"(b) Helpers to journeyman craftsmen and all other labor which requires no special skill or experience or the exercise of discretion and independent judgment." It is the contention of your petitioner that in all instances, local conditions govern the industry and that the construction practices vary in each locality. A wage determination should reflect as nearly as possible the local area working conditions and prevent the importation of area practices that disrupt local conditions. Consider the definition of an unskilled worker as a helper to journeyman craftsme. It is not altogether clear as to what is meant. Helpers to journeyman craftsmen learning the trade are usually designated as apprentices. Those not so classified are generally designated as various types of laborers. Regarding the averment that State highway departments make determinations without regard to the actual wage conditions in their respective States, your peticioner knows, as a matter of fact, that contractors in those States pay considerably higher wages than those determined and in some instances the determined skilled rate is appreciably less than the actual rate paid to unskilled workers in the area. These wage determinations are called to your attention inasmuch as they represent the general, rather than the exceptional wage determinations made by a State highway department. Also, some State highway departments have been determining the same rates for years without reveision and with full knowledge of the fact that such determined rates are not minimum rates. Regarding the averment that such group wage determinations fail to recognize bargaining where it is representative of the industry in the area, a wage determination that fails to do so leads to unrest in an industry where industrial peace exists. Seemingly unimportant as a minimum-wage determination may be, especially to those not familiar with the construction industry, legislators have always been mindful of its importance, and it is all important to local contractors and construction workers alike. A determination that fails to recognize bargaining in an area, where area contractors and workers have, through collective bargaining, agreed on terms and working conditions suitable to both parties, fails in its purpose. Determinations contrary to such bargaining create labor problems where none exist and open the door to industrial strife. The Congress of the United States has long recognized the need for minimum wage legislation on construction work. There is a great deal of precedent for such legislation, as indicated by the following wage acts passed by the Congress of the United States over the many years: Davis-Bacon Act, as amended (46 Stat. 1494, 49 Stat. 1011, 54 Stat. 399, 55 Stat. 53; 40 U. S. C. 276a et seq.). National Housing Act, as amended (53 Stat. 804; 12 U. S. C. 1703 et seq.). Hospital Survey and Construction Act (60 Stat. 1040; 42 U. S. C. 291 et seq.). Federal Airport Act, as amended (60 Stat. 170: 49 U. S. C. 1101 et seq.). Housing Act of 1949, as amended (63 Stat. 413; 42 U. S. C. 1401 et seq.). School Survey and Construction Act of 1950 (64 Stat. 967 et seq.; 20 U. S. C. 251 et seq.). Defense Housing and Community Facilities and Services Act of 1951 (65 Stat. 293, as amended by 66 Stat. 602; 402 U. S. C. 1591 et seq.). Lease Purchase Contracts Act, Public Law 519, construction of public buildings, extensions, additions, or remodeling of existing structures. See release of the Secretary of Labor dated December 19, 1954. Reorganization Plan 14 and regulation, part 5 issued pursuant thereto, gives the Secretary of Labor authority to prescribe standards, regulations, and procedures with respect to the administration and enforcement of the labor standards. Contractors and construction workers alike are no less dependent today than they have been in the past on congressional aid which has been so generously given in protecting established standards. Now, then, in view of the foregoing, your petitioner respectfully requests that your committee favorably consider the following supplements to H. R. 4260. Any contract or loan or grant, or both, pursuant to this act shall contain a provision requiring that no less than the wages prevailing in the locality, as predetermined by the Secretary of Labor, shall be paid to all laborers and mechanics employed in the construction of the project at the site thereof; and the Administrator shall require certification as to compliance with the provisions of this subsection prior to making any payment under such contract. The Secretary of Labor shall prescribe appropriate standards, regulations, and procedur, which shall be observed by the Administrator in carrying out these proposed provisions (and cause to be made by the Department of Labor such investigations) with respect to compliance with, and enforcement of the labor standards provisions of this section, as he deems desirable. Mr. DEMPSEY. The committee will now adjourn until 10 a. m. tomorrow when we will hear Governor Kohler of Wisconsin, Governor Kennon of Louisiana, Governor Roberts of Rhode Island, and any others who may appear, and I hope there will be others. (Whereupon, at 12 noon the committee adjourned until 10 a. m. the following day, Wednesday, May 4, 1955.) NATIONAL HIGHWAY PROGRAM WEDNESDAY, MAY 4, 1955 HOUSE OF REPRESENTATIVES, The committee met, pursuant to adjournment, at 10 a. m., in room 1302, New House Office Building, Hon. George H. Fallon presiding. Mr. FALLON. Ladies and gentlemen, this meeting is a continuation of the hearings on H. R. 4260. We are going to try to get started promptly and get along as quickly as we can, because I understand the House goes into session at 11 o'clock today. We will continue the hearing until we get a quorum call or a call of the House. We are pleased to have some visitors from Egypt in the room today. They are guests of the American Road Builders Association. We have Mr. Hamed Ahmed Asen, the head of the Research Division, Roads and Bridges Department, Ministry of Communications, Cairo, Egypt. Col. Ibrahim El-Habbal, Deputy Director of the Department of Roads and Bridges of Egypt, Headquarters, Army Engineers, Abbassia Barracks, Cairo, Egypt. Mr. Hassan Bisri, inspector of Mechanical Division, Roads and Bridges Department, Ministry of Communications, Cairo, Egypt. I wish the visitors from Egypt would stand up so that we could see them. [Applause.] Mr. FALLON. Thank you very much. Our first witness this morning will be Governor Kohler, and I would like a member of our committee to present him. Mr. Withrow. Mr. WITHROW. Governor Kohler, we are very pleased to have you with us, I am sure. I am particularly gratified because I know of the work you have done and the study you have given to this question of roads, and that you are appearing here as chairman of the governors' conference special committee on highways. In addition to that, I do want to say I am mighty proud of the record you have made in the State of Wisconsin. Governor Koh ler. STATEMENT OF HON. WALTER J. KOHLER, GOVERNOR OF THE STATE OF WISCONSIN AND CHAIRMAN, GOVERNOR'S CONFERENCE SPECIAL COMMITTEE ON HIGHWAYS Governor KOHLER. Thank you, Congressman Withrow. Mr. Chairman. Mr. FALLON. Governor, I understand you have a prepared state ment. 63235-55-24 Governor KOHLER. Yes, sir, I do. Mr. FALLON. You can either read it in its entirety or, if you would like to give us some of the highlights, file your statement in the record. After the highlights, perhaps some members would like to interrogate you. You may do as you wish. Governor KOHLER. If it meets with your approval, Mr. Chairman, I will go through this prepared testimony and make myself available for any questions which the committee may see fit to ask. My name is Walter J. Kohler. I am Governor of the State of Wisconsin and chairman of the Governors' Conference Special Committee on Highways. I wish to express my appreciation for the opportunity you have given me to present to you the views and the program of the governors' conference special committee and the executive committee of the governors' conference. Let me say at the outset that, as a public servant, I am cognizant, as you are, of the needs of other governmental programs. For instance, at the Federal level, almost daily events emphasize the wisdom of our decision to maintain nor defenses in a constant state of readiness-which by itself is going to strain our fiscal resources. An adequate interstate highway network is, of course, an integral part of our national-defense system. There are many other programs which require large expenditures by various levels of government, but the point does not need to be pressed further. I realize that members of this committee are well aware of the seriousness of our highway deficiencies and the tremendous scope of the construction program that will be needed if we are to overcome them. Indeed, to a considerable extent, this committee is responsible for there being a general awareness of the nature and magnitude of our highway problem. Your exhaustive national highway study of the 83d Congress was the forerunner of, and perhaps the stimulus for, the studies and reports of more recent date, the needs study which section 13 of the Federal-Aid Highway Act of 1954 directed the Secretary of Commerce to make; the report of the President's advisory committee on a national highway program; and the cooperative program approved by the executive committee of the governors' conference. As a result of the several examinations of our highway deficiencies, it is probably fair to conclude that no further demonstration of need is required. We can, therefore, focus our attention on how best we can build and pay for an adequate system of highways. Before doing so, however, I should like to indicate why I am here and the capacity in which I appear. As you know, the national governors' conference is composed of all the governors of the States and Territories. Since its organization in 1908, it has concerned itself with matters of major interest to the States and the country. At the 46th annual meeting of the governors' conference at Bolton Landing in New York State last July, the most important subject discussed was: What can and should be done to modernize our highway system to conform to present-day needs? The President of the United States, through the Vice President, in a message to this annual meeting of the governors' conference, outlined the problem and suggested that the governors of the States explore the question in detail and submit to him a suggested plan and program for its solution. He |