctor, Owenton Robert H. Raibert, LOuisville Doc Rhodes, Lexington George S. Sullivan, Louisville W. E. Wells, Carrollton 10. Richard A. Whitty, Louisville - Bus Division Guy A. Hughelet, Chairman, Lexington Private Car Owner’s Division, Wear Mann, Chairman, Lexington Len B. Shouse, Lexington Thomas R. Underwood, Lexington Special Com mittee on Coordination of Reports H. Frederick Willkie, Chairman, LOuisville Paul G. Blazer, Ashland James C. Stone, Lexington Aviation Sub-Com mittee Lt. Col. A. H. Near, Chairman, LOuisville Dr. L. K. Causey, Bowling Green Richard Leroy, Paducah. Dick Powell, Lexington 11. Dr. W. H. Stark, Louisville J. E. Stuart, Russellville P. G. Wondersmith, Covington PUBLIC RELATIONS AND PUBLICITY Carl B. Wachs, Chairman, Lexington Lee Coulson, Louisville Wilbur Crawford, Louisville James C. Fetzer, Frankfort Lawrence Hager, Owensboro William B. Harrison, Louisville George Joplin, Jr., Frankfort Henry McClaskey, Louisville James T. Norris, Ashland Carl Saunders, Covington William G. Simpson, Louisville Jack R. Stuetz, Louisville WAYS AND MEANS H. Frederick Willkie, Chairman Louisville Rev. W. P. Offutt, Louisville James B. O’Rear, Frankfort George E. Tomlinson, Winchester Carl B. Wachs, Lexington J. R. Weyler, Louisville 316 ACKNOWLEDGMENTS The Postwar Advisory Planning Commission of Kentucky gratefully acknowledges the assistance and cooperation it has received from many citizens of the Commonwealth other than those affiliated directly with the various Committees. This group includes the following persons: Mrs. Nancy Bello, Louisville Joe Betts, St. Matthews H. C. Blankmeyer, Louisville Wallace Cleveland, Louisville Edmond J. Coleman, Lexington Howard Coons, Louisville Warren Davis, Ashland G. Dewey Detwiler, Louisville John T. Eiker, Louisville Miss Virginia Engle, Frankfort H. W. Farmer, Louisville Martin Finn, Louisville W. H. Fraysure, Louisville John M. Frier, Louisville William R. Gentry, Bardstown Miss Blanche Henry, Louisville Frank Holzapfel, Louisville Mrs. Beulah Jones, Frankfort Paul Jones, Louisville E. M. Josey, Louisville Harry Moss, Louisville Miss Lena B. Nofoier, Frankfort Miss Alice Parker, Louisville Joseph L. Rahm, Louisville Col. Frank D. Rash, Louisville Harry W. Schacter, Louisville Dr. Alfred J. Strohmaier, Louisville Murray Taylor, Louisville Larry Vaughn, Owensboro Ruey M. Wade, Louisville Charles Walter, Louisville 317 In addition to the many individual contributions to the Report of the Commission, invaluable assistance has been given by many governmental agencies, business and industrial organizations, and other public and private enterprise. These groups include: Aero Club of Kentucky Aeronautic Commission Automobile Clubs of Lexington and Louisville Chambers of Commerce Secretaries of Kentucky Committee for Economic Development Committee for Kentucky Darnell General Hospital Junior Chamber of Commerce of Kentucky Kentucky Bankers Association Kentucky Bar Association Kentucky Development Association Kentucky State Fair Board Kentucky Society of Professional Engineers Louisville and Jefferson County Air Board Louisville Area Development Association Louisville Area Veterans Clearing House Association Louisville Board of Trade Selective Service System Smaller War Plants Corporation State Administrative Departments Conservation Education Health Highways Industrial Relations Library and Archives Mines and Minerals United States Geological Survey University of Kentucky Veterans’ Administration War Manpower Commission 3.18 To renew ſhe tharge, book musi be brought ſo the desk. |NIVERSITY OF MICHIGAN |||||| 90 „ºa. ſaes） ·····| __|·, •° .'.·· Ķ§§§~§§ſae|×、، å· * *•·¿Hººae∞¿?！ §§¿|׺aeae§§§§§§ ！8 effrº --~~~~ :*3… ！！：*… »！¿§§§）.§ ：§§§！！！！！！ §. … *∞ √° √- * -：sŕºº »,• º：∞.** -ae .~~§ （3） &. . . .* * …….，ae ^«… ：（ .|×. … *،· №rfºs • ！！ ！！ ！！ ！！！！!！ --★∞（~*~****************~*~~~~ ~~~~--~--~~~~ ºs.……. ;-） ！ --…sy，…sa.3. „…„.atk-ºs- e ） --- »• • • • • • • • ... &..…$n）, wae, ， ， ！rº.：-（ -Œ errasº-~~~~aº-y，--*： *） £~ © º，·* * . • še • ~ ~ ~º ~º ~º： …»… • • • • • • • • •ſą ：º aº s sºg; s. w • se yº. . .-..-... . .