The earliest predecessor of Caltrans was the Bureau of Highways, which was created by the California Legislature and signed into law by Governor James Budd in 1895. This agency consisted of three commissioners who were charged with analyzing the state road system and making recommendations. At the time, there was no state highway system, since roads were purely a local responsibility. California's roads consisted of crude dirt roads maintained by county governments, as well as some paved streets in certain cities, and this system was no longer adequate for the needs of the state's rapidly growing population. After the commissioners submitted their report to the governor on November 25, 1896, the legislature replaced the Bureau with the Department of Highways.