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                    <text>Dec rob r 2, 1961

Dr. Daryl Chase , President
Utah state University
Campus
D

r Presi ent Ch. s :

ttached are fifte
copi s of our printed list tement on Road Construction ~nd Resource Use". We suggest
th..l.t copies be for rd d with your card to the Utah
congressional del gation--Senators Moss and Bennett, nd
epresentatives King and Pet rson. Also to S cr tary
' of Commerc Luther Hodg s , Secretary of griculture
Oe ville Freeman, and Secretary of the Interior stewart
Ud 11.
I
m today transmitting copies to bure u chiefs
within these dgencies.

Sincerely yours,

J. Whitney Floyd, Dean
College of For st , Range ,
and Wildlife Management
JHB:ep
Attachm nts-lS

�</text>
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                <text>Correspondence from J. Whitney Floyd to Daryl Chase, December 2, 1961</text>
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                <text>Correspondence from J. Whitney Floyd to Daryl Chase, December 2, 1961 discussing the Statement on Road Construction and Resouce Use and its dissemination to the Utah congressional delegation.</text>
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                <text> Roadside improvement--Utah--Logan Canyon</text>
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                <text> Logan Canyon (Utah)</text>
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                    <text>(

WHAT SHOULD WE BUY WITH THE HIGHWAY USER ' S DOLLAR?

What should we buy with the highway user ' s dollar ?

u***

road buil d i ng

is an important activity, having far-reaching impacts upon people a nd resourc e
use."l

This is a statement which I personally endorse , and which I am s ure

expresses the opinion of the citizens of this State, not only as ev id e nc ed by
the creation of a State Road Commission in 1909, but also as evidenc ed by a c ts
of the Territorial Government in highway matters practically from the instant
of c olon ization by our pioneers.

It is also an opinion, which I am

sure ~

is

not unique to this State , nor is it recent in origin, as evidenced by national
legislation in the highway field, the most notable being the creation of the
Bureau of Public Roads and the continued interest of our elected

representa~

tives in good highways by the continued enactment of : Federal-aid to highways
1egis1ation o
I can concur with the statement that the College of Forest, Range and
Wildlife Management has a keen interest and responsibility

i~

the philosophy

of land and resource use, but I cannot and will not accept the inference in
your Committee's report that the Utah State Road Commission, and its Highway
. Department, has no interest except in the engineering concepts of highway
design and construction, and has made no

effor~

to determine economy and

social needs in the location and design of our State highways.
last five years, we have

spent ' ~lmost

thre~

million dollars

During t he

($2,821 ~ 910 . 00 )

through our Research Department, in-. cooperation with the U. S . Bureau of Public
Roads, and have sought the assistance of several consulting engi neering firms
of national reputation, as well as the University of Utah and the Utah St a t e

1Dary1 Chase , President , Utah State University

�(

- 2 -

University, in studying social and economic needs for the improvement to
existing highways and the location of new highways.
direct expenditures of the State Highway Department.

This represents only
It does not include the

cost to national organizations, such as the National Academy of Sciences ,
National Research Council, Highway Research Board, Automotive Safety Foundation,
American Association of State Highway Officials, and the Bureau of Public
for special studies on the national level.

Roads ~

These studies, as well as numerous

studies by other states and private engineering groups, findings of which where
applicable~

are being used as guides in our own highway policies.

It must be remembered that the State Road Commission and its operational
arm, the State Highway· Department, were created by acts of the State

~~gislature

and charged with certain responsibilities relating to highway matters.

As

such, its primary responsibility is to all of the citizens of this State and
is not limited to the small interests of special groups.
that the Commission has a

clos~d

This is not to infer

mind to the opinions and recommendations of

any economic, social, or geographical representation; but, in the final
analysis, it must be

re ,~ognized

that the Commission action is a matter of

judgement bas,e d .on the studies which have been made, in which such suggestions
must be evalu?ted in terms of maximizing road-user benefits and minimizing
road-user cost.

That such judgement is not arbitrary or capricious is borne

out by the amount 'of money spent on research to develop facts upon which
sensible decisions may be made for the orderly development of roads
and highways in the State of Utah.
on the type of generalities as

3

streets~

These studies are factual and not based

e~emplified

in the statement that

"')h'd c

the

new Federal Highway program alone requires 30 acres per mile of highwayo
will consume the equivalent of 11,000 Utah farms of 160 acres each."

It

It is

a matter of simple arithmetic, assuming that each mile of the Federal-aid

�- 3 -

Interstate System did take out of production 30 acres of land , that this
would be the equivalent of only 175 of Utah farms of 160 acres each, not
11,000 farms.

As a matter of fact, over one-third (328.4 miles) of this

highway is being built on the existing location.

Also, as a matter of fact,

many miles of this highway being built ' on the 605.2 miles of new loc a t ion are
being constructed on land which is not productive farm land or even grazing
land-~at

least I haven't seen much vegetation on the Salt Flats between Wendover

and Knolls.

The 1959 farm census indicates a total of 16,543 crop land units

of all sizes in the 29 Utah
routes.

Counties~

- There are 16 counties with interstate

The crop land units of all classes for these counties account for

10 , 637 units of the State total of

1,.2J~ , ?19 /w~
I

.

It, therefore , appears tha t

a deliberate attempt to mislead has been made in the Committee's report.

Less

than 10 per cent of the Interstate mileage on new location affects in any
degree productive farm acreage.
acres per

mi1e~

the t otal

a~reage

Assuming the 10 per cent to t .a 1 did c onsume 30
affected would be only

1 ~ 800

acres.

Using

the Committee's figure of 160 acres per unit, this would resul t in only 11.25
units rather than the

11 ~ 000 ~tated. .

If I wanted to generalize instead of

waiting for the factual da t a which will be developed from the American Fork
Impact Study being researched by There1 R.

~lack,

Department of Sociol ogy, and

Vernon Lo Israe1sen , Department of Economics, of the Utah St a t e

University ~

which I am confident will substantiate the generality , I could say that the
resulting economic benefits to the farm units

adjacen ~

to the Intersta t e

System, by providing greater utility from the improved transportation fa c ili t y,
will far outweigh any social-economic loss occasioned by tJe withd r awal of
such a meager productive acreage.

The me t hod by which the bes t of several

possible locations for highway improvements is determined , the Benefit-Cost
Ratio, assures that the minimum in land value compatab1e with highway se r vice

�(

- 4 and construction costs will be selected for final route location.
By inference the Highway Department is blamed in your Committee's report
for the roadside or fringe type of development that has, in some instances
in the past, followed the construction of a highway, especially on new
locations.

This is not a new problem to the Road

was recognized a long time ago.

Commission~

and its existence

It was a problem that was also recognized by

the State Legislature with the enactment of the Limited Access
permits the Highway Department to limit or control access.

Law~

which

For obvious economic

reasons such action has usually been limited to construction on new location.
The Highway Department never has had authority to zone or restrict land-use
on private land.

Actually, adequate legislation is already provided for local

government sqch as the cities and

count~es~

to provide such control by zoning

ordinances.
Such a statement as "These frequently become the sites for

junkyards~

shoddy developments, and other land~wasting areas" can only be refuted in
general, becc;tuse "frequen t ly" it is hardly measurabo
le
mile, one per 10

miles~

one per 100

~iles? :' O~~

0

Does !it mean one per

unfamiliar with Utah's high-

ways would receive the impression that our more than 6,000 miles of State
highways

~re

lined from State bqrder to State border with these conditions.

This is h~rdly ' a fact~ but even , if it were, it is beyond the legal ability
of the State Highway Department to control.
I agree that "BasicallY3 highways serve a strictly utilitarian
their function is to get people o nd materials
a

fr~m

one , place to

purpose-~

another~'t'~('~'(',"

and I adm:i t, in fact, I am proud of the progress : that has been made in this
State in providing highways to serve this basic need, but I believe the
responsibility of the Road Commission is first to provide for this basic need
and then to consider aesthetic values in terms of cost.

In the past it has

�- 5 -

been proven that Utah has not had sufficient funds to even adequately supply
these basic needs, let alone provide for aesthetic values with construction
dollars.

However, I would like to point out that when the funds are available,

as in the case of the Interstate System , that due consideration has been given
to landscaping and rest

areas~

and selection of highway loca ti on where extra

cost would not be excessive, that would preserve the natural beauty as far as
possible--for example, the ' Interstate location through Silver Creek Canyon
where the design provides for minimizing the cuts and fills by letting the
creek itself be the traffic barrier rather than a four - lane shelf with an
artificial median.
The accusation has been made , and I quote, "Rarely has the impact upon
I

land-use and human population distributions received adequate attention."

Of

courses I don ! t know just what measure this Committee had in mind when they
said "Adequate".

Surely , t hey must be aware that the Utah Sta t e University

had been employed to make an impact study on the effect of the Interstate
Highway in American Fork and that this study was designed to serve as a model
to mea sure such impact on the 19 urban areas of similar popula ti on size.
Perhaps they can be excused , because the Road Commission does not seek publicity
through

sensa t ionalism~

for not knowing the Road Commission has spent about a

half million dollars, in cooperation with the local planning agencies of Salt
Lake City and County, Davis County, and Bountiful ' in which economic and social
factors~

in terms of

land-use~

are a major part of this research project , or

that work has already been initiated to carry this same field of research into
North Davis and Weber Count i es and is planned for the Utah County area o

The

total area under study inc l ud es approximately 75 per cent of the population of
this State.

Also, our work program for the period July

l ~

through 1962

initiates the beginning phase of a St ate -wide Transportation Study in the

�(

- 6 -

economic--including land-use--and social factors with relation to the total network of highways without reference to administrative system, to be coupled with
a fiscal study to be related to over-all highway needs.
Perhaps it is redundant to comment again about the accusation that "the
Highway Department has in effect become the land-use planning
without personnel competent in the many

~sp~cts

of land-use."

agency~

generally

I again wish to

emphasize that land-use planning is not a responsibility of the State Highway
Department, but at the present time is the prerogative of the local governmental
agencies; I also wish to emphasize again that the study of land-use, both
existing and planned, is a part of the State Highway Department's field of
investigation, and that advice and cooperati'on of the local planning agencies
are sought not only informally but py fQ~mal contracts in many instances.
In the field of highway literature reports replete ,with research studies
and information in this field are constantly being used ' as reference material
by the Highway Department, and are also available for the information and
instruction of your Committee o

I am including a bibliography of some of the

more recent and more important reports in this field.
Many of the criticisms containeq in the Committee's report are so
vague and of such a general nature that they hardly warrant item by item
attention.

Such statements as "these frequently have an adverse effect,1t

"this may spread," "many engineers," (highway engineers?)

are examples of

what I have in mind.
Basically, I believe that our problem is one of misunderstanding rather
than disagreement.

Without question, all of the items ,mentioned in your

Committee's report merit consideration, but in the final analysis, the

cost ~

in terms of highway user ,'s dollars, of providing all of the remedies recommended
by your Committee must be evaluated in terms of the existing and potential
highway needs, and economic and social loss to society resulting from long

�(

(

- 7 -

delay in providing needed highway construction compared to the loss which may
result by not complying with recommendations in your special and limited field
of interesto

The Highway Department is the custodian for the highway user's

tax dollars to the extent that the Legislature has seen fit to make this
source of revenue available to it, and its primary responsibility is c learly
defined in the State Code.

In the final ' analysis, what your Commit t ee advocates

is the diversion of the highway user's tax dollar to non-highway use and the
assurance that such diversion will take place by the creation of a dictatorial
group separate and distinct from the highway engineering field with powers to
arbitrarily dictate and enforce such diversion o

At the same t ime we recognize

the needs" and desires of the segments of socie ty which may be benefit ted or
adversely affec t e d by highway improvements and construc tion.

However ~

we

firmly believe that t he proc edures are already established for hearing and
considering the objections ,a nd recommendations of these groups, bu t we still
maintain that we have
dec isions

that~

right. in the field of highway matters t o make those

th~

in ou r op i nion 9 and as directed by St ate

legislatiori ~

be~ t

serve the public good .
nt
I would like to make an addi tional comme_ or two to reply to each one
of the four recommenda t ion s of y pur Committee:
(1 )

We are already making use of the special t alen t s of Utah ' s universi-

ties, and we
Highway

believe ~

Departmen t~

c onsidering the amount of money available to the Sta t e

t ha t we have an exc ellent research program; for reasons of

flexibili t y an over - all highway research program should r ema.in under t he
jurisdiction of the St a t e Highway Depar t ment o
(2 )

There is

alrea~y

Federal and

S t at~ legislatioh~

requiring coordin =

,

ation of certain agencies.

Perhaps more is

needed ~

bu t in any event , there

must be some authority resp onsible for making final decisions o

I can ' t ~elp

�(

- 8 -

but wonder how the Board of Regents and the University administrators would
react to a suggestion that all of their decisions would be subject to review
and confirmation including the final decision for funding and expenditure of
the University's educational dollars by self-selected groups with little
knowledge of academic problems and procedures who might have some interes t
in the research and graduates.
(3)

We believe that the authority to review and reject highway design

proposals can best be accomplished under the presently established Road
Commission and Highway Department, just as we believe that the ' aims of the
College of Forest, Range and Wildlife Management of the Utah St ate University
can best be served by personnel who have the education, training, and experience
in this specialized field
(4)

o

Legislative recognition of this recommendation is the prerogative

of the duly elected representatives of the people, but if such legislation
were enacted, would be the responsibility of the. State Highway -Department.

�(

BIBLIOGRAPHY
1 0 Arizona Highway Department, "Economic Impact o'f the Proposed Interstate
Program in the Phoenix Area, 1957.
2 0 Better Roads, "Planning Is Essential for Orderly Development, July 1961, pp . 28 .
3.

California Highways and Public Works, "Planning" Volumn 39, November-December,
1960, Numbers 11 and 12, page 40 .

4.

Colorado Department of Highways, "Economic · Impact Study '1, Planning and
Research Division, October 1958 .

5 0 Harrison, ·J oseph ·W. ) Highway Ee01:lOmi:-sc-, ·J'ffieon-omi-c · E-ff·eets ef-:. · Limi ted Aecess
Highway and By-pass, University of Virginia, 1956 .
6.

Highway Research Board, Special Report No . ·28, "Economic Impact of Highway
Improvement, Publication 541 . 1957 - :S~ssion I - The impact of Highway
Improvement on Land Val, es . .- Session II - Impac t of ..Highway Improvement
u
on Land Use .

7*

Highway Research Boa17d, I'Fo.r e.castin;g. f&lt;;lr
7 6,6 .

8.

Highway Research Board, "Highway and Economic · Development", Bulletin 227,
~ublication 687, 1959 ~

.Hi$hw~ys",

Bulletin 257, Publication

9 0 Highway Research Board, "Highway Needs .a nd Programming Priori tie- ,
s"
Bulletin 249, Publication 7.38, t960 .
10 .

Highway Research Board, Highway Needs StlJdy, 1957, Bulletin No . 158,
Publication 497 .

11.

Highway Research_~oard, "HigJ::lway Needs ' StudieS. - 1958", Bulletin No . 194
Publication 620 . _

12 .

Highway Research Board,

13

Highway Rese a rch Board, "Highway Planning", Bulletin No . 31, 1950 0

;

"H~.ghway

Planning II , Bulletin No . 17 , 1948 .
I

0

1·4 .

Highway Research Board, "Highway Planning and Urban Development", Bulletin
64, Publication 249 0

15 .

Levin, David R, "The Highway Interchange and Its Adjacent Land Use",
1960 Proceedings, Institute · of Traffic Engineers, Department No . 6, pp . 232 .

l6 ~

Lovoca, Phyllis, "New Roads Proving An Economic Boon", Highwa:r Highlights,
November-December 1960, page ; i2 '~

17 0 Highway Research Board, "Roadside Development - 1957", Publication 496 .
18 .

Highway Research Board, "Roadside Development", Bibliography No . 26,
Annotated, 1960 .

�I

I

(

19.

Highway Research Board, "Some Economic · Effects of Highway Improvement ft ,
Bulletin 67, Publication 256, 1953.

20.

Highway Research Board, "Some Evaluations of Highway Improvement Impacts",
Bulletin No. 268, Publication 801.

21.

Stanhayen, William H., "Highway Interchanges and Land Use Controls",
Highway and Land Administration, Chief Laws, Research Project.

22.

Stewart, C. L., "Farm Land Values as Affected by ' Road Type and Distance",
Journal of Farm Economics, 1936, page 724 to 735.

23.

Taylor, Maurice C., "The Beneficiaries of Highways and Their Responsibility "
Associate Professor, Agricultural Experimental Experiment State, Montana
State College, Bozeman, Montana.

24.

Taylor, Maurice C., and Infanger, Carl ton A., "Benefi ts From Highway
Development - User and Non-uset!', Department of Agricul ture and Economics
and Rural Sociology, Montana State College, Bozeman, Montana.

25.

Zettel, Richard M., "Effect of Limited Access Highway on Property and
Business Values", Institute .of Transportation and Traffic Engineering,
University of California, 1953.

This bibliography represents only a very minor portion of the research projects and studies that have been conducted in this field that are available for
reference.

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IN

AGRICULTURE AND HOME ECONOMICS
STATE OF UTAH
UTAH STATE U N IVERSITY
AND

U . S. DEP R f[MI!JN tD

at

AGNII:[)J LtrLl$E

EXTENSION SERVICE
LOGAN. UTAH

COOPERATING

To : President Daryl Chase
From : Jack H. Berryman
Date: September 1, 1961 .
Subject: Logan Canyon Road Construction.
I have the copy of Mr. Burton ts letter to you concerning the
Logan Canyon roadwork .
In the absence of Dean Floyd , I shall take the liberty of providing
you with the background information and suggestions on a reply.
For the past two years the College has been very interested in
the roadwork and named a committee to study the Logan Canyon road
and also prepared a statement on the impact of highway planning and
construction on resource use . I have served as Chairman of this
committee and have represented the College before the Cache Chamber
of Commerce and at highway planning meetings on several occ8sions ,
including the June 27 discussions mentioned by Mr. Burton.
We have expressed our position through letters from Dean Floyd
t o Regional Forester Floyd I verson and Mr . Burton , copies of which
are attached. Attached also is a dr af t of our proposed College
statement which has now been reviewed twice by the sta f f and is in
the process of final editing.
We have consistently taken this position : obviously roads and
road 1mprovements are necessary but planning shotild take into account
the impact upon al l resources and , 1n the case of Lagan Canyon, the
very important scenic , recreational and f ishery resources. W have
e
attempted to develop the prinCiple that cost of protecting these
resources should be a normal cost of road building . In view of Mr .
Burton's letter , we have been partially successf ul . To us the issue
I n Logan Canyon goes far beyond this immediate area.
I think a reply to Mr . Burton would be appropriate . I think ,
however, we must be cautious 1n endorsing the plan 8S revised
because the Forest Service has not yet issued a special use permit
and an endorsement by us would weaken their position as well as that
of the Fish and Game Department . Fu r ther, we have confined ourselves
to principle without reference to the specifics of engineering design .
With this in mind , may I suggest something along the following lines:
Thank you for your let t er commenting on the present
studies of the highway pl anning in Logan Canyon and also for
conSidering the philosophy of this University in designing the
highway .

�- 2 -

President Daryl Chase

September 1 , 1961

Obviously the decisions concerning the specifics of
acceptable design are the responsibility of the agencies
involved, namely your
the Fish and Game Dep artment ,
and the U. S . Forest Service. Our concern has been with the
principle--that highway planning must consider the impact upon
all other resources and that the cost of protecting these
resources should be a normal cost of highway construction.
We recognize that the deSign for the second phase of the
road has been modified to a considerable extent and th a t costs
ha ve been increased substantially _ To us this represents
progress in the establishment of an important principle that
goes beyond Logan River. Your cooperation is much appreciated

Q

I would apprec iate the opportunity of discussing this matter with
you .

JH8:jwt
c . c. Dean J . Whitney Floyd

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D•• (TO. 0' .. I....A"

101f," W. GRiFf iN

C. TAYLOR IURTON

RULON J . BALLA RD
J . [OWARO JOHN TO

ITATt O"ICI IUILe •••

Utah State Department of Highways
Salt Lake City 14, Utah

1
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Utah ItAte UGiv.rli
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Lo an Can on

Dear Kr. Cba.e:
laference il
to our
ti I ift Lolan, Utah. OIl J
27,
alre d to conllder certain .edificationl in t
1961, at wbich tl
,lao lubaitted at thi.
etifta. After car ful conlideratl
of t
, .. 11 I 1 • in t
four-1
•• e ion of hi h
•
ha
reduc d t
of t .e lan a by Itartia the u -hill pa •• ing lane at Station
464 aDd
it at tation 490.
ar Itartinl t
paillna 1
at Itation
t r.tnatin it at 477+81, Whic 1••
coalidera 1. ductioD ia total le th of pa.l1al lane ••
Itudied the 'i.h
G
Ca..d •• i '. propo.ed .edificatlOil of t
lUah y
n Itation
and 5 5. Ihould _ move t
lUSh--, 10 feet north 1 to t
1011d roc , it will re.ult 1n a additioaal
7,23' cublc yardl of rock to be bl.lted out and hau1.d a di.tance of
f1ft 1I11el
t
ri t
fork c YOD.
r .tl_ted COlt for the
exca.at1oe of ,011d rock 1. t1.50 per cublc yard,
t
e.ti. .ted COlt
f
It · t
rock 1. 150 a ya 1I11at or a to 1 of 90e
r cubic 7ard
..tlna a total of t2.50 per C ic yard, or • total ollar COlt of f18,095.
ftU. adctlti al re1ocatiOil of t
hil., into .o11d rock vill relult ia
a ut nduetion of chamal eDCr
nt by 185 e.t.
After revlev11l1 the ady_t •• lain d,
185 f •• t 1•• 1
of C
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au of , b1le loed'
t
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... le Ju,tlficatloa for t
addlti a1 co.t invo1 d.

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back 20
IOl1d rock
lei ha • ad tbl fol1nial n.u1t. wn
terata
1 _ ..... t of rock to be. .acay.tad 1, 19,657 c blc ya"'"
n.u1t 1 the recluctlOil of t e l acroac"'nt ,a.e 1,060

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1

1

,"f

•

�UTAH STATE DEPARTMENT OF HIGHWAYS

--

I

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~

_ __

This material is being forwarded to you by
President Chase, on the assumption that it
may be of inter ost to you.

�December il, 1961

Dr. Daryl Olase, President
Utah State University

Losan,

Utah

Dear Dr. Chase:

We would like to g1 y, our strollS endors ment to the h1ghv~ construction
report issued by the College ot Forest, Range and Wild11fe Management.
Perhaps the State Road Commission teels that they are doing an excellent
Job, but those who do not like to see the ruthless detacement ot torest
and landscape teel otherwise. Wh never one ~vocates a vise conservation
principle in Utah, it i8 bound to be attacked by a tev highly vocal
anti-conservationists. As an institution of higher learning USU baa
v1aely perm1 tted the publication of unbiased studies such as this, in
the tull tra.dl tion of academic treedan. In addition, these conservation
studies are appreciated by a great number of state citizens, perhaps a
-Jority, who, 11ke ourselves, rarely have time to otter congratulations
tor a job well done.
Sincerely yours,

J. Calvin Gl44ins-, President

W

~t

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                    <text>November 3, 1961

Dr. Daryl Chase, President
utah st'ate University
Campus
De a r President Chase:
Following our discussion we have released draft copies
of the statement on roa d construction and resource use to the
Utah state Department of Fish and Ga me , state De partment of
Highways , U. s.- ~orest Service., and U. S. Bureau of Public
Roads. These ag~ncies have expressed an interest in receiving
the statement a t an early date. We are also transmi t ting a
copy to Governor Clyde. A copy of the letter to him is attached.
We -'are releasing copies to the P r ess today , coordina ting
our efforts with Mr. Allred. We are also meeting with Dr .
Frischknecht and hope to have the statement in published form
and ready for general distribution in the near future.
Sincerely yours ,

J. Whitney Floyd, Dean
College of Forest, Ra nge,
and Wildlife Management
JHB:ep
cc: Dr. M. R. Merrill
Dr. Ca e l Frischknecht
Attachment.

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