College or Architecture Libr; ary n NA CORNELL UNIVERSITY LIBRARY FROM The Estate of Gha S.H.Hull 1^56,G/<3S Cornell University Library NAC 6827 .G76B8 Pre Imlnary .report for,, a.,citx, p,(?n ..toLiiJ!,, 3 1924 024 415 964 «». The original of this book is in the Cornell University Library. There are no known copyright restrictions in the United States on the use of the text. http://www.archive.org/details/cu31924024415964 5 €mmll Winxvmih Wthtmu HAC C*a'-f THE GIFT OF -:!i:.- ei.M.w.ua kZS.b2J]^ \.t.l.5.Ji.i.... 6896-2 "UNLIKE MOST OTHER CITIES YOU DON'T HAVE TO MAKE YOUR PARKS, YOU ONLY HAVE TO TAKE THEM." From the address of Arnold W. Brun- ner, at the Pantlind, October, IQ08. DESIGNED ENGRAVED £ PRINTED By DICKINSON " BROS + GRAND RAPIDS, MICH t PRELIMINARY REPORT FOR A CITY PLAN ^^ FOR Plf tek^3^ -^T- _ GRAND RAPIDS BY ARNOLD W. BRUNNER JOHN M. CARRERE "A great subject truly, for it embraces the consideration of the whole of the external surroundings of the life of man: we can not escape from it if we would, for it means the moulding and altering to human needs of the very face of the earth itself. "Even in its narrower aspect, in the defacements of our big towns by all that commerce brings with it, who heeds it? Who tries to control their squalor and hideousness? There is. nothing but thoughtlessness and recklessness in the matter: the helplessness of people who don't live long enough to do a thing themselves, and have not manliness and foresight enough to be- gin the work and pass it on to those that shall come after them." — WM. MORRIS. V- fN/is 'O c ■'\<- /. % Contents! 1. General Considerations 2. Streets and Open Spaces 3. Height of Buildings 4. Railroad Plaza 5. Civic Center _ _ _ _ 6. The River - - - 7. Boulevards and Parkways 8. Parks and Hillsides 9. Playgrounds _ _ _ _ _ 10. Housing Conditions 11. Finance and Legislation - - - 12. What Other Cities Are I^oing 13. Conclusion 14. Financial Condition of Grand Rapids Compared With Other Cities - ' - 15. Some Correspondence . 7 10 18 19 21 23 31 35 37 38 39 41 44 45 46 Co tj)e i^otiorable JEa^or anti Cotntnon Council of (iratiti ilapitis. GENTLEMEN:— We herewith submit to you a preliminary report on a city plan for Grand Rapids. This report will, we believe, form the basis for rational and effective city b.uilding in the future. As we have to a great extent taken the public into our confidence while the work was going on, some of our recommendations will be but recommendations to continue along lines already approved. Others, how- ever, will be new. In case .two or three of them seem to you costly, we ask that you carefully consider their ultimate effect in adding to the value of the city. This report we consider as but preliminary. The amount of our appropriation made it impossible for us to do any surveying or to have pre- pared such detail plans as may be found in the reports of other commissions which had from $5,000 to $10,000 to spend. So far as the broad outlines of a city plan go, however, ours will, we believe, compare favorably with any. And it is these broad outlines, this demonstration of the relation of one proposed improvement to others, that we have most needed in the past. The maps included in the report may not be absolutely accurate. As we could not afford to employ surveyors, we had to depend upon existing maps, and the accuracy of these we could not always verify. But as the purpose of this report is merely to suggest the lines upon which improve- ments should be made so that they may supplement instead of interfering with each other, slight inaccuracies are of little moment, for when the time comes to actually carry out any of the improvements mentioned, the details of the plan may be considerably altered. Grand Rapids is one of 44 American cities which have already secured or are now working on city plans. In the great majority of cases it has been necessary for the commissions to recommend changes much more expensive than those recommended for Grand Rapids. Our city is especially fortunate in that it has begun to take thought of the future in time to pre- vent such serious blunders as those from which many older and larger cities are suffering. Had Pittsburg or St. Louis or Cleveland been fore- warned, as we have been, when they were at our stage of development, they would be not only far more convenient and beautiful than they can now ever hope to become, but they would have achieved this greater result at a fraction of the expense involved in their present proposed improvements. The coipmission wishes to express its gratification in having been able to secure the services of Mr., John M. Carrere and Mr. Arnold W. Brun- ner, whose ability as city planners is demonstrated in Washington, Cleve- land, Hartford, Baltimore and other American cities. It also takes this occasion to thank Mr. Goebel of the Park Department and Mr. Freshney and Mr. Anderson of the Department of Public Works for their interest and assistance in our work. (Signed) HEMAN G. BARLOW, Chairman JOSEPH SCHREMBS, CHARLES M. WILSON, JACOB STEKETEE, JOHN N. McCORMICK, CHARLES E. FINK, THOS. D. PERRY, VAN A. WALLIN, JOHN B. MARTIN, JOHN IHLDER, Secretary. General ConsiiberationS C ^e Citp of oBranb J!!ajji&ief is 59 years old, which even for an indi- vidual w^ould not be considered a great age. old Grand Rapids Only 82 years have passed since the first log cabin vv^as built w^ithin its present boun- daries, and during that short space of time there has grow^n up on the site of the old Indian village at the rapids of the Grand River a community of more than 100,000 persons. It is not to be supposed that this wonder- ful growth will cease; on the contrary all indications point to a further development that will far excel the record of the past. The spirit of earnestness and enthusiasm that inspired your predecessors, and in an incredibly brief period of years created the present City of Grand Rapids, will unques- tionably insure its continued expansion and prosperous future. It is necessary however to prepare for this future so that every advantage of an increased population and an enlarged com- merce may be secured. Most of our American Cities have grown in a haphazard fashion, and the history of Grand Rapids is no exception to the gen- eral rule. The prosperity of the last quarter of a century and the general tend- ency of population to flock to centres of industry has resulted in a growth of our Cities not anticipated by their early settlers. Boundaries have been extended and new quarters have replaced older ones only to be superseded by still newer settlements. These movements have been without re- straint or direction and have resulted in congestion and confusion. A City, not to be an unrelated aggregation of buildings and streets, should have a com- prehensive plan and follow a general scheme of development in order to prevent confu- sion and a clash of interests. No one would undertake a private enterprise of even minor importance without making provision for the future, but the building of a City, our most important enterprise, has generally been conducted in a spasmod- ic fashion without preparation for change or expansion. The development of one section is generally carried on independent- ly of the others, which without a general scheme often acts as a bar to more extensive and important improvements. Individual efforts must not be overlooked or undervalued, but the individual alone has comparatively little power and all civic movements require strong, concerted action to insure success. PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS The present condition of New York is one of the best examples of the state of confusion and congestion resulting from lack of forethought. On account of the gridiron system of streets and a lack of diagonal thoroughfares, the principal traffic is forced to use a few parallel streets instead of being distributed as it would be if there were radiating avenues and open spaces where the streams of traffic meet. This state of affairs is too well known to need description, but matters have gone so far that it is now extremely difficult to cor- rect the early mistakes of the City plan- ners. It is comparatively easy to plan the newer and more sparsely settled portions of a town, but to improve the congested dis- tricts seems almost a hopeless task. We must remember however that the objections urged against opening a new street in a thickly settled portion of a modern City are precisely those that were made when Baron Haussman planned his great im- provements in Paris. It has resolved itself into the question of individual rights compared to the public good, the interests of the private investor compared to the welfare of the community as a whole. The economy and wisdom of proceeding upon a settled plan must be ad- mitted. In the case of Grand Rapids you have chosen the most propitious time in your history to consider this question. The business section of your City is undoubt- edly at the beginning of an era of re-build- ing that will progress rapidly, and, if this is done on established lines much energy and expense will be saved and costly mistakes and re-arrangements will be avoided. Grand Rapids is fortunate because chance and the conformation of the land have given it several radiating streets which ex- tend toward all four corners of the City, and chance has also given it in Campau Square, Monument Triangle and Fulton Street Park, downtown open spaces, which, while too small for its future needs, serve as a relief to traffic and as the beginning of a civic centre. If these radiating streets and open spaces are to be used as the future may demand, action must be taken now, and except in a few instances, provision may be made for the future without un- doing the work of the past. It is too late now to achieve the desirable conditions which exist in such Cities as Washington, Detroit and Buffalo, where the founders possessed a foresight which was far ahead of their time. But by acting promptly and vigorously these conditions may be approx- imated and an individuality attained that will distinguish Grand Rapids from the more conveniently arranged but somewhat geometrical uniformity of the cities men- tioned. Because of its hills, its wide river valley and its small creek valleys Grand Rapids possesses all the elements of the picturesque. In addition it has what is more important to an industrial and commercial city, a large area of flat land which permits an indefinite and easy expansion of its industries, pro- vided there are no artificial bonds that will hamper the larger city of the future. The chief effort should be to build so that ex- pansion will be easy and natural. Thus iij the greater Grand Rapids adequate traffic facilities may readily be added as they are needed without disturbing existing im- provements and the number of industries may be indefinitely increased without causing congestion of population. It is essential to lay out the routes of the rail traffic carriers, both steam and in- terurban, so that they will assist the City's expansion. If this is done industries which depend for their success upon economy in transportation will advance in long radiat- ing lines along the rights of way, leaving spaces between for the homes of their multitudes of employees. The centre of the City should be left for commercial houses which from their nature must be near the centre of popula- tion. Not until such a system is adopted can there be any hope of solving the prob- lerns presented sooner or later in all large cities by congestion of population. 8 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS This fact is recognized in Germany, which presents many lessons to us in City Building. Cities are there divided into zones. After deciding which sections are best adapted to particular .purposes, one is set aside for manufacturing, another for commerce and another for residences. In this way each interest secures a distinct advantage and the City as a whole is benefited much as a great industrial plant whose various departments are so arranged as to be convenient to each other and yet not interfere with each other's oper- ations. Because of the great economic advant- age which would result from an intelligent and systematic policy in determining the routes of rail traffic carriers and the locat- ing of factories, we recommend the creation of a commission with adequate funds at its disposal to employ the best technical advice, to include at least one railroad engineer and one traffic expert to draw up a plan which may be followed by the City and the State Railroad Com- mission. This commission would decide the future railroad lines through the City and its recommendations would be of great value. Because of the lay of the land most of the present steam railroads appear to be well located for the future development of the City. The arrangement of the inter- urban traffic, however, presents a problem which it would be well to consider now in order to provide for future contingen- cies. This problem is extremely difficult and there are no examples to guide us, as American Cities generally have neglected it and not considered the subject from a broad point of view. There will undoubtedly be new steam railroads entering Grand Rapids in the near future. They should be provided for in such a way that they may yield the great- est advantage while doing the least injury. It cannot be emphasized too strongly that the prosperity of a city depends upon its traffic connections with the outside world. Accordingly, every inducement together with such counsel and guidance as may secure the greatest mutual benefit to road and city should be offered. In this con- nection the possibilities of the Belt Line Railroad which we understand is now in course of construction over a part of its proposed right of way must be borne in mind. A belt line road, connecting all others, should be of great advantage to an industrial city which ships its products to every part of the country. For that reason its construction should be encouraged, but the city should not neglect its ultimate interests and it is natural for the builder of the road to endeavor to construct it at the smallest initial expense and without regard for the future well-being of the City that it is intended to serve. Conse- quently, the City should see that the route of the proposed road is such that it will develop the largest possible area and will do the least possible amount of damage by checking natural expansion or by spoiling for residence purposes a district that, be- cause of its topography, cannot be used to as good advantage for factory sites as an- other a short distance away. The present promoters of the Railroad project may have no interest in the future result of their work, while the City will benefit or suffer from it for centuries. The Grand Rapids Belt Line has the opportunity to create a model industrial community with factories scientifically located and space provided for housing and recreation, and it may be to the City's advantage to wait for its Belt Line Railroad until these con- ditions may be assured. There is another phase of this subject that will bear consideration. A belt line road forms a girdle about a city. Unless care is taken to provide enough wide thoroughfares crossing its right of way either above or below grade it will block traffic and so check the City's growth. But these are, except in one particular which will be referred to later, matters for the proposed traffic commission and its experts to study. PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS Streets! The main points underlying all good city planning, whether picturesque, for- mal, or a combination of both are as fol- lows: — 1. Convenience: Directness and suffi- cient space must be provided for circulation, that is to say, traffic between any given points. 2. Safety. Open spaces or wide ave- nues constitute the only effective and prac- tical barrier against fires by isolating sec- tions of the City or groups of buildings and preventing the spread of fire over large areas as we have learned from Chicago, Baltimore and San Francisco. A ship is built with water-tight compartments for safety, and this principle of sub-division would prevent disastrous conflagrations in a City. 3. Health and beauty: Serious study must be given to the proportion between the voids and the solids, between the parts which are to be built up and those which are to be left unoccupied by buildings and are to be devoted to thoroughfares. These proportions are the fundamental principle from which all the art of the City springs, just as the relation of the voids and solids in the elevation of a building or the lights and shadows of a picture. Furthermore, they constitute the basic principle of all sanitation, as the open spaces provide the necessary sunlight, air and breathing spaces for the population surrounding them. The best and most convenient City plan is not unlike a cobweb in general appear- ance. Radiating avenues lead from the center of the town to the outlying dis- tricts. They are connected at various points by avenues and the intervening spaces filled by secondary streets, so that easy communication is secured between all points of the City. Accordingly, the most important consideration is to defin- itely establish the main arteries upon which there will be the greatest traffic. The secondary streets come next and finally the minor streets and alleys. The intersections of streets must be considered and if they are to be developed they may have the corners rounded or treat- ed by creating circles, small squares, large squares or small parks. The park may be in the center of the street, the traffic run- ning through it and around it, or it may be to one side, a system which has proved very successful in modern German plan- ning. There is no objection to placing a mon- ument in line with the center of the street on its main vista, as an avenue continued beyond a certain point becomes monoto- nous. Even a building may be placed in the center of a street, dividing it so that the roadway passes on both sides, as we may see in London in the Strand. The best position for a great building is at the end of a street which leads up to it. In Paris every important building is situated at the end of a vista and no monumental structure is ever erected there without a dignified setting and a proper approach. Trinity Church, in New York, which is the only church in the City placed at the end of a street, is an excellent example of the value of a dignified setting and a beautiful architectural vista. On the other hand your new Postoffice, while its site is convenient for the present, is by no means adequate to the impor- tance of the building. It has no setting, no foreground and no approach. This building should have been an integral part 10 ■M^Mim^s^mm:: jM^BiumMmmi View of Washington Plan, Looking Towards the Capitol jissBoaiB'^^^ui- jvitnsesjiL^ View from ihe Old to the New Capitol. St. Paul. Showing the District Across which the Mall and the Wide Approaches are to he Laid Out See Map of Proposed Mall and Streets on Page 48 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS The Paseo I 897 Kansas Cily The Paaeo 1906, Kansas City Alpine Avenue Ends with a Double Corner. By Extending it a Few Feet Farther it would Give Easy Access lo Slocking Street of a civic center in which uhimately all the parts should emphasize each other's beauty and importance. Wherever it is obviously necessary and demanded by the topography or character of the local conditions, a curved or circular street is not only possible but advantage- ous. Regent Street in London is an ex- ample of a very successful street of this kind. Such a system of broad radiating arteries with occasional wide connecting thorough- fares not only provides for the convenience of traffic, effecting a great and constant saving to the public, but it fulfills the second requirement of a good City plan by affording protection against a general conflagration. It also lends itself to the most effective development of a park and boulevard system, such as all progressive cities are now acquiring. The broad radiating thor- oughfares when they have passed beyond the business districts, may be transformed easily into boulevards and parkways that serve as approaches to the outlying and encircling large parks which Grand Rapids must some day possess. The connecting streets, until the growth of the City neces- sitates their use for heavy traffic, may also be developed as boulevards and parkways. We therefore recommend that the fol- lowing streets, which are or will be the great arteries of traffic, be widened gradu- ally during the coming years to approxi- mately 100 feet. We further recommend that some means be sought whereby the City may prevent building on these streets nearer than 50 feet to the center in regions now outside the City limits but which are sure some day to be included. The present development of South Grand Rapids in small lots along inconveniently arranged streets that have little or no relation to 12 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS the street system of the City is an ex- ample of the handicaps under which the greater Grand Rapids of the future must labor if it is not given some voice in the planning of its suburbs. Through traffic carriers should be wid- ened to approximately 100 feet; that is to say, the building lines should be so de- termined. The road bed need not be widened until traffic demands it. Alpine ^benue. The jog at 7th Street should be removed and the street carried through to Stocking. At present it is 66 feet wide to 7th Street where it has a jog and narrows to 50 feet. Above 7th Street, the lots are from 100 to 122 feet deep, which makes 100 feet wide easily possible. Between 7th and 5th Streets the lots are sidewise to the street and only 50 feet wide. ^alher ^benue. It will not be difficult to widen this street on the south side as there are only half a dozen small, irregular lots. ^tocfting Street. This will be one of the most difficult streets to widen as the lots are badly platted, very irregular in size and shape. 25ritige ^treet» On the West Side from the junction of Stocking and Jefferson Streets to the river. J), ^fefferjfon Street. From Bridge Street to Butterworth Ave. This gives promise of being a great traffic carrier as it is the chord between Stocking and But- terworth and the land east of it will be built up with factories. 25uttet;toOi:tl) ^tienue. The lots are ir- regular. 5pUlton Street. Between Jefferson Street and Division. This will be a slow and difficult task because the land is nearly all Jefferson Slreel is ihe Connecling Lint between Slocking Slreel and Buller- worlh Ave. It is Destined to be. a Heavy Traffic Carrier and Sbould be Wide "An aesthetic public purpose is comparable in kind to a patriotic public aim, and in the one quite as much as in the other a utilitarian element inheres. , Positive beauty and freedom from deformity enhance the value of possessions national, state and municipal. Localities that charm the senses will attract visitors and purchasers and constantly tend to appreciate pecuniarily." — Vi- ilbur Larremore. We Spend Thousands of Dollars to Improve a Street which Ends Against an Old Mill. The Wagon in the Background is on Walker Avenue 13 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS ;i',..i?^:' :'"^<"mm?i '.msmi. The Gridiron Street System, Designed to Fit a Map Rather than a City, Takes no Account of Hills "City streets are unsatisfactory play-grounds for children because of the danger, because nnost good games are against the law, because they are too hot in summer, and because in crowded sections of the city they are apt to be schools of crime. In view of these facts, cities should secure available spaces at once so that they may not need to demolish blocks of buildings in order to make play-grounds, as New York has had to do at a cost of nearly a million dollars an acre." — Pres. Roosenjelt. occupied by buildings and many of the lots are irregular. It is destined however to become one of the great traffic carriers and is very important as a fire barrier. Cast g)itie Canal J»trcct. From Campau Square to Leonard Street Canal is already 100 feet wide. This width should be maintained clear through to North Park, which may easily be done as very little of the adjoining land is yet built upon. ^lainfteltJ ^bcnue. Lots are 115 or more feet deep. The Taylor Street con- nection with Coldbrook Street is already 100 feet wide and Coldbrook Street to Canal may easily be widened. A method should be found of easing the sharp corner of Taylor and Coldbrook Streets. It has been suggested that Plainfield Avenue be carried straight on until it strikes Canal, but this, like the suggestion of carrying Foun- tain Street through to Monroe, while per- haps desirable, would scarcely justify the expense. ^carl Street. Like Bridge and Fulton Streets the widening of Pearl Street from Campau Square to the river will be a lon^, slow process, but the necessity for it will become apparent as business increases. i^onroe Street, Though Monroe Street is only 82i feet wide it is probably useless to think of widening it between Campau Square and Fulton Street. It should be carried through to State Street as described in the section of the report dealing with a civic center. This continuation. State Street and Lake Avenue should, however, all be 100 feet wide, and they will form practically one great thoroughfare. ^OUtl) i^arftct MtUt, This street is now of irregular width. As far as Pro- vender Street the lots are Provender Street it should river. as deep. Below be open to the It is Natural to take Short Cuts in order to Save Time and Effort. We are Beginning to Understand that Radiating Streets are More Economical than the Gridiron System at the Intersection of Hall Street and Jefferson Avenue. One of the Corners is now Public Property, tfie Other Three are Vacant. Now is the Time to make a Circle which will be a Constant Con- venience to Traffic "From the point of view of future needs — commercial, sanitary and aesthetic — it is unfortunate that cities grow up without any comprehensive or well considered street plan. "The width of city streets is important on account of its influence upon the ease with which traffic may be conducted and also because of its effect upon the health and comfort of the people by determining the amount of light and air which may penetrate into thickly built-up districts." /. O. Baker, Professor of Civil Engineering, University of Illinois. Hastings Street — A Compromise with the Gridiroa System. Vehicles Musi Go Around 15 BH a o o u S CQ X l# o'5 < PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS too late to rectify the error. But if Mad- ison is widened as is proposed in the sec- tion on Boulevards, and Hall from Mad- ison to Division also widened, an artery will be created which should meet all re- quirements. apicfeinsfon ^bcnuc. This should form a link in a long thoroughfare running from the river (Ridge Avenue) and by a direct connection at East Street clear to Reeds Lake through the valley of Silver Creek. Such a thoroughfare as this would be your one great connecting or encircling street and would prove of great value to the future Greater Grand Rapids. To make a jog in the connection of Dickinson and Ridge would be most unfortunate. If the City were to undertake by con- demnation proceedings to acquire imme- diately the necessary land for these im- provements with the resulting damages to abutting property, the scheme would seem almost prohibitive, however desirable and really indispensable it may be; but if what is known as the Philadelphia method were adopted, that of gradual acquisition, one block at a time or one building lot at a time, in ten or twenty years the entire length of the street might be widened and the cost of the work be spread over this period. It would also permit the City to acquire the land when buildings were be- ing reconstructed and consequently avoid destruction to existing buildings. The Philadelphia ordinance compels any building which is erected after a certain date to be set back the required number of feet, the City acquiring the strip thus vacated. This method offers the least annoyance and hardship to individual own- ers. It results at first in a somewhat ir- regular and unsightly street but eventually accomplishes the purpose with the least disturbance to business and with the mini- mum expense to the City. The intersection of two streets of im- portance on which there is considerable traffic demands careful consideration. To enlarge the intersection instead of rounding the corners, the "round point" or circle offers the simplest and most effective means of preventing congestion. If this circle is made sufficiently large, it affords an excel- lent site for a monument or it may require only a small island of safety, which is ad- visable in crowded thoroughfares. This idea can be further enlarged by making a small square treated as a plaza, or with grass and planted with trees. Where streets cross each other diagonally, there is a special need for easing the cor- ners, and small triangular parks may be created, or better still, squares or circles. Such treatment creates valuable building sites which require some dignity of treat- ment. Property between two streets that narrows to a point is of little value unless properly treated. The frequency at which these small squares or parks are placed depends largely upon the amount of traffic and upon the character of the neighborhood. In the business portion of the City consideration of the traffic must prevail. In residential neighborhoods parks can be repeated for architectural effect and they enhance largely the value of the surrounding property. In commercial districts breathing spaces of this sort are riecessary especially where factory buildings have covered an undue propor- tion of their lots. A special need for an open space exists at the meeting point of Plainfield and Leonard northeast of the Grand Trunk railway tracks. If buildings are here erected to the present sidewalk line it will be im- possible for traffic coming down one of these streets to see vehicles or cars on the other. This danger and inconvenience will be considerably increased if the present plans of your railroad grade separation com- mission are carried out as they stand. In that case traffic coming down Leonard Street will meet that coming down Plain- field Avenue at the joining point of two narrow tunnels, which is dangerous and likely to cause serious accidents. 17 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS Heigfjt of PuUbingsi Regulations for the height of buildings should be considered now before the ad- vent of skyscrapers and when vested rights vv^ould interfere with equitable regulations. There is no more reason why the rights of the community should be disregarded in the matter of the height of buildings than in other matters relating to building laws, which are intended to protect the public interests. Regulations can be made that will apply equitably to all, and your city is now in a position to enforce such a law without unjust discrimination. It is generally accepted by the best au- thorities that, in order to obtain proper sunlight and air in the streets, the height of buildings should not exceed one and one-half times the width of the street. To secure light and air for buildings no building should cover more than 80 per cent, of its lot, leaving 20 per cent, for inside courts and light shafts. These reg- ulations being general and applying to the whole city would be perfectly fair, logical and scientific. The public spirit of the individual citizen cannot be depended upon to regulate this subject. The speculative instinct, and the interests of individual property owners will naturally prompt them to secure the greatest advantage, as is well illustrated in New York City. These regulations are therefore of im- portance. If a building is set back, after it has reached the maximum height allowed so as to preserve the angle of light, it may be allowed to extend higher over the lesser area; so that while not restrict- ing the total height of the building, the light in the streets is secured and the owner of the lot himself is protected from having his building harmed by high build- ings on the adjoining property. The exact proportion that should be built up and the exact amount to be recessed are matters for serious study and discussion. We recommend that some definite policy in regard to building heights and the area which may be covered should be adopted at once. Such a policy will make the necessary widening of main arteries of traffic in the business section a compara- tively easy and rapid process, as the owner of a lot on such a thoroughfare which is now only 66 feet wide may, by setting a new building back the required 17 feet, have the privilege of raising it 51 feet higher than its neighbors on the old build- ing line. This will be of immediate gain to him, aside from the ultimate advantage that his property will share when a whole block or street has been widened. Numerous suggestions for building reg- ulations that will protect the streets and still allow individual owners to have free- dom of design have been made. One that is worthy of consideration is that owners be permitted to erect towers to any height they wish provided these towers do not occupy a superficial area greater than one-quarter of the lot and that they are set far enough back from the building line to preserve the proper angle of light to the street. This limitation assures neighboring property owners against having their light and air space invaded, while the erection of the towers, each face of which should be treated architecturally, .will add greatly to the picturesque appearence of the City when viewed from a distance or from a height. It should be possible for one owner to purchase of his neighbors their tower privilege and then erect a tower on his property of larger superficial area, pro- vided always that it does not interefere with the community's interest in the street. The neighbor who has sold his privilege is thereby debarred from erecting a building on his property to exceed the height fixed for the building line. 18 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS Eatlroab ^la^a It is most unfortunate that it has been the custom to neglect the front door of the town, that portion through which the stranger first enters, and which under modern conditions is the railroad station. This is the vestibule of the City and when entering through this gateway the best impression should be presented. The practical necessities of traffic have compelled the Railroad Companies to give thought to this question, as the space for carriages, express wagons and facilities for handling freight were entirely inadequate in the old order of things, and seriously hampered the business of the Railroad. Consider for instance the entrance to New York by people arriving at the Grand Central Station, in the heart of the town and in a comparatively well ordered sec- tion. The New York Central has now found it necessary with its comparatively favorable conditions to change its plans and to develop the approach to its station so that it may provide ample clearances, plazas and open spaces for traffic. It is obvious that in bringing a large number of people to one point the problem is not solved, but the further problem remains of distributing them to their various destina- tions. So a plaza or at least sufficient space for the various methods of local travel is necessary. As an object lesson we may point to Cleveland, Buffalo or almost any American town where the conditions have been ex- tremely bad, and compare them with most of the European Cities. Even in con- gested and over-built London there is ample space around the railway stations. American cities are now realizing their handicap and have begun to provide adequate approaches to their stations. Pari ot ihe Proposed Railroad Plaza on Oakes Slreel Between Ionia and Commerce Slreets A Railroad need nol Make its Neighborhood Ugly, Bilbao, Portugal Space before Public Buildings adds to (heir Dignity and Beauty, Berlin 19 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS In Grand Rapids you have an appropri- ate and handsome railway station, but with no setting and no approach. Some im- provement, such as opening up a pubUc square to reUeve congestion and emphasize the entrance to the City is absolutely necessary. The property in the neighbor- hood of the station, though having some value, is not so expensive as to prevent the consideration of this scheme within reason- able bounds of expenditure, as, for instance by the acquisition of a strip at least 100 feet wide on either side of Oakes Street and extending from Ionia to Commerce Street. Faith in the future business im- portance of your city would dictate a much larger plaza. We call your attention to a view included in this report showing the Grand Trunk Station and the Bridge Street Bridge, which in its way is a step in the right direction and is exceedingly attractive. The approaches in this instance and the clearances around the station seem to be adequate and in proportion to the service which is provided by the railroad. In addition some understanding should be reached between the City and the rail- roads with a view to making the main lines as attractive as possible. In England pri- vate associations, village improvement so- cieties and others have made a study of this problem, prompted by public opinion, and partly by citizens and partly by the rail- roads on their own account, have taken the matter in hand so that the railroad lines are attractive, orderly and clean. The Pennsylvania Railroad in our own country has adopted the same method of keeping the embankments in good order, planting hedges and having some regard for the appearance of the landscape along its right of way, and at least minimizing the necessary objections. We believe that appreciation by the public of the possi- bility of satisfactorily solving this problem within reasonable bounds will bring about on the part of the railroads that kind of cooperation that will produce desirable results. -ij^m^s^. The Civic Center on which Cleveland is Spending from $15,000,000 to $18,000,000 Two of ihe Buildings in the Group are Already Erected 20 ^ [^ J^O L^yv Tr\ //^ Sr- 6VGGE3TED CIVIC CENTRA FOB^THE CITY OF GKANDRAPID5 niCfilGAN Oai^es This rough sketch of a proposed civic center is to be taken as merely suggestive, showing the possibilities of the site which the com- mission's advisers beheve is the best in the city. If the block bounded by Fulton, Sheldon, Island and LaGrave streets, and the two corners needed for the extension of Monroe Street are acquired in the near future, the rest may be secured piece by piece at such limes as the city can get it cheapest, which means before the erection of expensive private buildings upon it. The architecture of private buildings facing this civic center should be in harmony with that of the public buildings, of which the library is the example. PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS Ciiiic Center The advantage of grouping the main public buildings is manifest. The build- ings themselves having a monumental or advantageous setting will appear to better advantage and will be very much more convenient, as certain buildings are natural- ly related to each other in their functions. The beauty of the group in the center of the City increases values of the surround- ing property, lends dignity and harmony, stimulates civic pride and creates respect for the buildings themselves. The importance of civic pride must not be undervalued, and establishing parks, planting trees, cultivating flowers, keeping public buildings in good condition are all incentives to good citizenship. In some neighborhoods guilds are formed for the preservation of public property so that pride in the City develops and increases. The existing pubUc buildings in Grand Rapids have not been placed with any re- gard to their relation to each other, and since it is impossible now to improve this condition, a new civic centre should be created. After examining the location of the present buildings and other suggested sites our judgment is that the present Ful- ton Street Park is the most available for the purpose. The Library and the Press Building make a good beginning. The proposed Civic Building is an immediate necessity and should be brought into re- lation with the existing buildings in such a manner as to establish a suitable scheme for a civic center of which it will form a part. The proper planning of this civic center is in itself a difficult and important prob- lem, which will require much study, but we believe, that considering the conditions. an unsymmetrical plan may be devised which will be harmonious and satisfactory. It is obvious that it would be of great advantage to extend Monroe Street so that it would connect with State Street but Westminister Church prevents its being extended in a straight line. However, it would be rather picturesque and on the whole entirely practicable to extend this street on the lines of least resistance, that is to say, by a slight curve as shown in the accompanying rough diagram. This would require the purchase of the block bounded by Fulton, LaGrave, Sheldon and Island Streets — the part north of the alley being turned into a plaza and the part south of the alley to be used as a site for public buildings. It would further require the purchase of corners of two other blocks now vacant or occupied by old and in- expensive houses. With the Press Building and the Library already on the square, a public building at the corner of Park and Bostwick Streets, perhaps a museum or a school of design corresponding with the Library, might be added to further carry out the idea of a civic center. Other buildings in the course of time would naturally follow on sur- rounding property. This scheme could be expanded into one of much greater mag- nitude; but restricting our consideration to the property which we have already men- tioned, it is the beginning of a center which will be very attractive in itself, and which offers great opportunities for the future, besides being most convenient of access since it is near the meeting point of the largest number of the city's great traffic arteries and on nearly all the street railway lines. 21 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS ' ^ I' '->A..7r_ ""^lLi ^ ■Ail The Proposed Civic Center of St. Louis PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS %^t Eiber It is unwise to consider Grand Rapids in comparison with the great capitals of the world, such as Paris, Vienna and Ber- lin, although we may receive valuable suggestions from what they have done in creating great monumental places, long vistas, and grouping a large number of ornate buildings. Grand Rapids is essen- tially a business City and a City of homes, which is all the more reason why it should be convenient and beautiful and why its future monuments and important build- ings should be skillfully grouped and the business streets made attractive. Com- mercial buildings may be handsome and a civic centre may be planned which will im- press both citizens and strangers with the City's dignity and commercial importance. There are however many cities which we can profitably study, such as Lyons, Antwerp, Rotterdam, Hamburg, Bremen and a score of other industrial and com- mercial centres. These cities have solved problems similar to yours in a manner that aas not only added to the convenience of 3usiness but has made them so beautiful that every year they attract thousands of strangers. In fact, the successful solution of the problems of a busy commercial town, those of carrying on business under perfect or nearly perfect conditions, is in itself a powerful attraction, as witness the crowd which assembles to watch any operation that is being conducted in an effective manner, whether it be the erection of a building or the decoration of a show win- dow. We are beginning to realize that convenience, order and cleanliness are business economies which we cannot af- ford to neglect. Moreover these produce harmony and beauty which are positive financial assets. The supremacy of Venice was based upon its commerce and manu- factures, but its beauty has secured its continued prosperity for 400 years after it lost the trade of the world by the dis- covery of an all-ocean route to India. The commercial and industrial cities of Europe have developed each in its own way, but they have all turned their faces instead of their backs to their waterfronts, which are bordered with quays and em- bankments or tree lined boulevards. Grand River offers your City a similar opportunity. It is the distinguishing fea- ture of the City, and should be treated so as not only to provide for commerce, but to add to the dignity and beauty of the town. The river in its present condition and until the scheme for a Federal canal across the State materializes is not adapted to commerce. Until such time as it may be- come navigable it should be treated as an ornamental feature of the town, which so far has been sadly neglected. The river front has evidently been con- sidered the back yard of the town and the splendid opportunity for making it the principal ornamental and distinguishing feature of Grand Rapids has been lost. If the power dam which now stands at 4th Street had been built below the Fulton Street bridge, the same sheet of water which now exists above the dam would run throughout the entire city. Above the dam the fact that there is plenty of water in the river makes its beautification and the treatment of its embankments and the buildings abutting thereon, a com- paratively easy matter. On the West bank above the dam the new flood wall has already improved the banks of the river. While it is now some- what monotonous and raw in color, time will soften this objection, and planting, whether of trees or bushes, along the top will greatly add to its appearance. But more than this it offers an opportunity to secure a river drive such as few American cities can possess. From Sixth Street north to the Widdicomb Park land it is entirely feasible to take an eighty foot strip run- ning directly behind the wall. This strip would interfere with only two buildings and with them it would mean compara- tively slight alterations. This road will be a most attractive drive and will lead to the beautiful country north and west of the 23 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS Behind the Flood Wall Along the Proposed Riverside Street "The life history of humanity has proved nothing more clearly than that crowded populations, if they would live in health and happiness, must have space for air, for light, for exercise, for rest, and for the enjoyment of that peaceful beauty of nature which, because it is the opposite of the noisy ugliness of towns, is so wonderfully refreshing to the tired souls of townspeople." Charles Eliot, Landscape Architect Another View o( the Route for the Proposed Riverside Street City. In the future it may be extended to connect with a drive north of the Grand Trunk bridge along the river edge. More- over when Grand River is made navigable it will prove a considerable aid to com- merce since it may then be used as a quay. A more immediate result will be that buildings hereafter erected along this stretch will naturally turn their fronts in- stead of their rears towards the river. The material taken from the river bed and thrown over the wall will form a foun- dation for the roadbed without extra ex- pense. In order that this street may be of the greatest value to the city, the cross streets which now stop at Front Street, should be extended to connect with it. This improvement will give the people free access to the river and make possible the maintenance of floats and barges for bathing and boatmg, privileges now denied to the citizens of Grand Rapids unless they are willing to take long journeys into the suburbs. Added to all this is the fact that such a road with the cross streets open to it would considerably reduce the fire hazard of the West side. On the East bank of the river above the power dam the Grand Trunk embankmenf may be embellished by planting trees or bushes which will not only add to the beauty, but eflFect an economy in main- tenance by lessening the wash during times of flood, as the roots hold in place earth which is now easily carried away by the stream. The freight spur above the Grand Trunk bridge might advantage- ously be set back a short distance so as to afford space for planting a screen of trees. Below the dam the present condition of the river itself is most unattractive owing to the fact that during a large portion of the year much of the river bed is exposed and unsightly. It is most desirable that a serious effort be made to improve the ap- pearance of this part of the river and to increase the amount of water without in- terfering with practical considerations. This, we understand, is provided for by Mr. Cooley's recommendations in accord- ance with which the city is now working. And though they may take some time to 24 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS develop they promise the best and most economical permanent solution. Assuming that in the future there will be deep water up to and perhaps beyond Bridge Street bridge, we advise a scheme which will enable you to use this water- way to the best advantage when it becomes a reality and which meanwhile will make the stretch between Fulton and Bridge Streets as attractive as possible. If vessels are to pass through the City in the future, space must be reserved on the west bank for a canal and locks con- structed to carry them past Bridge Street bridge and to lift them from the lower to the upper river. This space may now be readily acquired; but, in case of delay, it may be used for other purposes and the expense of making the cross state water-way will be greatly increased. If the river is to be deepened up to Bridge Street the permanent concrete or masonry bridges which you will undoubt- edly erect must have bascule draws. But it is not sufficient that vessels should be able to pass through Grand Rapids; pro- vision should be made for them to stop there to load and unload cargo. Nor should the west banks of the river undergo the same awkward development that has taken place on the east side. To-day when power may • be transmitted great distances by electricity it is no longer necessary or even advantageous for factories to be sit- uated on the river's bank, and such land is more valuable for other purposes. We therefore suggest that you not only acquire enough land on the west bank for the proposed locks and canal near Bridge Street but that you adopt the following plan: that you will acquire all the land between Front Street and the river from the present power dam to some distance below Fulton Street. This would provide all the space that is likely to be needed for the canal and locks and would assure adequate room for a great quay in the future. Meanwhile it could be converted into such a river-side park as Hartford, Springfield and many other cities are cre- ating at considerably greater expense than would be involved in this case. Here is Opportunity. Shall the City Build a Flood Wall to Protect all thii Property and then let it go through the Same Ugly Development as has the East BankP Or shall it Acquire the River front for the Public? "But during these later centuries at the very time that the city has become distinctly industrial and daily labor is contin- ually more monotonous and subdivided, we seem to have de- cided that no provision for public recreation is necessary. It would be interesting to trace how far this thoughtless con- clusion is responsible for the vicious excitements and trivial amusements which in a modern city so largely take the place formerly supplied by public recreation and manly sports. It would be illuminating to know the legitimate connection be- tween lack of public facilities for decent pleasures and our present social immoralities." Jane Addams, Hull House, Chicago This Picture Illustrates the End of an Era 25 m a S a 3 to A H*< 1 i a, ^ S s -13 4> o a "I PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS Id Lyons, France, there was a Situation much like that on our East River Bank Our Opportunity was Almost as Good as that of the People of Lyons We have Made Use of This Opportunity If the expenditure required for this pur- pose seems too great it is well to remember that the city of Hartford is spending three million dollars on her river side park and bridge and that the great sums that have been expended on water front improve- ments throughout Europe have proved profitable investments. It is advisable to consider the facades of the buildings facing the water as impor- tant fronts, so that the river will be treated as an important artery of the town and its chief ornament. On the east bank from Bridge to Fulton Streets, where it is in- evitable that nearly all the land will be covered with buildings built flush with the flood wall, we especially urge that the river facades be treated architecturally. In this way, as we see in Florence and in many picturesque European cities where similar conditions prevail, an interesting and im- pressive effect may be secured at very little cost. In the meantime, as new buildings may be slow in rising, those already in existence may be improved by the addition of a cornice or a balcony or other simple architectural embellishments which will entirely transform the appearance of the ordinary box-like factory building. The , clearing away of refuse and the planting here and there of a few trees and vines would work an immediate change for the better, the effect of which from the other side of the river and from the bridges will be surprising. Below Wealthy Avenue reservation should be made on the west side low land for a harbor where vessels may lie while loading or unloading. This reservation may, until needed for its utilitarian- pur- poses, be used as a park. This will avoid the necessity of surrounding it with flood walls and still preserve it for the purpose which, if your desires are realized, will make it vastly more valuable to the com- munity than if built solid with factories. Below Fulton Street on the east side all the land now owned by the city should be retained either for its present use as a mar- ket or for a park ; and a street along the water's edge should be built from Fulton Street to the market. 28 ■ 4: e -C H o * 5 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS pouletiarbg anti ^arfetoapsi In treating the street system we have suggested that the great radial and con- necting thoroughfares where they He out- side the business district may easily be transformed into boulevards by planting trees and grass and by encouraging owners of residences to build their houses far enough back from the sidewalk line to give an effect of spaciousness. These bou- levards, like the great business thorough- fares of which they are a continuation, should be at least 100 feet wide from build- ing line to building line. Occasionally it may happen, as on Lake Avenue between Fulton and Cherry Streets, that the plat- ting of lots has been made in such a manner that it will be impossible to secure this width without partially destroying the value of the little lots on either side. In such cases it will probably be necessary to be satisfied with a narrower street, but in every case the width should be made as great as possible for the benefit not only of the City as a whole, but of the property owners. Fortunately in most instances the lots are quite deep so there will be no question either of the advisability or the possibility The Corner Formed by Two Radiating Slreels i> ihe Logical Sile tor a Monumental Building 31 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS Scene on Plaster Creek These Hillf along Valley Avenue are Parle Lands in Their Present Condition of widening the ' streets that are designated as boulevards. In fact this is so desirable that even over short distances v^^e believe ov^ners of residence property who have the land to spare will soon become alive to the advantage that it offers them. For this reason we recommend an ordinance by which, when the majority of the prop- erty owners on one side of a block on any residence street will agree on the estab- lishment of a new building line, it shall be unlawful for anyone to build beyond this line unless he secures the formal con- sent of at least a majority of his neighbors. It seems advisable that the following streets be treated as boulevards and that in the future no buildings on them be erected nearer than 50 feet to the center of the street, and that wherever possible this dis- tance be increased so that these streets may ultimately be from 120 to 150 feet wide, a width which permits of tree planting in the center as well as along the sides. This method of treatment has been adopted in many progressive American cities and in the short stretch along Madison Avenue beside the playgrounds there is now an indication of its effectiveness. The boulevards recommended are as follows: On the west side of the River provision should be made for wide boulevards, lined with trees and grass, extending to the North of North Street along the river or a little back at the foot of the hills, through Walker Avenue beyond Valley Avenue, along Bristol Avenue from Walker to John Ball Park and connecting with Valley Avenue at Fourth, Bridge and such other streets as may be opened, and through Butterworth Avenue from John Ball Park. On the east side Plainfield Avenue be- yond Sweet Street should be treated as a boulevard. East Street and Fuller Street should be extended without jogs until they connect with Plainfield Avenue. Existing jogs in these streets which should extend the entire length of the City should be rectified when practicable. Whenever it is possible, as on East Street, from Cold- brook north and from Dickinson south 32 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS where connection is made with the pro- posed Reed's Lake boulevard, and on Fuller Street, from Fulton north, these streets should be treated as boulevards. East Fulton Street from the Civic Cen- ter to Union, and Lake Avenue from Union Street to Cherry Street. Madison Avenue from Cherry Street south to Plaster Creek, like East Street, should be a boulevard, with the exception of the business stretch from Hall to Oak- dale. Hall Street from Madison east. The proposed extension of Dickinson Avenue through the Silver Creek valley, (except where it expands into a park). Burton Avenue. Robinson Road from Lake Avenue, and beyond should all be boulevards. The road between Reeds and Fiske Lakes should be kept as a boulevard or parkway. This will lead from the Silver Creek boulevard to that on Robinson Road and this along the course of Cold- brook to the northern part of the City and Plainfield Avenue. The Plaster Creek parkway will connect with the Grand River boulevard and this will connect at Grand ville with the west side drives. Parkways, which are thoroughfares widened and treated with parking, add great dignity to a city and are especially appropriate as approaches to parks. The approach to John Ball Park for at least two or three blocks along Fulton Street abso- lutely requires parking. The present ap- proach is unworthy of the City's great pleasure ground. There should be a strip of at least 100 feet wide on either side of the street which will be practically a great arm of the park extended toward the city. A similar parkway should be created around Reed's Lake, extending from the water to the crest of the hills. This would not only be a great asset to the City but it would solve the difBcult sanitary prob- lem which might arise if houses were built on the slope of the hills so that their sewage would flow into the lake. The Valley of Plaster Creek is Today a Park. But unless the City Acquires Title it will soon be Cut ioto Poor Building Lots "The City Beautiful is no longer a dream, a mere aspir- ation of the idealist. It is becoming in many directions an accomplished fact, largely because of the great growth of the national impulse for a civic improvement." Clinton Rogers Woodruff, Secretary American Civic Association The Streams that Flow Through Grand Rapids make Natural Parks 33 u. Ik. !• PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS ^arfes anb ^ilteibesi Grand Rapids is peculiarly fortunate in having several beautiful natural parks within its borders, and many in close proximity. All that is necessary is to grasp out and annex them. But unless this is done soon the ragged edges of the tov^^n v^ill extend and spoil them. The first of these is Plaster Creek on the south. A short distance north of this is Silver Creek which flows through a beautiful little valley that offers an ideal connection be- tween Plaster Creek and Reed's Lake. Still further north is Coldbrook which rises in Fisk Lake and flowing in a north- westerly direction offers opportunity to beautify a very considerable part of the City. Beyond this is Carrier Creek which offers equally good opportunities. In all of these cases an effort should be made to secure the stream valley to the crest of the hills. Cleveland has given an illustration of how such an opportunity may be utilized. Its effect in increasing real estate values throughout the district should convince property owners of the wisdom of giving this portion to the City, now almost valueless for building sites, because of the profit they will reap on the remainder of their holdings. Plaster Creek from its mouth at least as far as East Street should be treated as a parkway, occasionally swelling out to the dimensions of a park. Silver Creek from East Street to the Lake should be similarly treated with a park located near the middle of its course. This would necessitate the removal of the Pere Marquette spur, but as this is of compar- atively little value now, serving only the ice houses at the lake, and as it will be of less value when the Belt Line is built out- side the lake, the City would probably be able to make the necessary arrangements with the Company. Coldbrook from its source in Fisk Lake to the settling basin should have at least a tree shaded foot-path. Occasionally where The Valley of Carrier Creek is One of the Most Beautiful Natural Parks in Grand Rapids, East of College Avenue it is still Unspoiled, as the Picture above Shows. Bui West of College Ave. Cheap Buildings have already appeared. It we are to save the Eastern End of the Valley and Reclaim the Western we Must Act Soon Poor Building Lots hul Good Park Land. Carrier Valley Weil of College Ave. 35 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS HilUides Along Norlh Ionia Street "Remedy for a bad plan, once built upon, being impracti- cable, now that we understand the matter we are surely bound, wherever it is by any means in our power, to prevent mistakes in the construction of towns. Strangeto say, however, here in the New World, where great towns by the hundred are spring- ing into existence, no care at all is taken to avoid bad plans. The most brutal pagans 'to whom we have sent our missionaries have never shown greater indifference to the sufferings of others than is exhibited in the plans of some of our most promising cities, for which men now living in them are responsible." — Frederick Lam) Olmsted. This Use of Hillsides is not Good Economy it follows existing streets the chance is of- fered for more dignified treatment, and in such reaches as those beside Fuller and Carlton Streets where there are hills on the farther side with a little valley between, there is an opportunity for a unique park treatment which will add greatly to the pleasure of living in its neighborhood and to the value of surrounding real estate. The stretch from Fuller Street to High- land Park should be straightened so that the stream will no longer flow through alleys and back yards. If the Grand Trunk refuses to surrender part of its right of way the City might acquire sufficient private property to the north to permit both street and brook. Between Highland Park and College Avenue more land along the brook should be secured both to protect it from pollution and to open the park to access from the west. Carrier Creek valley offers in some re- spects even greater advantages to property owners than any of the others. East of College Avenue in its present condition it is a perfect natural park. What will hap- pen if it is not preserved as a park is indicated by what has happened west of College Avenue. Grading streets and lay-* ing sewers in such a locality is extremely expensive. As this narrow valley is not a desirable place for residences, it will be occupied by the cheapest class of build- ings, which will depreciate the value of pro- perty on the hilltops overlooking it. The possibilities that once existed in the north- eastern part of Grand Rapids have not been realized on account of the unfortu- nate system of gridiron streets. It is not too late, however, to save the most beau- tiful feature of this district, also to rescue the part of the valley which lies west of College Avenue, extending the pai'k to Mary Waters field. Reservoir Park. Across the Grand Trunk tracks from the settling basin are the reservoir hills. These are at present conspicuously ugly, but they might be made one of the greatest attractions of the city. From their summit may be obtained the widest and most interesting view in Grand Rapids, the busy streets below 36 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS forming the foreground, and the river leading the eye far beyond the town to the wide valley and the blue hills in the dis- tance. This site should by all means be secured as a public park. These hills have houses at their base and on the summit but the sides are neglected and barren, and should at least be planted with trees so that they may become beautiful features of the City. The arrangement of houses on the hills, as in the case of the Black Hills and those along Valley Avenue on the west side, may greatly modify and affect the appearance. It would be a decided improvement if when streets are laid out along the crests and the foot of such hills, the houses are built so as to face outward instead of turn- ing their backs to the slopes. With our improving taste in architecture, pretty houses on a crest of a hill, if framed with trees, would be a pleasing addition to the city's appeara:nce. The Board of Public Works, by insisting upon such a scheme before it accepted a plat, could, during the next few years, greatly benefit Grand Rapids. ^laj> #rountis! The importance of adequate play-grounds is now generally recognized and their good effect upon the morals of the community is admitted by all who have given the subject any attention. The play-ground originated as a substi- stute for the street and as a means of preventing the evils which occur there. As a preventative measure against crime its existence is more than justified as the records abundantly prove. In Chicago, where careful statistics have been prepared, it is conclusively shown that recreation centers may be counted on to reduce juvenile delinquency within a radius of half a mile by 28^ per cent. It is well to appropriate space for play- grounds before the City advances to a point when property becomes extremely valu- able. As the traffic increases and the streets become more congested, spaces for recreation purposes become imperatively necessary and are proportionately difficult to acquire on account of the expense of the land. We shall not suggest locations for play- grounds as they can best be decided locally after study of the school census, the Juve- nile Court records and in consultation with the property owners. We recommend that playgrounds or rec- reation parks for boys and young men, large enough for organized games, be placed not more than one mile apart. For the younger children there should be at least one playground in each school dis- drict, preferably beside the school. The schools and their playgrounds often de- velop into local civic centres about which are grouped the public or semi-public buildings of the neighborhood, such, for instance, as public baths, branch libraries and churches. The grouping of these buildings about an open space will do for the neighborhood what the great civic centre does for the city, give it dignity and individuality and serve as a gathering place for the people when any common interest draws them together. We wish to com- mend in passing the unusually attractive appearance of your school grounds at present. The sense of civic pride which has brought them to their present con- dition needs only to be a little further developed to bring about the neighbor- hood centres which we have suggested. It is perhaps scarcely necessary to say that the purchasing of land for recreation or park purposes does not necessitate its immediate development. It may be held, it may be cultivated, or it may bring in small revenue if necessary, but the fact that the park is eventually to be developed, that the city has secured it and settled the char- acter of the neighborhood, will increase the value of surrounding property and will tend to attract population to that district. 37 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS l^orfeingmen's! ^ousiesi Private enterprises for the development of industrial or other centres, the building of w^orkingmen's houses, etc., should be assisted and directed and kept in touch with modern methods in other parts of the country. The Board that we have sug- gested might well make reports from time to time which would be accessible to all classes of citizens and be of value to them in determining these important problems not only in relation to their own interests but in relation to the general effect on the character and well being of the City. The key-note of city development is the treat- ment of the city as a whole, not an agglomeration of units, so that whatever is done will contribute its part to the general result. The workmen's houses and smaller resi- dences play an important part in the City's life. They may be attractive or ugly, and the City gains or suffers accordingly. To encourage the builders of the smaller houses, much may be done to assist them to secure designs that will produce artistic results at a small cost, or at no greater cost than the inferior houses. A Commercial Building may be Perfectly Adapted to its Purpose, May be Simple in its Arcbilecture and stilt be an Ornament to tbe City Much encouragement could be given by the City or by some public organization offering prizes for the best designs for workmen's houses. Competitions could be instituted to secure such designs which might then be given to the builders of the houses; or associations of public spirited citizens inight be induced to buy and develop sections of property and sell them to the working classes, possibly without profit, thus giving a vakiable object lesson and adding to the attractiveness of the town. A few small residences might be erected to show that if they are good in design and color, they need not be expensive. The pride of the house owner is easily aroused if the way is pointed out to him. A healthy competition in this matter might be stimulated as it is in the play- grounds of the schools where such good results have been obtained. Expensive houses are often ugly and in- harmonious, while grace and dignity of design may be obtained in the simplesi? materials. Moreover a poor combination of beautiful houses and spaces does not make a beautiful street nor a beautiful city, but on the contrary a skillful arrangement of simple structures produces a sense of dignity and repose. It is essential in designing a building to bring it into harmony with its surround- ings, as it is the beauty of the whole that counts first, and the beauty of parts second. It is readily understood that an orches- tra in which one musician so excelled all the others that the entire orchestra was out of harmony would be a failure compared with one composed of less prominent performers playing in absolute harmony. On the picturesque hillsides, where the houses are scattered and interspersed with foliage, their color and design are of the greatest importance and it is to the interest of the entire city to assist the owners of these houses to erect buildings that will add to the general effect. 38 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS Jf (nance anb l^egisilation The funds required to meet all improve- ments are necessarily provided for in one of two ways; either by taxes or by borrow- ing money and issuing bonds. Both of these methods have their limitations; the amount of the bonds is limited by the statutes establishing the debt limit, and in most cases (we understand it will be so in your city) there is a limit placed on the rate of tax. It is therefore absolutely necessary that the same method should be adopted with regard to expenditures as with regard to improvements; that is to say, that they should be planned for years in advance on parallel lines with the improvements, so that you may know what your resources are and what you can undertake, and not load the City with obligations which will prevent it from undertaking in the future the things which are necessary and which require study in advance to decide. We believe therefore that just as a com- prehensive plan for the development of the City and its improvements is made, that a comprehensive plan of the probable revenue and its probable uses should be made. It is because, in our judgment, we have spent money only as the need arose without due regard to comparative merit that most of our cities are confront- ed with the serious difficulty of lack of funds to meet urgent needs and without any adequate provision for the future, which is already saddled with a big debt. One single illustration will serve to make the point clear; in the city of New York we issue fifty-year bonds to pay for certain specific sections of paving, Fifth Avenue for instance, from 23rd Street to 59th Street; and yet it is a matter of record that the life of these pavements at the outside is from twelve to fifteen years, so that at the end of the twelve or fifteen years a new issue of bonds has to be made to re- place the pavement, and no adequate pro- vision has been made to refund or take care of the previous issue. In order to carry out any municipal pro- ject in part or in whole it is of course necessary that proper legislation should be on the statute books. We understand that in Michigan the matter is now under con- sideration, and it is important to secure passage of laws that will give you the op- portunity to carry out your project. The objects to be attained by legislative action are as follows: The power to acquire land for boule- vards, parks arid surroundings for the proper setting of public buildings. The power of condemnation of ground for the purpose of widening existing thoroughfares and acquiring ground to extend and modify existing streets. The power of condemning excess land so that the community may profit by the increase in values, or by building restric- tions imposed by the City. The method adopted in some European and some American cities, notably Philad elphia, of planning new streets, parks, etc., in advance and placing them upon the City map, which when once approved by the proper authorities becomes official, is an impor- tant factor in City development as it legally holds this land for the purpose and any improvements thereon are at the risk of the owners as the City may step in at any time and take possession by condemnation proceedings as of the date when the map was made. This means that accurate records must be made showing the con- 39 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS dition of the property at the time the map is made. The natural increase of land values due to the growth of the City must of course be taken into consideration. Few cities, if any, are wealthy enough to provide from year to year the means for purchasing property and making improve- ments indefinitely merely by taxation or bond issues, and scientific city building has developed a method of making each improvement pay for itself so that the credit of the City may not be indefinitely extended. The development of Paris under Baron Haussman for instance was undertaken by this method — the city planning its im- provement and issuing the plans and speci- fications as it would for a building, showing the lines and grades of streets, sewers and other details, and including within these lines as much territory on either side as seemed necessary to condemn, and to re- build in harmony with the proposed im- provement. In determining the amount of land to be acquired on either side of an avenue the City takes enough to make the pro- perty symmetrical and to avoid small tri- angles, gores and odd pieces which have small value in themselves but which be- come valuable when added to other land. In the City of Philadelphia the blocks affected by these improvements are con- sidered as a whole and the land is taken with due regard to the shape, size and adaptability not only of the property that is taken but of that which is left. Adver- tisements are then issued for bids to undertake the entire improvement, and the city lends its power of condemnation to the contractor in buying all the land which is included in the scheme. The excess land is turned over to him to make his profit so that the community at large is benefited instead of private investors. In this way the cost of the improvement is reduced considerably and the consequent additional taxation has in most cases grad- ually created a sinking fund which in a stated number of years has paid for the entire work. It may even be under such an arrangement as this that the contractor will pay the City a larger sum than the actual cost of the work for the privilege of undertaking it. In London, the Kings Highway, which connects Holborn with the Strand, was secured at no cost to the tax payers. The City of London acquired by condemnation proceedings not alone sufficient space for the new avenue itself but land on both sides of it, which was divided into build- ing lots of desirable size. When the avenue was finished the adjoining property be- came much more valuable than it had been and its sale realized sufficient profit to pay for the entire enterprise. As eminent a statesman as Mr. Joseph H. Choate stated years ago that until laws would permit our cities to develop by this method they would not be able to keep up with the requirements of their natural development, much less to provide for the future. In this connection the Municipal Jour- nal and Engineer of Feb. 10th, 1909, says editorially : "One of the most profitable methods of securing 'honest graft,' by which those, having inside or advance information of proposed municipal improvements have become wealthy, is by the purchase of land which will later be required by the City, and will, according to precedent, be paid for at more than its market value, or of land adjacent to the location of proposed improvements and which will greatly ap- preciate in value because of them. The latter is still looked upon as perfectly legitimate, but vast admitted abuses have arisen in connection with the former; deals being frequently suspected and too often proved by which friends of politicians have been able to double or quadruple money invested in such real estate within a few months. New York must in addition pay a Condemnation Commission for assisting in thus mulcting it, which payment is it- self in some cases greater than that paid for the land; but two Constitutional amendments are now proposed, one pro- viding that the condemnation of private 40 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS property for public use should be by a New Court of Record presided over by a permanent judge; the other, that the City may purchase property adjacent to that taken for public improvements and later sell the same at a profit. The former can hardly help but be an improvement on present conditions; the latter will un- doubtedly be if the business transactions involved are conducted on anything like business principles. We would suggest including in each of these a provision that in no case shall the price paid for a given property exceed by more than fifty per cent, the assessed value within a year pre- ceding the acquiring of the property, plus the actual cost of subsequent improve- ments." I^ljat atl)er Cities ^re Boing While much of the beauty of foreign cities may come from accidents and for- tunate circumstances, it is the result prin- cipally of intelligent efforts of men who knew that street planning is an art requir- ing serious study. The artistic and utili- tarian standpoints have both been consid- ered and beautiful cities that have been immensely benefited commercially have resulted. Not only are the more modern cities planned in a skillful way, but the older ones whose remodeling offers great difficulties are successfully meeting and solving the problems that are presented to us. The improvements in Budapest, the great work of Baron Haussman in Paris, the important changes made in London, Vienna and other Capitals are well known. Innumerable smaller towns are also pro- ceeding on the same lines, and throughout Europe the movement for replanning streets, re-arranging buildings, providing increased facilities for commerce is spread- ing and producing the most encouraging results. The interest that has now been aroused in the United States in Municipal im- provements is far reaching and at this date forty -four American Cities are making plans for their development and improve- ment. It is now a recognized fact that an in- telUgent and definite scheme for develop- ment is of the greatest importance to a City, not alone from the standpoint of beauty and civic pride, but of commercial interests and absolute real estate values. The business men of Cleveland believe that the Group Plan for Buildings and Grounds that has been adopted and which is now in course of execution is one of the best investments that their City ever made. This will secure in the heart of the business district a splendid park sur- rounded by the most important buildings, designed and located in relation to each other, conveniently placed and impressive as a great civic centre which will be pre- sented to the stranger when he enters the City from the Railroad Station at the foot of the Mall. The efforts made by other Cities in their plans for improvement are most en- couraging and large amounts of money are being expended with the assurance that the imvestment is a sound one. The finan- cial return to a City from new parks alone is worthy of consideration. Last year Oakland, Cal., voted $992,000 to extend its park system as suggested by its expert adviser Charles Mulford Robin- son. Kansas City, Mo., spent about four and a half million dollars for its parks and boulevards. Construction, maintenance and other expenses have raised this total to nearly eight million dollars. Louisville, Ky., has spent more than two million dol- lars on its parks. Hartford, Conn., has spent three million dollars on one River- side Park and Bridge. The increase in the value in New York during the last few years in real estate facing Central Park has been phenomenal. In Brooklyn, in 1864, when Prospect Park, with its 515 acres of land was ac- 41 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS quired, the assessed valuation of the three neighboring wards was $19,949,395, and at the end of three years the valuation had risen 38 per cent., or over $7,000,000, which, by the way, was twice the value of the land which had been parked. Park Superintendent Edgerton, of Albany, N. Y., says, "the history of Albany is that the value of the ground contiguous to the parks has not only doubled, but quadru- pled and sextupled. One piece of property was worth $8,500 and by the simple ex- penditure of $4,800 on it the value of the property was raised more than forty times in eight years." In their eleventh Annual Report the Park Commissioners of Boston, in refer- ring to the Back Bay improvements, show an increased valuation in eight years of $11,935,449, with a total increase of reve- nue from taxes of $280,734. Mr. W. H. Harmon, Secretary of the Chicago Park Department, in a letter to the Secretary of the New York Park As- sociation, says, in reference to the efFect of parks upon the value of adjacent land: "The immediate effect was to double and quadruple property." Bulletin No. 3, Park Department, American Civic Association, states, "The pecuniary advantage of parks is thus spoken of by the Secretary of the Park Board in Brookline, Mass. Beacon Street was widened into a parkway at a cost of $615,000. In six years the increase in as- sessed values of land on each side of the street throughout the entire length, and for an approximate distance of only five hundred feet from the side line, is $4,330,- 400 with no allowance for any increase in personal estate incident thereto. The Beacon parkway is, therefore, paying for itself long before its most zealous advocates thought it would, and is striking proof that well-considered plans for large public improvements of this kind are profitable adventures." D. F. Murphy, of Louisville, Ky., a former city assessor, says that the city has made a direct financial profit from its parks of $1,600,000. The increase in taxable land values because of parks he puts at $20,000,000, the increased annual income at $372,000. Going back only ten years this aggregates $3,720,000. As the parks cost $2,070,000 he gets the direct profit of more than $1,600,000 and this takes no account of incidental benefits. As these figures indicate results in larger cities, (Louisville had 204,731 inhabitants in 1900 and 222,660 in 1905, a considerably greater gain than Grand Rapids made in the same period) we will quote from the report of the Madison, Wis., Parks and Pleasure Drive Association for 1907 (Madison had 19,164 population in 1900): "There is now being turned into the City Treasury in increased taxes by reason of this (park) work, on the basis of the tax rate of last year, not less than $28,000, and the greatest financial benefit from the establishment of our drives, parks and playgrounds has not yet come to the City. But even now the City is receiving not less than $20,000 annually in excess of the amount expended to maintain the parks each year. Two years ago there was a sHght criticism in certain quarters of the* action of the council voting $19,500 of city bonds to aid in the improvement of Henry Vilas and Brittingham Parks. At that time I stated as a conservative estimate, that within two years after these parks were completed the assessed valuation of that portion of the City would be increased by AAA^^'^n?/ ^^^®® P^"^^^ "°^ ^^ss t^an $300,- 000. The assessed valuation in the fall of 1904 was $856,000. The assessed valuation in 1906 was $1,310,220, or an increase in two years of $454,220; and neither of the parks IS yet completed. Lots located in the vicinity of Henry Vilas Park, which sold in the fall of 1904 for $300 to $350 ^f ?An , ''''^, ''^^" '^l^i^g for $1,200 to *1,S00 each. These parks and open places are worth all that they have or will cost- even from the low level of dollars and cents Madison could have made no better investment." _ The estimated value of the park lands m Grand Rapids is only a httle over 42 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS $400,000 and practically all of these parks have been gifts. Compared to other cities of its class Grand Rapids has made a splendid record in increase of population and in development of its commercial resources, but in the number and size of its parks it is far below the average. In closing this report w^e wish to ac- knowledge the valuable assistance that has been rendered to us in its preparation by your Secretary, Mr. John Ihlder. Respectfully submitted, ARNOLD W. BRUNNER, JOHN M. CARRERE, New York, April 7th, 1909. To the Comprehensive City Plan Commission, Grand Rapids, Mich. What Denver Has Planned 43 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS Contlusiion In order to carry out the recommendations of this report, a Permanent City Plan Commission seems a necessity. There is in our city government, as in most American city governments, an apparent lack of co-operation between the various city departments, w^hich not only results in the waste of duplication and reconstruction, but which necessarily makes each depart- ment pursue its own work without consideration for all the needs of the city present and future. Such a policy is extravagant and foolish, for it prevents the realization of opportunities easily within the city's grasp if public improvements were undertaken along broad lines and after thorough consideration of all the factors that enter into them. We therefore recommend the creation of a permanent City Plan Commission which shall consist of the Mayor, the City Engineer, the heads of the various city departments that have the most to do with public improvement work, the chairman of the council's ways and means committee and three citizens. This Commission should have at its disposal a fund which will enable it to secure outside, expert advice. It is no reflection on local officials, who are constantly working at a mass of details, to say that outsiders who have had experience of similar problems, who know how efforts at solving these problems in other cities have succeeded or failed, may be able to give us advice which will save mistakes many times more costly than the fees we may pay for that advice. The Commission also recommends to the common council the adoption of a policy looking to the systematic carrying out of the foregoing suggestions during the coming years. Each year should see some progress made and each year's work should be planned with reference to the work that is to follow. If such a policy is adopted and the cost spread over a decade, during which the work will steadily progress, the city will at the end of that period be both a far more valuable commercial asset to its people and a far pleasanter place in which to live. Morever these desirable results will have been achieved without a heavy burden having been imposed upon the tax payers while at the same time the improvements will have increased the value of property. The Commission has secured through General Manager Freshney, of the board of - public works, estimates on two of the proposed improvements. Others asked have not been furnished because the department could not give the necessary time. The first improvement for which an estimate was furnished and the one which the Com- mission believes should be the first undertaken, because of the other work being done in the district, is the railroad station plaza. The assessed valuation of all the property on the strip between Ionia and Commerce Streets and for a distance of 100 feet on either side of Oakes Street, excepting the Crathmore Hotel and the building north of it, is $34,900. All of this property is cheaper now than it is ever hkely to be in the future for it is either vacant or occupied by buildings of small value. The Crathmore and the buildings beside it, which are assessed at $47,500 could be secured later and perhaps moved to another corner. The cost of this improvement would be largely defrayed by the increased value of other land in the immediate vicinity. 44 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS The second improvement on which Mr. Freshney furnished an estimate was the pro- posed riverside park between Front Street and the flood wall and extending from the present power dam to 600 feet south of Fulton Street. The actual value of this property he put at $500,000, the cost of purchase and condemnation proceedings at $5,000, and the cost of concrete walks, shrubbery, sodding and seeding at $25,000, making a total of $530,000. If this seems large, compare it with the $3,000,000 which Hartford is spending for a similar purpose. On the cost of building the proposed 80-foot road along the flood wall from Sixth Street to John Widdicomb park the department has as yet been unable to furnish an esti- mate. What the proposed civic center will cost depends entirely upon the plans which may ultimately be adopted for its development. But as this development will not in any case be completed for many years it is needless now to try to figure on it. The present proposal is to secure only the block bounded by Fulton, Sheldon, Island and LaGrave Streets and enough other land on two corners to carry Monroe Street through to State. The city has already decided to buy one of these corners while half of the block mentioned would afford the ideal site for a civic building which the city now needs. Several of the recommendations in the report involve either no expenditure of money or of very little at a time. They may therefore be adopted at once, so that we may im- mediately begin to enjoy their benefits. These are the limitation of building heights, the acceptance of brook valleys and hillsides as parks and parkways, the improvement of housing conditions, the creation of a permanent city plan commission, an ordinance authorizing the widening of the streets specified, the adoption of- a poHcy which will secure us wide main thoroughfares in the district outside the present city hmits and the adoption of a financial policy coincident with the proposed improvements. Financial conditions of Grand Rapids as compared with all other cities nearest it in population. 1 2 3 4 5 6 7 8 9 10 11 CITIES Fall River, Mass Atlanta, Ga Seattle, Wash Dayton, O Grand Rapids, Mich. Cambridge, Mass Albany, N. Y Hartford, Conn Lowell, Mass Reading, Pa Richmond, Va. POPULATION 105,942 104,984 100,799 99,794 98,544 98,537 95,822 95,173 91,141 87,246 VALUATION AT 100 PER CENT. $ 83,392,350 133,445,170 209,624,180 87,767,110 96,295,000 105,153,235 79,037,120 91,254,784 74,325,775 67,385,924 109,997,984 TOTAL DEBT \ 5,888,208 3,620,478 11,277,384 4,225,099 2,369,471 10,553,950 4,340,930 7,835,901 4,328,231 2,455,723 7,771,141 TOTAL DEBT OBLIGATIONS PER CAPITA i 55.58 34.49 41.92 23.74 107.10 44.05 81.78 45.48 26.94 89.07 LESS SINKING FUND ASSETS PER CAPITA $36.53 29.13 39.03 22.93 81.24 27.97 66.10 . 37.44 24.07 77.69 VALUE OF PRINCIPAL PERMANENT PROPERTIES $ 6,933,509 7,076,840 11,654,865 5,970,775 5,283,290 16,693,260 7,104,630 12,867,244 9,167,929 5,326,603 10,921,885 *The cities in this list are taken in order of size, none being skipped. The figures are from the U. S. census for 1906, the latest published. Since then there have, of course, been changes, but as the purpose of this table is to show the condition of Grand Rapids in comparison with that of other cities of approximately the same size, the figures above answer the purpose. 45 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS ^ome Hetters ^tbreggeb to tije Citp ^lan Commisigion February 17th, 1909. Mr. John Ihlder, Secretary, City Plan Commission, Grand Rapids, Mich. Dear Sir: — Your inquiry of February 15th at hand. During the last ten years Hartford has done much in the line of public im- provements, and we still have in contemplation several large matters. The new bridge across the Connecticut River has been completed, the cost of which with approaches on both sides of the river, and land taken will amount to about $3,000,000. We are now preparing to erect a new High School which will cost about $700,000 and a new City record building which will cost three or four hundred thousand dollars. In the bridge work, about a half a mile of the river front was reclaimed, old buildings torn down, and the whole district cleaned up, at a great expense to the City. The adjoining property holders are going to gain much more than the cost to the City, as their real estate has increased in value three or four times. The population of the City at the present time is estimated at 106,000. The grand tax list of Hartford in 1890 was $48,541,000, in 1900 $72,813,000; and 1908 $73,000,000. There is apparently no increase during these nine years. This is accounted for by a change in the State Law. In 1900 all insurance stocks and bank stocks were in- cluded and made up the grand list, but they are now taxed by the State, so they do not appear in the list. When this change was made about $15,000,000 was taken out of the grand list which now represents only real estate and personal property located in the various buildings. It does not include any stock in any corporation as it did formerly. The true valuation is undoubtedly at the present time about $100,- 000,000. The State Board of Equalization will not accept our grand list for State or County tax, but add to it $19,000,000 making it $92,000,000 at the present time. We are very much interested in working out a compre- hensive plan for City development through a Commission on the City Plan, which was established three years ago, and we are in comnmnication and consultation with Mr. Carrere of Carrere & Hastings, who I understand is doing a large work in your City. I firmly believe in the value of this service, and can see where many mistakes in the past might have been avoided if we had used the advantages that we are now enjoying, and had looked ahead as we hope to do from now on. Yours very truly, EDW. W. HOOKER, Mayor. Hartford, Connecticut. provement, and have finally hit upon the following plan. We propose to have a Commission appointed by the Legis- lature by means of an amendment to the city charter. This Commission will have power to make plans and to control all building, etc., after the plans are made. Very truly yours, M. D. MANN Buffalo, New York. February 18, 1909. John Ihlder, Esq., Secretary, City Plan Commission, Grand Rapids, Mich. Dear Sir: — In reply to your letter of inquiry of the 15th instant would say: — 1 and 2. We have in mind the extensive improvement of our River Front. A plan is being considered by which this may be done, but, as yet, no definite plans have been made . I enclose a copy of our River Front Legislative Bill. Very truly yours, W. E. SANDERSON, Mayor. Springfield, Mass. March 3rd, 1909. Mr. John Ihlder, • Grand Rapids, Michigan, Dear Sir: — Replying to your letter of February the 15th, I beg to state as follows: — During the year 1908 we expended: In Grading and Sidewalking In Planking and Paving In Construction of Sewers In Construction of Water Mains In the Installation of Cluster Lights Making a total of $1,592,692.43 1,388,261.01 331,479.42 476,496.82 31,769.76 $3,820,699.44 February 17, 1909. My Dear Mr. Ihlder: — We have been working at the matter of municipal ini- This does not include money spent upon our public parks, amounting to practically $562,000.00, which would make a grand total of expenditures in public improvements of approximately $4,385,000.00. As to your second question, we have not yet undertaken the establishment of a civic center, but we are making some very radical changes in our city's surface by reason of re- grades and by widening streets of only 66 feet width to widths of 84 and 90 feet. We have in contemplation, the construction of a sea wall along the water front. (3) These improvements have more than quadrupled the value of abutting property. Very truly yours, R. H. THOMSON, City Engineer. Seattle, Washington. 46 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS February 22, 1909. Mr. John Ihlder, City Plan Commission, Grand Rapids, Mich. Dear Sir:— Your letter of February 16th has been forwarded to me for reply. 1. Through a recent bond issue the City of St. Louis will spend in the next two years $12,000,000 for public im- provements in the form of small parks, boulevards, sewers, public buildings and eleemosynary institutions. 2. If you will consult "A City Plan for St. Louis" a report made by this organization and a copy of which was sent your committee, you will see what we are attempting to do in the creation of civic centers, etc. 3. We are confident that all of the improvements will cause a definite increase in the value of taxable property and a resulting increase in revenue to the city. Very truly yours, MAYO FESLER, Secretary. St. Louis, Missouri. Civic League February 19th, 1909 Mr. John Ihlder, Secretary City Plan Commission, Grand Rapids, Mich. Dear Sir: — Under a separate cover I send you a large descriptive book, showing the group plan of public buildings for Cleveland, which is now under way in this city. It is estimated that the group plan will cost the city for land and buildings from $15,000,000 to $18,000,000, depend- ing somewhat upon its development. Your other questions can be answered only generally by saying that the citizens of Cleveland do believe that such great movements as those contemplated here, may be regard- ed as an investment which will bring a financial return to the city. Very respectfully yours, MUNSON A. HAVENS, Secretary. Cleveland, Ohio. Chamber of Commerce Commijef^ion on S'tnpJ^obeli €itp ^lan SECTION 1. There shall be in the city of Buffalo a Commission on the Improved City Plan, which shall consist of the mayor, the commissioner of public works, the presi- dent of the park commission, the president of the board of aldermen, the president of the board of councilmen and six citizens to be appointed by the mayor, one each from lists of two to be furnished respectively by the directors of the Bufltalo Fine Arts Academy, the Buffalo Chapter of the American Institute of Architects, and the trustees of the Buffalo Chamber of Commerce ; and three who shall be neither architects nor professional artists. SECTION 2. The necessary expenses of said Com- mission shall be paid by the city, but no member thereof shall be paid for his services as such member. SECTION 3. Within thirty days from the passage of this bill the mayor shall appoint two citizens to hold office for two years, two to hold office for four years, and two to hold office for six years. At the end of the terras of office of these said Commissioners, their successors shall be ap- pointed for the term of six years. The members of this Commission shall hold office until their respective successors are appointed and qualified. The mayor shall have power to fill all vacancies when they occur. The term of office shall begin with the first day of the month next after the passage of this bill. SECTION 4. The common council may refer to said Commission the construction or carrying out of any public work not expressly within the province of other boards or commissions of said city, and may delegate to said Com- mission all powers which the said council deems necessary to complete such work in all details. SECTION 5. Said Commission may make or cause to be made a map or maps of said city, or any portion there- of, showing locations proposed by it for any new public buildings, esplanade, boulevard, parkway or street, and grades thereof, and street, building and veranda lines thereon, or for any new square or park, and may employ expert advice in the making of such map or maps, or for any other profes- sional advice which the Commission may need. SECTION 6. All questions concerning the location and dimensions of any esplanade, boulevard, parkway, street, highway, square or park shall be referred to said Commission by the common council for its approval and report before final action be taken on such location. SECTION 7. Said Commission shall have control of the location of all public or municipal buildings or struc- tures to be erected upon the ground acquired within the limits of the city, and of the size, height, style and general appearance of such buildings, and all plans and specifications for the erection of the buildings aforesaid shall be submitted for approval to said Commission, and be approved by it be- fore they are adopted by the authorities engaged in the construction thereof. SECTION 8. Said city of Buffalo, acting through said Commission or otherwise, shall have power to appropriate, enter upon, and hold in fee real estate within its corporate limits for establishing esplanades, boulevards, parkways, park grounds, streets, highways, squares, sites for public buildings, and reservations in and about and along and leading to any or all of the same; and, after the establishment, layout and completion of such improvements, may convey any real estate thus acquired and no longer found to be necessary for such improvements, with or without reservations concerning the future use and occupation of such real estate so as to protect such public works and improvements and their environs, and to preserve the view, access to, appearance, light, air and usefulness of such public works. SECTION 9. Said Commission is authorized to call upon the corporation counsel for legal advice, and said cor- poration counsel shall render such legal advice when required. SECTION 10. This act shall take effect at once. 47 PRELIMINARY REPORT for a CITY PLAN for GRAND RAPIDS Map Showing Proposed Mall and New Sireels in Si. Paul p General Plan of the City of Grand Rapids showing main Thoroughfares, Boulevards, Parkways, Parks and Civic Center.