PROBLEMS OF ST. LOUIS CITY PLAN COMMISSION ST. LOUIS, MISSOURI CORNELL UNIVERSITY LIBRARY FINE ARTS LIBRARY a Cornell University g Library 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/cu31924099138319 Facts of Unusual Importance In This Book. I. THE GROWTH OP ST. LOUIS— PAST, PRESENT AND FUTURE. Did you ever stop to consider the potent influences of city growth and their signifi- cance ? As one of many interested in the present and future of St. Louis you should read this volume, and especially the INTRODUCTION. II. YOU PAY SPECIAL TAXES FOR PAVING, FOR NEW STREETS, ETC. It is perhaps possible to re- duce your tax bill the next time your street is paved. Or, if you are a merchant, a wider street with more traffic would be to your advantage. Bead the chapter on STREETS. There are facts you never knew be- fore, or perhaps you never saw them in their true light. III. THERE IS AN INTIMATE RELATION BETWEEN YOUR BUSINESS AND THE TRANSPORTATION SYSTEM. Whether you are an employer or employe, read about TRANSIT AND TRANSPORTATION in this book. It will interest you. IV. WHAT ABOUT YOUR HOME? If your rent is not satisfactory, you haven't enough yard, some rooms are dark, nearby stores and factories annoy you, or the property has been injured, read aboiit what one city is doing and what St. Louis could do, in the chap- ters on DISTRICTING and on HOUSING. V. WHY ST. LOUIS HAS PARKS AND PLAY- GROUNDS. The chapter on RECREATION tells about the uses of parks. Are they a luxury or a neces- sity? Can we get more use of them? VI. THE CITY'S APPEARANCE. As compared with other cities, how does St. Louis impress you and your friends? Read about THE CITY'S APPEARANCE and the LOCATION OF PUBLIC BUILDINGS. HERE ARE THINGS ABOUT YOUR CITY YOU MAY NOT HAVE THOUGHT OF. KEEP THIS BOOK. IT WILL BE USEFUL SOME DAY. PROBLEMS OF ST. LOUIS Being a description, from the city planning standpoint, of past and present tendencies of growth with general suggestions for impending issues and necessary future improvements THE CITY PLAN COMMISSION ST. LOUIS, MO. HARLAND BARTHOLOMEW ENGINEER NIXON-JONES PRINTING CO. ST. LOUIS, MO. 1917 *^\ OFFICE OF CITY PLAN COMMISSION OF ST. LOUIS To the Honorable, May Twenty-second, Board of Public Service, Nineteen Seventeen. >St. Louis, Mo. Gentlemen : The City Plan Commission has the honor to submit herewith a report on the present status of city planning in St. Louis. This is a revision of the report submitted in manuscript form October 6, 1916. While certain more or less definite recommendations are contained therein, the principal purpose of the publication is to serve as a basis for future work. Subsequent recommendations of this Commission will contain more specific conclusions and considerations regarding various parts of a comprehensive plan, but previous to the final publication of a complete plan, this volume, it is hoped, will serve as a text on the sub- ject. Insofar as possible, this volume aims to point the need, the scope and the opportunity for a unified city plan in St. Louis. Respectfully submitted, DWIGHT F. DAVIS, Chairman; CHARLES H. DIEL, Vice-Chairman ; TOM W. BENNETT, B. W. CLARKE, W. H. FUCHS, CLARENCE H. HOWARD, A. S. LANGSDORF, ERNEST J. RUSSELL, GEORGE J. TANSEY, Members of the City Plan Com/mission. LOUIS P. ALOE, President, Board of Aldermen. E. R KINSEY, President, Board of Public Service. CHAS. M. TALBERT, Director of Streets and Sewers. NELSON CUNLIFF, Commissioner of Parks and Recreation. JAMES N. McKBLVEY, Building Commissioner. Members Ex-Offlcio. ANDREW LINN BOSTWICK, Secretary. HARLAND BARTHOLOMEW, Engineer. TABLE OF CONTENTS Title Page. Letter of Submission. List of Plans. List of Illustrations. Foreword -^^ Summary A.1 11 Introduction ^ * The Growth of St. Louis. Principal Problems of St. Louis. Water Supply and Sewers. Purpose of a City Plan. City Planning in St. Loiiis. A Major Street Plan for St. Louis 1 Influence of Street Plan. Functional Street Planning. Results of Traffic Census. Preparation of the Major Street Plan. Value' of a Major Street Plan. Major Streets and Rapid Transit. Width of Major Streets. The Business District. Legislative and Financial Measures. The Benefit District. Distribution of Cost. Methods of Payment. Establishment of Building Lines. Permanent Assessment Board. Land Subdivisions. Excess Condemnation. Fixing Streets on the City Plan. Plan Commissions for Small Cities and for Counties. Specific Recommendations. TABLE OF CONTENTS Transit 45 Present Transit Facilities; Cost of Transit Lines. Traffic Entering the Business District. Percentages by Districts of Population and Traffic. Transportation 55 St. Louis a Natural Location for Industries. Development of Railroad Facilities. The City's Share. A Municipal Railroad System. Water Transportation. Things to be Overcome in Developing River Traffic. Municipal Terminals. Conclusion. Districting 65 Purpose of Districting. Districting in Other Cities. A Districting Plan for St. Louis. Constitutionality of Districting. The Necessity for Districting in St. Louis. Recreation 79 Forms of Recreational Facilities. Public Reservations. Large Parks. Neighborhood Parks. Small Parks and Playgrounds. Special Recreational Facilities. Complications of the Recreation Problem. Recreation in St. Louis. Future Acquisition of Parks. Park Distribution. Housing 94 Housing Evils in St. Louis. The Cause and Cure of Housing Evils. A Permanent Housing Body. City Planning and Housing. To Secure Good Housing in St. Louis. CITY PLAN COMMISSION Location of Public Buildings 104 Advantage of a Group Plan. Buildings in a Group Plan. Work of the Public Buildings Commission. A Group Plan for St. Louis. The City 's Appearance Ill The Appeal of a City. City Planning and the J 'City Beautiful." Sidewalks and Pavements. Granitoid Sidewalks. Wires, Poles and Lights. Trees. Signs and Billboards. Street Car Tracks. Street Intersections or Plazas. Appendix 127 Proposed Law Authorizing the Establishment of Building Lines. Proposed Law Authorizing the Creation of a Per- manent Assessment Board. Proposed Law Requiring Approval of all Land Subdivisions. * Proposed Constitutional Amendment Granting Power of Excess Condemnation. Proposed Law Authorizing Creation of County Plan Commissions. Proposed Law Authorizing Creation of City Plan Commissions in Small Cities. Index 137 LIST OF PLANS. 1. Growth in Area XVII 2. St. Louis Topography XXI 3. Major Street Plan 1 4. Total Daily Street Traffic 9 5. Present Streets over 60 feet wide 17 6. Cross Sections of Major Streets 19 7. Theoretical Major Street Plan 23 8. G-rand Avenue Crossings 25 9. Population and Major Streets 27 10. Proposed Distribution of Cost of Acquiring Streets 31 11. North and South Connections to Twelfth Street 39 12. Population and Transit Lines 47 13. New Municipal Dock 57 14. Park Service Map 81 15. Population and Park Area 85 LIST OF ILLUSTRATIONS 1. Lindell Cut-off Frontispiece 2. Olive street east of Fourth street 3 3. Olive street, showing inadequate width 5 4. Locust street, showing ample width 7 5. Washington avenue, in business district. ..... 11 6. Washington avenue, showing proposed widen- ing 13 7. Front street, Newark 15 8. Varick street. New York 21 9. Twelfth street, north 41 10. Twelfth street, south 43 11. Washington avenue, showing uniform devel- opment 73 12. Pine street, showing irregular development. . 75 13. Municipal Play Day 77 14. View in O'Fallon Park 83 15. View in Forest Park 87 1 6. Fairground Pool 89 17. Poles on Broad street, Newark 109 18. Good Tree Planting 113 19. Bad Tree Planting 115 20. Delmar avenue trolley tracks 117 21. Forsythe boulevard trolley tracks 119 22. Entrance to Eads Bridge 121 23. Entrance to Municipal Bridge 123 24. Entrance to Manhattan Bridge, New York .... 125 FOREWORD This publication is prompted by a conviction that a city plan for St. Louis which shall be thoroughly appli- cable and complete, will only be possible when there ex- ists an overwhelming understanding and appreciation of its necessity and great advantage. City planning principles as applied to St. Louis are set forth in word and picture. No attempt has been made to offer com- plete solutions of all present problems. Many of these must be the result of further continuous investigation and study, albeit certain definite conclusions are offered. If existing facts are given honest consideration by all citizens, the preparation of this publication will be jus- tified, for conditions thus brought home to them can hardly fail to quicken a civic enthusiasm and ultimately result in some action, and action is St. Louis' greatest need. THE CITY PLAN COMMISSION. SUMMARY For the purpose of showing the busy man what he may expect to find in this volume, the contents of each chapter are herewith briefly summarized. The Introduction tells of the growth of St. Louis, its consequences, and the problems of transit and transpor- tation, districts 'where values and use of property have declined, and the opportunities for providing in advance for public work at a great saving in cost for future pub- lic work. A Major Street Plan is suggested, whereby certain streets will be developed as principal traffic thorough- fares, having greater width and more substantial paving than the majority of all other streets. These remaining streets, which may be called minor streets, will thus se- cure a greater degree of privacy and more stability of development. The relation of the street plan to the busi- ness district is described ; also the tendency of the center of the business district to shift from one position to an- other. The necessary legislative and financial measures for the logical and beneficial accomplishment of the Major Street Plan are also thoroughly considered. The reasons why St. Louis is a great center of man- ufacture and of trade are shown, and how we may expect to secure future increases is clearly shown in the chapter on Transit and Transportation. Development of the river front and the railroad terminal system are most important factors in this respect. By Districting is meant the establishment by the city of restrictions on the height, the area and the use of all property. In the chapter on Districting are de- scribed the reasons why such restrictions have become necessary, what restrictions have been established in CITY PLAN COMMISSION other cities, their constitutionality, and why districting is necessary in St. Louis. The recreation system of St. Louis needs systema- tization in order to be of greater usefulness to the com- munity. The various forms of recreation facilities and their respective effectiveness are considered. More people own homes in St. Louis than in any other large American city, yet St. Louis is backward in recognizing and providing for the elimiijation of certain malignant housing evils. While former evils are still permitted to exist, additional abuses of the housing of our people are constalitly being permitted. In the chapter on Location of Public" Buildings and the City's Appearance, attention is called to a phase of civic improvement to which St. Louis has not paid due regard. In a city of abundant homes it should be no difficult or expensive matter to secure exceptional at- tractiveness. INTRODUCTION For more than a century, the industry, the popula- tion and size of St. Louis have increased steadily. As in other American cities, little thought has been given to the consequences of such increase. Only when we are con- fronted with unusual economic or social problems has attention been fixed on the contributing causes. The building of a city is an artificial, not a natural process. The prime requisite of great cities is unity, cohesion. Failure to recognize this earlier has caused unwonted costs for too-long-delayed improvements and has stunted growth. It may even be predicted that future genera- tions will also regard this failure as directly contrib- uting to the decadence of cities. To analyze the causes that have made possible a city's growth, to foresee the tendencies of further growth in the light of present and past conditions, and to con- trol, insofar as possible, future development, is the sci- ence and art of city planning. Individuals unite in communities or cities to jointly obtain better living conditions and greater privileges and enjoyment than each could obtain alone. The rise of great cities has automatically curtailed certain indi- vidual rights, though not always sufficiently soon. The welfare of the group is therefore now generally consid- ered to supersede the rights of the individual when ques- tions of health, safety and general welfare arise. A suf- ficiently broad interpretation of the supremacy of com- munity rights, unfortunately, was not prevalent during the period of greatest city expansion, a condition which resulted in the present great transportation problems in all large cities, through selfish or unintelligent land CITY PLAN COMMISSION subdivision, to say nothing of other problems equally great. St. Louis is no exception to the general rule of city expansion. Some of its problems are perhaps more pro- nounced than those elsewhere. However, St. Louis has been seemingly less alert to appreciate the nature of its problems and to take action accordingly. The Growth of St. Louis The story of the city's growth is briefly as follows: Year Population Area 1764 40 270 acres 1822 5,500 385 1841 16,469 4.5 sq. miles 1870 310,864 17.98 " 1876 335,000 61.37 " 1890 451,770 61.37 " 1910 687,029 61.37 " 1915 745,988 61.37 " Under the Spanish and French, St. Louis enjoyed a quiet growth, for, when ceded to the United States in 1804, as part of the Louisiana Purchase, there were no buildings west of Fourth street. From 1825 to 1841, a general period of prosperity prevailed and the popula- tion increased to 16,469 in 1841, though there were few houses west of Seventh street. At this time the city lim- its were extended to include several small adjoining vil- lages. From this time on the population of St. Louis increased rapidly. In 1850 the total population had in- creased to 77,860, and many street and sewer improve- ments had been made. In 1855 the city limits were ex- tended west and north as far as Grand avenue, the south- ern boundary being what is now Keokuk street. The city continued to grow and by 1860 had a pop- ulation of 185,587 and more numerous public improve- ments, including a street car line. The outbreak of the St s".| N "9 =d A? V ^ U M K g £"b V cA od SI'S ■:&! « » . ■*-» o H .3 ■*-> o M 01 oy ta o 2 n„ ago BSJ3 bo S ^ ^■0 a = « Mi: ■S.yo 74 CITY PLAN COMMISSION In doing so they discriminate in favor of the owners of buildings already constructed. A lopping off of existing buildings in excess of the prescribed height is of no less importance to the health, safety and convenience of the public than the restriction of the height of an equal num- ber of buildings hereafter to be erected. A discrimination in favor of buildings already constructed cannot be justi- fied directly on the grounds for which the police power may be exercised. Such discrimination or classification finds abundant justification, however, when we apply the controlling principle of reasonableness and proportion- ateness of means to ends. The reconstruction of existing buildings would impose burdens on private owners dis- proportionate to the public gain. Such regulations would therefore be reasonable and valid. It seems that classi- fication or exemption essential to the reasonableness of a regulation is itself reasonable. This principle consti- tutes an adequate justification for districting. "While a specific regulation taken by itself may not seem to have a very direct relation to the purposes for which the police power may be invoked, yet when tajsen as a part of a comprehensive plan for the control of building development throughout the entire city, its re- lation to such purposes may be unmistakable. Grant that a comprehensive system of districting is essential to the health and general welfare of the city, and it fol- lows that every specific regulation that is an essential part of such comprehensive system is justified under the police power." The Necessity for Districting in St. Louis In the interests of general welfare, the districting plan should encourage a greater uniformity in the extent of occupied area and greater uniformity in the degree of its use. It should tend to discourage speculation in land, wliich has resulted in most of the problems which S" ^ bo C 03 fC CO =4-1 -3 O O r 1-1 ^i2 76 CITY PLAN COMMISSION districting seeks to solve. Districting also would pre- vent intermingling of residences and stores and factories, a condition detrimental not only to the health and safety but the economic welfare of any community. Districting seeks merely to impose restrictions upon all the land of the city and by so doing, supplement restrictions which are frequently found to be ineffectual, imposed in certain deeds of sale in certain residential developments, which restrictions often expire within a limited period of time and are seldom, if ever, removed after expiration. A proper districting plan will materially help to solve the housing problem of St. Louis more specifically stated in another chapter. Districting also will prevent undue congestion, a problem not yet unusually great in St. Louis. These are interests affecting the public health and safety. In St. Louis there are two districts commonly known as blighted districts, where numerous buildings are va- cant and where the values of buildings have in some cases wholly disappeared, while the value of land has greatly depreciated. Unquestionably the existence ^f a districting plan would largely have prevented the de- velopment of such unwarranted conditions. Districts such as these exist in every city and are not common to St. Louis alone. The fact that each of the two local dis- tricts is so situated as to daily attract the notice of all who enter the city by rail or boat, and of those passing to and from the business district, places undue attention upon them. While a proper districting plan will not wholly or even largely rejuvenate these districts, it will be the first step toward such rejuvenation. Without it, it is questionable how far the owners, upon whom rest the responsibility and the effort necessary to rehabili- tate these districts, can go in tlie work of rejuvenation. tREAT cities have c/rcat social problems. Wlif'rc homes are small, close together and often overcrowded, land is expensive and launij persons share a single yard,. The neces- .sury relaxation from the daily task cannot be found in the home. This is why cities are spend- ing large sums for parks, playgrounds, recrea- tion centers, baths, and the like. These are ne- cessities, not luxuries. RECREATION Public recreation has come to be recognized as a constructive measure in the conservation of human health. Public recreation includes the construction, maintenance and administration of parks, playgrounds, recreation centers, bath houses and such other facilities as afford opportunity to people to secure rest, amuse- ment and relaxation from their daily labor, which other- wise they would be unable to enjoy. Usually the park department or a recreation department is in charge of the major proportion of the work of providing neces- sary facilities, though the co-operation of the library and public school system is needed. Private agencies, such as churches, clubs and societies, also promote recrea- tional advantages. A complete recreation system would be one which af- forded at all times and for all kinds and conditions of people, for children and adults, an opportunity for such relaxation or amusement as might be needed. Obviously such a system would be prohibitive in cost and unwar- ranted. The function of a city is to provide service, recreational or otherwise, only within the limitations of reason and economy. To provide recreation in accord- ance with the distribution of the population and the de- mand for same, obviously should be the purpose of any well organized effort. There is need of systematic loca- tion and extension of service. Different conditions and ages of people require different forms of service. A small park cannot well offer the full opportunity for use that a large park can, but the small park can be adapted to more intensive use. Small parks, playgrounds and rec- reation centers are needed for intensive use in densely populated districts. In districts where homes are of ample size and on large lots, there is much less need for 80 CITY PLAN COMMISSION playgrounds or recreation centers. The large parks meet fully the recreational demands of such districts. Forms of Recreational Facilities For purposes of general consideration, recreational facilities may be grouped as follows: A. Public Reservations B. Large Parks C. Neighborhood Parks D. Small Parks and Playgrounds E. Special facilities, such as bath houses, wading or bathing pools, athletic fields, etc. In defining the various types of parks, it is to be remembered that not always do distinctive types occur. For reasons of economy or expediency, two or more types may be combined. The present purposes of defini- tion are simply to clearly differentiate types and uses. Public Reservations , Public reservations are usually nothing more than large areas suited for park purposes located well beyond the city limits, comprising several hundred acres, main- tained largely in their original state, secured at low cost and serving merely as outing places for persons making a day's or week's excursion. The advantage of securing suitable park land when its value is low and gradually and economically developing it for a more intensive use as the city grows toward it, is unquestionable. Large Parks Large parks of approximately 60 or more acres, within the city limits, are usually well developed, care- fully designed, equipped with boating facilities, good 82 CITY PLAN COMMISSION roads and pleasant walks and drives, athletic fields, ten- nis courts, golf links, picnic grounds, flower gardens, statuary, pavilion, band stand, etc. The average large park, when easily accessible, has an effective radius of possibly three miles. People living within three miles of a large park can usually reach it within a reasonably short time, and for a single fare. The number of large parks needed depends entirely upon the size of the city and existing conditions. *& Neighborhood Parks Parks of size from 10 to 50 acres may be considered as neighborhood parks inasmuch as they are too small to be considered in the large park group, or have all the facilities of large parks. Their use must necessarily be confined to nearby residents. This type of park' may be in a city's business section, thus permitting brief use at the noon hour and affording opportunity for rest to passers-by. Or the neighborhood park may be located in industrial or residential districts, giving opportunity for mothers with children to spend brief hours of leisure during the day and for whole families at evening, amidst surroundings which are pleasant and healthful. Neigh- borhood parks should be of service to people living within one-half mile, or comfortable walking distance. Small Parks and Playgrounds Small parks and playgrounds are most needed in congested districts and when properly designed contain sufficient play room and apparatus to interest and at- tract children of all ages. There is usually an instructor or director in charge to conduct and lead the various activities and to teach games and useful simple activi- ties such as sewing for girls, and handicraft for boys, story-telling, etc. The effective radius of a playground 84 CITY PLAN COMMISSION is small, seldom more than one-fourth mile or even less if wide or busy streets or business intervenes. Play- grounds may be of excellent educational value and are often conducted in connection with the school system. Special Recreational Facilities The special recreational features which a city may provide, such as bathing pools, bath houses, library, rec- reation centers, etc., are sometimes located within the parks and playgrounds above mentioned, or wholly apart from them as occasion may require. Their use and effec- tiveness varies according to local conditions. A most effective and successful form of providing amusement, recreation and educational instruction is by the com- munity center, sometimes a school, sometimes a special building, with library, reading rooms, gymnasium, pool, auditorium, bowling alleys and similar equipment. In such buildings a large group of adults can be reached and encouraged to make beneficial use of leisure time. Community musical associations, debating clubs, lan- guage study and social intercourse all encourage a 'Bet- ter type of citizen, especially in the city's foreign quar- ters. The branch library buildings of St. Louis are be- ing used most successfully as community centers. There are also well-established community centers in nine pub- lic school buildings. Complications of the Recreation Problem The diversity of forms of recreational service, the varying demands for same according to intensity of de- velopment, the necessity for providing separate facili- ties for colored people and the failure of certain races to mingle harmoniously, all tend to complicate the problem of supply. Yet the distinction in forms of service, the need for comprehensive handling of what must essen- 86 CITY PLAN COMMISSION tially be a system, makes careful study and analysis of the work most important. The proved relation of juvenile crime to lack of proper occupation during leisure hours follows on up the scale. Where the spare time of the growing child and the adult is spent, largely determines the future relation of that person to the community. With normal opportunities, useful citizenship is encour- aged; absolute, lack of opportunity leads to a search for diversion which perhaps may not be found in the best of environment. Future good citizens are not fostered in environment which may be detrimental to good morals. Recreation in St. Louis St. Louis is a city of homes. The percentage of home owners here is unusually great, a most healthful condition. Yet, certain housing evils and a varying in- tensity of use of land, make necessary certain recrea- tional facilities. Exclusive of the large attendance at public parks, the number of people attending parks and playgrounds in 1915 was as follows: Public Recreation Attendance Year Ending April 1, 1915. 18 Playgrounds 2,481,078 3 Bath Houses . 1,076,863 2 Bathing Pools . 386,166 Moving Pictures 304,000 145 Band Concerts . , 570 950 Game Field (including spectators); Base- ball, Football, Golf, Tennis . .. 619,150 5,438,207 Additional public recreational facilities in St. Louis are : Art Museum Main Library Six Branch Libraries Missouri Botanical Garden Gymnasium Classes in High Schools 88 CITY PLAN COMMISSION Public Bath No. 4, equipped with pool, show- ers and gymnasium, and the Kennerly Ave. Civic Center, soon to be completed, containing high school, public school, branch library and extensive playground, are for the exclusive use of negroes. Few cities surpass St. Louis in the extent to which recreational service has been developed and also in the extent of attendance ; but no claim is made that present service is adequate. St. Louis has no large public res- ervations. .Chain of Rocks and Jefferson Barracks are the nearest approach to reservations but are of insuffi- cient size. Their need is evident and their early acqui- sition would be a means of much future economy. In Forest Park, Carondelet Park, Tower Grove Park, Fairground, 'Fallon Park, and Penrose Park (soon to be constructed), St. Louis has a better supply of large parks than most large cities. For neighborhood parks, St. Louis now has Lafay- ette Park, Gravois Park, Hyde Park, Lyon Park, Comp- ton Hill Eeservoir Park, and Christy Park (not yet com- pleted). Numerous additional parks of a similar size are needed in many closely populated districts. A neigh- borhood park in the business district, perhaps on the waterfront, is a well-recognized necessity. Our numerous small parks and playgrounds are as follows: Name Area in Acres Buder Memorial Square 2.35 Carnegie Place 2.07 Carr Square 2.30 Clifton Heights 4.40 Columbus Square 2.16 Dakota Park 3.17 De Soto Place 1.64 Fountain Park 3.10 Gamble Park 1.15 Jackson Place 1.62 5,BJ n ca to c 2§ 90 CITY PLAN COMMISSION Name Area in Acres Laclede Park 3.17 Lucas Garden 1-09 Mullanphy Spuare 1-92 Mullanphy Courts Square 7-45 Pontiac Square 1-91 Riverside Park 5.67 Soulard Place 1.94 South St. Louis Square 1.66 Washington Square 6.00 Yeatman Square 3.43 O'Pallcn School Playground 0.32 Dumas School Playground 30 58.82 The service rendered by these is exceptionally good and their distribution in growing areas is excellent. Future Acquisition of Parks An accompanying diagram shows tlie growth of St. Louis in population and in park area. The park area has increased somewhat irregularly but has kept pace with population increase until within the past few year^ In a city which is not surrounded with closely built up areas and where natural park areas abound and can be had for the lowest prices, the park area should be kept well in advance of population increase. Numerous neighborhood parks and smaller parks and playgrounds are needed east of Grand avenue. Illustration No. 14 shows this very clearly. Compare this with Illustration No. 15, and see the relation of density of population to distribution of park area. In 1907 the report of the Civic League on " A City Plan for St. Louis, ' ' contained some vivid figures on park distribution in St. Louis, which are proportionately as true today as in 1907, as follows : RECREATION 91 Park Distribution ' ' Taking the city as a whole, St. Louis devotes a very satisfactory portion of her total to public purposes. Thus, 9,285.99 acres of a total of 39,276.25 acres, or 23 per cent of the total acreage of the city is devoted to parks, streets and alleys, and school grounds and school buildings. When these figures are studied by districts, however, gross inequalities appear. Dividing the city roughly into three districts: that between the river and Jefferson avenue to be called the Eastern District, that between Jefferson and Grand avenues the Central, and that from G-rand avenue west to the city limits the West- ern District, we find: In the Eastern District 277,928 jjeople, or 48.3% of the total population (1900) 7,699 acres, or 19.5% of the total acreage 148.59 acres, or 6.9% of the total park area In the Central District 123,519 people, or 21.4% of the population 3,835.75 acres, or 9.7% of the total acreage 178.15 acres, or 8.3% of the park area in the Western District 173,-791 people, or 30.3% of the population 27,771.50 acres, or 70.8% of the total acreage 1,729.83 acres, or 84.7% of the park area. "In other words, 48 per cent of the people have easy access to less than 7 per cent of the park area; 21.4 per cent of the people have 8 per cent of the park area, while 30 per cent of the people have 85 per cent of the park area. "Putting the above figures in another form, we find that in the Western District there is one acre to every 96.5 persons, in the Central District one acre of park area 92 CITY PLAN COMMISSION to every 701.2 persons, while in the Eastern District there is but one acre of park area to every 1,871 persons. ' ' It may be argued that these figures are misleading, as Forest Park, which lies in the Western District, ex- ists for all the people of the city. While this is partially true as regards the people living in the Central District, the number of those living in the Eastern District who are able to spend either the time or the money necessary to visit Forest Park is so small that we believe the pro- portion as given above is approximately correct. ' ' St. Louis has no definite program or means of add- ing to its present park area. All additions to the park area are paid for out of current revenue, an obviously short-sighted policy inasmuch as the benefit of parks is lasting and not of present value only. Result — no new park areas are secured." A HOUSING PLATFORM I VERY family has a right to a safe, decent and sanitary home; healthful surround- ings; adequate sanitation; ample and pure running water inside the house; modern and sanitary toilet conveniences for their ex- clusive use, located, inside the building; adequate light and ventilation; reasonable fire protection ; privacy; rooms of sufficient size and number to decently house the members of the family; free- dom from dampness; prompt, adequate collec- tion of all waste materials. These fundamental requirements for decent living should be obtain- able by every family at a rental not to exceed one-fourth of the family income. LAWRENCE VEILLER, Secretary National Housing Ass'n. and foremost author- ity on housing. r^^^^^^^^^^^#^^«^^^«^^^r^^#^^#^^^#^r«s#^^^#^^^^\#^^«vr^«-«<^^ « F DESTRUCTION of life and property by disease were as spectacular as destruction by fire, protection against disease breeding houses woidd precede protection against those that spread only fire. ROBERT W. DeFOREST, I President National Housing i Ass'n. 94 CITY PLAN COMMISSION HOUSING Good homes make good citizens. Never has there been greater need for good citizens than today. St. Louis has enjoyed the distinction of having a larger percentage of home owners than any great American city, but no definite concerted effort to maintain a high standard of home ownership and maintenance is being made. With- out real progress in housing, disastrous conditions are encouraged and invited. No greater problem confronts the average city fam- ily than that of securing living quarters at once suffi- ciently large, reasonably cheap and having necessary conveniences. The more limited the family income, the more difficult becomes the task of obtaining a suitable place to live. Enterprising land developers have taken advantage of the demand for living quarters and devised various forms of multiple dwellings where* homeseekers can find quarters according to their means. But no mul- tiple dwelling that was ever built can as a rule supply all the necessities, the privacy and conveniences* of a single dwelling. Obviously, land and materials are so expensive in cities that to provide for each family a sin- gle detached structure, fully equipped and with some little land, is economically impossible. Baltimore and Philadelphia have produced the closest approach to de- sirable homes in the small single family house built in rows, each on a comparatively small lot. In other cities the many-storied multiple dwelling has thrived. At great sacrifice in room, or light, or air, or privacy or any num- ber of other necessities, families have secured places within their means, only to pay an abnormal price in physical, mental and moral degeneration. HOUSING 95 Housing Evils in St. Louis Housing evils do not exist in the tenement alone. The evils long prevalent in St. Louis are not altogether in tenements, which until recently have been compara- tively few in numher here, but in the use by many fam- ilies of houses designed for use by but one family. Care- ful analysis of the housing situation in St. Louis by Miss Charlotte Eumbold for the Civic League in 1907, and by Lawrence Veiller, Secretary of the National Housing Association in 1916, also under the auspices of the Civic League, revealed the following undesirable conditions: Existence of dark rooms. Existence of privy vaults. Incomplete removal of garbage, rubbish and other wastes. Uninhabitable and dilapidated houses. Existence of stables in residential districts. Existence of wooden sheds and outbuildings. Cellar and basement dwellings. _ Inadequate sinks and catch basins. Outside water supply. Unclean yards and vacant spaces. Eoom overcrowding. Not one of the evils mentioned would be tolerated by the average family when possible to avoid them. In fact, few of these evils would ever exist if their avoid- ance was possible. But it so happens that a great many of our fellow citizens are living amid conditions which they are powerless to prevent or from which they are unable to extricate themselves. Limited finances force families into such environment simply because there are no other places to be found. It is simply that suitable living quarters, free from common evils, are not attain- able at moderate rentals. The condition is indeed a serious commentary on progress in American cities. Until a more satisfactory form of moderate priced living 96 CITY PLAN COMMISSION quarters has been devised and universally adopted, the majority of housing evils will continue to thrive. The Cause and Cure of Housing Evils The housing evil is a distinct and concrete thing. Its existence is realized but seldom appreciated, for un- pleasant things are most easily forgotten or ignored un- less they are daily brought to our attention. To secure the best of housing conditions is neither a visionary nor theoretical process; rather is it an imperative necessity in the interests of public health and safety, but an un- dertaking of unparalleled difficulty. Attempts at hous- ing improvements are always stubbornly opposed, and quite naturally so, for it is a well known fact that few properties pay their owners better than does low class residential property, especially the multiple dwelling type. Low taxes and no great expense for upkeep and repair, offset by rentals which are indeed large in com- parison to space occupied, are good and sufficient rea- sons for landowners and landlords to fight to maintain a lucrative investment, even though that income i^ made possible through a sacrifice of human life. Undesirable housing conditions are partly the result of private avarice and greed, but they have been made possible through unwonted lack of public interest. The present public attitude toward housing reform in St. Louis is lethargic and indifferent. Only an epidemic of a dread disease would arouse a public demand for relief from intolerable conditions, and this demand would prob- ably pass with the stamping out of the disease. Humanitarianism has not sufficiently far developed in the average individual to make him at all times his brother's keeper. Housing reform is most assuredly a humanitarian movement, a social undertaking and there- fore one which to be successful must override the inter- ests of politics and of greedy landlords. The initiative HOUSING 97 in housing reform must be by private effort, since the city's immediate interest is only that of public health and safety as affected by unsanitary conditions and buildings dangerous because of poor repair. Unques- tionably there is much that the city can do through more rigid enforcement of existing laws, but unfortunately the incentive for such enforcement must be stimulated by outside interests, since a city, at best, is never sup- plied with an adequate incentive for betterments usually known as "reforms." A further obstacle to housing reform is the reflection of public matters related to the housing question. When public interest and concern is sufficiently aroused, the general attitude of courts and responsible departments and officials will be decidedly more sympathetic and more helpful. A Permanent Housing Body Housing conditions in St. Louis are in need of im- provement. The evils are not widespread but should be stamped out before they become a menace. They are small cancers which threaten the future well-being of the community. To eliminate them is a task surmounted with difficulties — a task which requires persistent and well organized effort. Ineffectual attempts at housing- reform invite failure and each failure serves but to en- courage the strengthening of the opposition which must be overcome. Nothing is of greater moment than good health con- ditions. Where homes and habitations are , unsanitary and in poor repair, the health of the community is not promoted. A well organized, well equipped, reputable, permanent housing body could do more for St. Louis than can possibly be described. St. Louis has been lax in dealing with its housing situation, for despite buildiiig ordinances, which are pointed to with great pride by those unfamiliar with actual conditions, malignant evils 98 CITY PLAN COMMISSION are to be found. Witli little or no persistent effort to wipe them out, their spread can be expected. The following program of activity for a permanent housing association or organization is suggested in the report of Mr. Lawrence Veiller, already referred to above : "Elimination of Dark Rooms — Every interior un- ventilated and dark room in the City of St. Louis should be abolished. This can be done by cutting a window in- to the room, where it is possible, and this window should be cut in the outer wall. It is frequently possible to do this, cutting windows over the roofs of adjoining build- ings or opening on neighboring premises. This can be done without encroachment on adjoining property from a legal point of view. Where this cannot be done, large windows should be cut in the partitions separating one room from another room in the same apartment. It is not wise to throw two rooms into one and string a cur- tain between. It is far better to maintain the existing partitions, as otherwise privacy is destroyed. "Removal of Garbage, Rubbish and Other Wastes — This involves: "(a) The providing of proper receptacles, 5ietal cans for the holding of each class. "(b) The doing away of the storage on the prem- ises as is now the practice in some parts of the city. "(c) The prompt removal of garbage every day. This is more important in the homes of the poor than in the homes of the rich. " (d) The removal of rubbish and other wastes fre- quently, never less than onCe a week. "Removal of Privy Vaults — It will undoubtedly be necessary to draft a proper law or ordinance before this work can be done. The essential thing in drafting such a law is to see that the existing vaults are all removed within a reasonable time, a time that is not too far dis- tant; that is, vaults where there is community water sup- ply. They can even be removed in districts where there are no sewers. "It is essential that no outdoor substitutes for vaults HOUSING 99 should be permitted. They are practically as bad as the vaults. "It is equally important that the new toilets which are installed as substitutes for the vaults should be fix- tures of a modern type and should not be placed in either dark or unventilated places, but always in compart- ments with windows to the outer air. "Another element is to make sure that the law makes provision for the situation where property own- ers have not sufficient funds to do the work. Under such circumstances several cities have found it advantageous to provide that the cost of such improvements may be distributed over a five-year period, the city paying for the work and making the expense a lien on the property. "Uninhabitable and Dilapidated Houses — All houses that are unfit for human habitation should be promptly vacated and those that are not easily repairable should be condemned and destroyed. A well organized cam- paign in this direction should be undertaken. "In the first place, the city should acquire the power to enable the Board of Health to undertake this work. It should then have a survey made to discover such houses and promptly proceed to vacate and condemn. "The Stable Nuisance — The stable, in view of its importance as a breeder of flies, should be eliminated from residential districts. This should be done in an or- ganized way, not merely in response to complaints of nuisance. An ordinance should be passed prohibiting the maintenance of stables in blocks in which two-thirds of the buildings are used for residential purposes, and the Board of Health should promptly proceed to close such stables after the enactment of legislation of this kind. "Outbuildings, Sheds, Etc.— The city should start an organized campaign for the removal of all of the ex- isting wooden sheds and outbuildings, as these are a distinct fire menace besides being sordid and unsightly and encroaching upon much needed play space and space for light and air. Much of the worst portion of 100 CITY PLAN COMMISSION the poor quarters of the town would be greatly improved by this one measure alone. "Cellar and Basement Rooms — The Board of Health should make a careful census of all underground dwell- ings and should proceed upon a vigorous policy of vacat- ing all cellar and basement rooms which are unfit for habitation either because of dampness, lack of sufficient light and ventilation or generally unlivable conditions. Those that can be improved should be improved and made fit for habitation. All others should be perma- nently closed. A system of requiring permits for the occupancy of basement rooms should be installed. "Sinks and Catch Basins — The outside abomination of the metal pipes in which garbage and waste material from the kitchens are dumped on each outside balcony of the ordinary tenement house, should be done away with. If the law is not adequate, the law should be changed. In place of those unsightly and unsanitary ar- rangements proper modern sinks should be installed in each kitchen. If legislation is necessary it should be obtained. "Water Supply Inside the House — All outside hy- drants should be removed and running water should be provided in each kitchen, not on the porch as at present. This is a subterfuge and evasion of the law and should not be tolerated. "Yard Drainage and Cleanliness — An organized campaign to require the paving and drainage of all yards, passageways and other out-premises should be inaugurated and carried into effect. "Fire Escapes and Means of Exit — A canvass of all residential buildings in the city that are without proper means of exit in case of fire should be made by the Fire Department and orders for the installation of proper fire-escapes or extra stairs or other means of exit should be issued and carried into effect. "Room Overcrowding — This is a serious evil but a matter to be taken up last. It is intimately bound up with the next item. HOUSING 101 "The Lodger Evil — A careful study should be made of the conditions in St. Louis with regard to the taking of lodgers into private apartments. • This involves fre- quent night inspections made under authority of the Health Department and Police Department, the taking of photographs of conditions discovered, the measuring of rooms and the counting of people in them — in general, an intensive study of the question. "It will also be necessary to formulate and secure the passage of special laws dealing with this evil as well as to provide proper administrative machinery for the enforcement of such laws." City Planning and Housing The City Plan Commission's interest in housing is a result of a conviction that a city cannot truly become practical, efficient and wholesome without good living conditions for all its citizens. A city plan should include adequate legal provisions for good housing in addition to constructive suggestions for making effective use of local environment and conditions. A city plan is not con- cerned with enforcement of housing laws and ordinances. The present activities of the City Plan Commission relating to the housing question are: Supervision of new land subdivision; Promotion of attempt to secure a city-wide district- ing plan; Encouragement of attempt to rehabilitate depopu- lated districts. In addition to these activities, the City Plan Com- mission proposes further: To encourage building of houses to facilitate best living conditions at low rent; To encourage building of garden suburbs and gener- ally better land subdivision. 102 CITY PLAN COMMISSION To Secure Good Housing in St. Louis The realization , of good housing conditions in St. Louis depends upon proper laws and ordinances and ade- quate enforcement of same. The full enforcement of laws and ordinances depends upon proper supervising and inspection forces and the co-operation rather than indifference or direct opposition of the police and .the police courts where offenders are tried. Housing is a subject of sufficient importance to warrant a separate department of the city government having charge of it. A board of health cannot be expected voluntarily to handle all housing problems. It has neither the money, the time nor the necessary staff. A separate de- partment or officer and force should be created in the Board of Health charged solely with housing questions. The steps necessary to adequate handling of the housing problem in St. Louis are: (1) Secure close co-operation of city and state au- thorities in police matters relating to enforce- ment of housing law; (2) Secure special housing department with private supporting organization if necessary; (3) Make enforcement of ordinances obligatory. r^'^^^^^^^«^^v#^>#s ^#*sr***s*^sr*^^*^v».#^^*#sr n p. kl -^ ri 0) o w rt 9 ■u S — ||| .2 ^ *- & Q "O 122 CITY PLAN COMMISSION the use of ballast should be prohibted unless hedgerows are used for screens on either side. Grass is used in- stead of paving occasionally and is attractive and de- sirable when properly maintained. Street Intersections or Plazas Where several streets converge to a common inter- section, there often is opportunity for special treatment. A circus with central feature visible .for a distance along each of the street approaches, a statue, fountain, grass plot or flower bed, will normally produce an attractive result. Where special conditions occur, such as a bridge approach or park entrance, special well-studied treat- ment is greatly to be desired, since these are the city's gateways. St. Louis has several present opportunities to create plazas of unusual importance, notably the ap- proach to the Eads Bridge, the approach to the Municipal Bridge and the Lindell entrance to Forest Park. The re- cent controversy concerning the park entrance makes this a matter of delicate discussion. Yet a plan is needed and the sooner one is adopted, the sooner will the contro- versy be ended. The opportunity is at hand. St. Louis should make the most of it. The present park entrance at Lindell boulevard and Kingshighway has for its main features a large green- sward, the Grand Drive and the Blair Monument. Each of these should be preserved, with the possible exception of the present position of the monument, which could be changed without difficulty if necessary. The occasion for changes at this entrance has arisen from rather con- gested traffic conditions on Saturdays, Sundays and hol- idays. The movement of traffic unquestionably is a factor in the design of any street intersection. At the Lindell entrance the demands of traffic must dictate largely the street design, but not the architectural or Is 124 CITY PLAN COMMISSION landscape design. At prominent street intersections such as this, traffic can be hahdled in either one of two ways : (1) By circular flow in one direction only. (2) By direct right angle crossing. If handled by circular flow, there must be some form of a circus — either circle or ellipse — with a central fea- ture, the center of the figure to be on center with each of the intersecting streets. This form of intersection usually lends itself best to decorative treatment but has not seriously been considered at the Lindell Entrance inasmuch as its construction would necessitate the acqui- sition of additional property on one or more corners for the sake of making the figure on center of Kingshigh- way and Lindell boulevard. The direct right angle crossing has not been consid- ered either, though the present intersection attempts to accomplish this. A new roadway into West Pine boule- vard has been constructed to divert traffic from the pres- ent congested intersection, which will serve its purpose to good advantage. • A definite final plan should be prepared which shall embody all of the present desirable features and yet cre- ate a park entrance in keeping with the park which is one of the largest and most extensively used parks in the United States. IS c -a S -- FQ m 5: Is ^s og CM p, n o ■K S «N#N#^sr#^#^#^##N«^#s#^^#N#^#s#s#s#s#^s#s#s#^s#s#s#s«S#s#> APPENDIX #s#s#s#s#«s#s«S#s#s«s#s##s#s#s#s#s#s#sr#\#s#\#s#s#sr#sr#s#> 128 CITY PLAN COMMISSION PROPOSED LAW AUTHORIZING THE ESTAB- LISHMENT OF BUILDING LINES An Act to Authorize the Establishment of Building Lines on Streets in Cities Which Now Have or May Here- after Have 500,000 or More Inhabitants and to Pro- vide the Manner in Which Damages and Benefits May be Determined and Paid. Be It Enacted hy the General Assembly of the State of Missouri, as follows : Section 1. The word "street," as used in this act, means any public highway, esplanade, boulevard, park- way, square or street, or any part or side, or part of the side, of any of the same. Section 2. It shall be lawful for any city now hav- ing or which may hereafter have 500,000 or more inhab- itants, to provide by ordinance for the establishment of building lines on any public street or highway. Such -building line shall be established by the same procedure as that provided by law in such city for the acquiring of land for the opening of streets. After the establishment of any such line no building or other structure shall be erected, reconstructed or substantially repaired and no new buildings or other structure or part thereof shall be re-erected within said lines so established. Section 3. Whenever and wherever a building line shall be established as aforesaid, all structures extend- ing within such building lines shall be required to con- form to the new line within a period of not more than 25 years from the time of establishing said lines; such time to be provided in the ordinance, providing for the establishment of such line. At the expiration of the time limit in which all structures are so required to conform to the new building line, the proper municipal authori- ties shall proceed in the manner then provided by law relating to condemnation proceedings by such cities to remove all structures then within such line; provided, APPENDIX 129 however, that all owners of property so affected shall re- ceive due notice and hearing in the manner then provided by such law in the determination of the additional dam- ages sustained by the removal of such structure then within the building line. Section 4. In payment for the real estate, improve- ments and easements to be taken and acquired for the establishment of such building lines as are herein pro- vided and of the damages sustained thereby, benefits shall be assessed and collected in the same manner as provided by law in proceedings in any such city for the acquiring of lands for the openings of streets. Section 5. This act shall not limit or abridge any power now or hereafter conferred by law on such cities to establish building lines or take any property or any interest therein by eminent domain. PROPOSED LAW AUTHORIZING THE CREATION OF A PERMANENT ASSESSMENT BOARD An Act Granting Authority to Any City in This State Now Having or Which May Hereafter Have 400,000 Inhabitants, to Provide by Ordinance or Charter Pro- visions for the Appointment, Term of Office and Re- moval of a Board of Assessment Commissioners Who Shall Have the Power to Assess Benefits and Dam- ages in Condemnation Proceedings. Be It Enacted by the Senate and General Assembly of the State of Missouri, as folloivs : Section 1. Full power and authority are hereby given and conferred upon every city of this State which now has or may hereafter have 400,000 inhabitants to provide for the appointment, term of office and removal of a Board of Assessment Commissioners, who shall con- stitute a permanent board for the assessment of benefits and damages in condemnation proceedings instituted by any such city; and such provision may be made either by charter provision therefor adopted by the people of 130 CITY PLAN COMMISSION said city, according to the law, or by the people thereof under the power of the initiative. Section 2. It shall be a feature of all such laws or ordinances that said Board of Assessment Commission- ers shall be a permanent board who shall sit from day to day and assess benefits and damages in condemna- tion proceedings as may be provided by said city as aforesaid. Section 3. Said city shall have power by ordinance or charter provision to fix the number of said commis- sioners constituting said board, their terms of office and the manner of their appointment, and the manner in which they shall discharge their duties. PROPOSED LAW REQUIRING APPROVAL OF ALL LAND SUBDIVISIONS An Act to Provide for the Filing of Plans, Plats or Re- plats of Land in Cities of 400,000 Inhabitants or Over. Be It Enacted by the. Senate and General Assembly of the State of Missouri: All plans, plats, or re-plats of lands laid out in .build- ing lots, and streets, alleys or other portions of the%ame intended to be dedicated to public or private use, or for the use of purchasers or owners of lots fronting thereon or adjacent thereto, and located within the city limits, shall be submitted to the board or body having charge of the design, construction and maintenance of city streets and approved by it before they shall be recorded. And it shall be unlawful to receive or record such plan in any public office unless the same shall bear thereon, by en- dorsement or otherwise, the approval of the board or body having charge of the design, construction and mainte- nance of city streets. The approval of the board or body having charge of the design, construction and mainte- nance of city streets shall be deemed an acceptance of the proposed dedication for public or private use as the case may be; but shall not impose any duty upon the city concerning the maintenance or improvement of any such dedicated parts, until the proper authorities of the APPENDIX 131 city shall have made actual appropriation of the same by entry, use or improvement; and owners and purchas- ers shall be deemed to have notice of the published plans, maps, and reports of the board or body having charge of the design, construction and maintenance of city streets affecting such property within its jurisdiction. PROPOSED CONSTITUTIONAL AMENDMENT GRANTING POWER OF EXCESS CONDEMNATION Submitting to the Qualified Voters of the State of Mis- souri an Amendment to the Constitution Thereof Granting to the State, Municipal Corporations and Other Political Subdivisions of the State the Power of Excess Condemnation. Section 1. Providing for excess condemnation by the state, municipal corporations and other political sub- divisions of the state. Be it resolved by the house, the senate concurring therein: At the general election to be held on the Tuesday next following the first Monday in November, A. D. 1918, an amendment to the Consti- tution of Missouri shall be submitted to the qualified voters of the state in the following words: Whenever the state, a municipal corporation or any political sub- division of the state authorized by law to take private property for public use, shall appropriate or condemn any private property for any public use whatsoever,_ or when the state, a municipal corporation or any political subdivision of the state authorized by law to take private property for public use in furtherance of such public use, shall provide for any public work or improvements which shall damage or benefit private property, the state, mu- nicipal corporation or any political subdivision of the state authorized by law to take private property for public use, may provide for the appropriation m fee by the state municipal corporation or other political subdi- vision of private property or any easement or use therein in excess of that actually required for such specific pur- pose, under such conditions as shall be prescribed by the legislature or general laws of the state, or as prescribed 132 CITY PLAN COMMISSION by the charter and ordinance provisions of any such mu- nicipal corporation operating under special charter, and such excess property or right therein so acquired by the state, municipal corporation or other political subdivi- sion, may be sold, leased or otherwise disposed of by it under such terms and conditions as may be prescribed by the laws of the state and the charter and ordinance provisions of any municipality, corporation or other po- litical subdivision, and this right of the state, municipal corporation, or other ijolitical subdivision to acquire and sell such excess property is hereby declared to be a pub- lic use ; provided, however, that such excess shall be con- demned and compensation therefor ascertained in the same proceeding, and in the same manner as near as may be, as the private property, easement or use actually needed, as aforesaid; and provided, further, that the value of such excess shall be paid for by the state, mu- nicipal corporation, or other political subdivision, as the case may be. PROPOSED LAW AUTHORIZING CREATION OF A COUNTY PLAN COMMISSION An Act to Provide for a County Plan Commission in Counties Now Having or Which May Here^ter Have, a Population of 100,000 and Less Than 200,000 Inhabitants, Providing Funds for Same, Defining the Powers and Duties of Such Commissions. Be It Enacted by the General Assembly of the State of Missouri: 1. That in any county now having, or which may hereafter have a population of 100,000 and less than 200,000 inhabitants, there may be created a body to be known as the " county plan commission" (in- serting in the blank space the name of the county in which the body is created). For the purpose of ascer- taining and determining the population of counties in this state that may have a population of 100,000 and less than 200,000 inhabitants, the aggregate vote cast for the first candidate for elector on each ticket, voted for APPENDIX 133 at last preceding presidential election in such county shall be multiplied by five and the product shall be deemed the number of inhabitants in such county. 2. The county plan commission shall be composed of citizens who shall hold no other public office, one to be appointed by the mayor of each city and incorporated toAvn in the county and there shall be as ex-officio mem- bers the county engineer, the presiding judge of the county court and one other citizen who may or may not be a public official to be appointed by the county court of such county. The commissioners first appointed under this act shall hold office for three, two and one years by mutual agreement or to be determined by lot, appointments thereafter to be for three years, except that appointments to fill vacancies shall be for the unex- pired term only. 3. Such commission shall serve without pay, and shall annually choose from among its number a chair- man and vice-chairman. Such commission shall have power and authority to employ professional assistance, clerks and a secretary, and to pay for their services, and to pay such other expenses as such commission may law- fully incur, including the necessary disbursements in- curred by its members in the performance of their duties as members of said commission. 4. It shall be the duty of such commission to pre- pare from time to time, and to lay before the governing body of each political subdivision within the county, and the countv authorities, and in its discretion cause tobe published^ a map or maps of the county or any portion thereof, studies, reports or recommendations for the pur- pose of securing co-ordained comprehensive plans of highways, roads, parks, parkways, boulevards, play- grounds, reservations or other public grounds, transit and transportation facilities, or other means of inter- communication, water supply, sewerage and sewage dis- posal recreation, housing, location of pubhc buildings and such other matters as may bear on the betterment of such county or portion thereof as a place of residence or for business. 134 CITY PLAN COMMISSION 5. All plans, plats or replats of any lands laid out in lots or plots, and the streets, alleys or other portions of the same intended to be dedicated to public or private use shall first be submitted to the county plan commis- sion and approved by it before same shall be recorded, provided, however, that where a city plan commission already exists in the municipality in which is located the land to be platted or replatted, the action of the county plan commission shall be in the nature of recom- mendation to the local city plan commission. Such plan, plat or replat, having indorsed thereon the approval of the county plan commission or city plan commission as heretofore provided, shall be submitted for action to the county court or to the mayor and city council in which the property to be subdivided is located. It shall be un- lawful to receive or record such plan, plat or replat in any public office unless the same shall bear thereon, by indorsement or otherwise, the approval of the county plan commission or city plan commission and the county court or mayor and city council, respectively. The dis- approval of any such plan, plat or replat shall be deemed a refusal of the proposed dedication shown thereon. 6. It shall be lawful for the board or body having charge of the finances of any county, as aforesaid, to* ap- propriate money for the expenses of such county plan commission. PROPOSED LAW AUTHORIZING CREATION OF CITY PLAN COMMISSIONS IN SMALL CITIES An Act to Provide for City Plan Commissions in Cities, Towns and Villages of This State Which Have a Population of 100,000 or Less, Providing Funds for Same and Defining the Powers of Such Commissions. Be It Enacted by the Senate and General Assembly of the State of Missouri: 1. That any city, town or village having a popula- tion of 100,000 or less, is hereby authorized to appoint a city plan commission. APPENDIX 135 2. The city plan commission shall consist of five citizens, all of whom shall reside in such municipality and who shall be appointed by the Mayor, each for a term of three years ; the Mayor and City Engineer to be ex-officio members of the commission; provided, however, that in the first instance two of the appointments shall be for three years, two for two years and one for one year. Appointments to fill vacancies shall be for the unexpired term only. 3. Such commission shall serve without pay, and it shall be the duty of such commission to prepare, from time to time, plans for the systematic development and betterment of such municipality as a place of residence or for business. It shall have the power and authority to employ clerks and a secretary, and to pay for their services and to pay for such other expenses as such com- mission may lawfully incur, including the necessary dis- bursements incurred by its members in the performance of their duties as members of said commission. The said city plan commission may consider and in- vestigate any subject matter tending to the development and betterment of such municipality, and make recom- mendations as it may deem advisable concerning the adoption thereof to any department of the municipal gov- ernment, and for any purpose make or cause to be made, surveys, plans or maps. Before final action shall be taken by any municipal- ity or department thereof on the location and design of any public building, statue, memorial, park, parkway, boulevard, playground, public grounds or bridge, such question shall be submitted to the city plan commission for investigation and report. 4. All plans, plats or replats of lands laid out in lots or plots, and the streets, alleys, or other portions of the same intended to be dedicated to public or private use, shall first be submitted to the city plan commission and approved by it before it shall be recorded. Such plan, plat or replat having indorsed thereon the ap- proval of the city plan commission shall then be submit- ted for action to the mayor and city council. It shall be unlawful to receive or record such plan, plat or re- 136 CITY PLAN COMMISSION plat in any public office unless the same shall bear thereon, by indorsement or otherwise, the approval of the city plan commission and the mayor and city coun- cil. The disapproval of any such plan, plat or replat by the city plan commission shall be deemed a refusal of the proposed dedication shown thereon. 5. The city plan commission may prepare a plan for regulating by districts the height, bulk, area and use of all buildings in the municipality in the interests of pub- lic health, safety and general welfare. 6. It shall be lawful for the board or body having charge of the finances of any city, town or village, as aforesaid, to appropriate money for the expenses of such city plan commission. INDEX 137 INDEX Page Aesthetic considerations. (See Appearance of city) Appearance of city Ill Advertising value Ill Relation to city plan 112 Appendix 128 "Arbitrary" coal rate 58 Area, growth in XVI Assessment boards, Permanent 34 Proposed law 129 Beauty, considerations of, (See Appearance of city) Belt railways, (See Railroads) Benefit district 28 New York City 29 Washington avenue widening. 29 Billboards and signs 118 Blighted districts XVIII, 76 Bonds, For improvements 32 Term 32 Bowen, S. W., report on river ter- minals 61 Bridges, approaclies to 122 Building lines. Proposed law 128 Widening streets by 33 Buildings, (See Public buildings) Business centers 20, 22, 24 Business district, Boundaries 20, 22, 24 Instability 18, 20, 22, 24 Location, present and fu- ture ....22, 24 Traffic 8, 10, 24, 26 Transit 24. 26 Cabanne Addition streets 2 Checkerboard street plan 2 City plan, purpose of XX City Plan Commission, St. Louis, work of ; pro- gram XXII, XXIV Page Small cities, proposed law . . . 134 Small cities in Missouri 37 City planning. Meaning of XXII Problems of St. Louis ... .XVIII Proposed legislation 128 Utility vs. beauty 112 City planning and housing 101 Civic centers 104 Cleveland 107 St. Louis 106 Cleveland public buildings, group plan 107 Community centers 84 Congestion in development of city XXII, 66 Co-operation between city depart- ments and public . . . .XXIV Cost distribution, widening of streets 30 County plan commissions 37 Proposed law 132 Crosstown thoroughfares 6 Davies, J. Vipond, on transit line costs 49 Definitions of city planning XXII Des Peres Valley, Floods XX Railroad 56, 58 Development, uniform and district- ing 76 Districting 65 American cities 67 Constitutionality 69 Plan for St. Louis 68 Police measure 69 Purpose of 66 St. Louis, need 74 Districting and blighted districts. . 76 Districting and land speculation.. 74 Districts, population 10 Docks, (See River terminals) Elevated lines, (See Transit) 138 CITY PLAN COMMISSION Page Excess condemnation 35 Proposed law 131 Expansion of city v. intensity of development XXII Extension of streets ; new streets, Twelfth St. — Florissant Ave 38, 40 Twelfth St. — Gravois Ave. ... 38 Fifteenth street, (See Twelfth St. — Florissant Ave.) Finance 26 Financial condition of St. Louis, 26, 28 Flood prevention XX Florissant avenue, (See Twelfth St. — Florissant Ave.) Forest Park, entrance to at Lin- dell boulevard ; treatment 122 Grand avenue, business centers. 22, 24 Gravois avenue, (See also Twelfth St. — Gravois Ave. )• Extension to Twelfth St 38 Growth of St. Louis XVI Harbor line, changes 69 High street, (See Twelfth St. — Florissant Ave.) Housing 94 Housing evils, program to rem- edy 98, 101 Housing organization, need of in St. Louis 97 Housing problem. Causes and solution 96 St. Louis 95 Housing program for St. Louis . . 98 Housing and city planning 101 Illustrations, list IX Industrial advantages of St. Louis 55 Instability, Districts in St. Louis, 18, 20, 22, 24 Values of land 66 Installment payment of special assessments 32 Intersections of streets, treatment 122 Interurban railways 52 Page Land, Speculation and districting ... 74 Use in St. Louis 65 Land values, instability 66 Legislation 26 Necessity for new 26, 28 Relating to city planning ; proposed 128 Lewis, Nelson P., On permanent assessment boards 34 On widening of streets and cost distribution 30 Lighting, Major streets 14 Streets lie Loop tor suburban traffic terminal 52 Major street plan 1 Preparation and purpose ..10, 12 Value 14 Market street, widening 24 Metropolitan district in relation to business district 24 Municipal bridge 58 Connection with levee track.. 58 Municipal railroads 56, 58 Natural Bridge Road, connection with Twelfth St. — Floris- sant Ave. route .•. 40 Neighborhood parks 82 New York City, Benefit districts 29 Districting 67 Transit lines, cost 50 Widening of streets ; cost dis- tribution 30 Heights of Buildings Commis- sion report on district- »ng 69 Olive street, widening 40 Method of payment 40 Outer parKs go Panama Canal, effect on St. Louis river traffic 59 Parks (See also Recreation), Distribution, St. Louis 90 Future needs SS Large 80 Neighborhood 82 Small 82 Small, area ss INDEX 139 Page tavlng. Between trolley tracks 120 Major streets 14 Pavements 112 Philadelphia, Building line method of widen- ing streets 34 Street plan 2 Plan Commissions for counties and small cities 37 Plans, list VII Playgrounds 82 Plazas 122 Poles and wires. Major streets 14 Removal 114 Trolley 120 Police power and districting 69 Population, Distribution by districts 10 Distribution in relation to parks 90 Districts 51 Growth XVI Growth and transit 45 Problems of St. Louis XVIII Private property and city plan- ning 65 Program for city planning work in St. Louis XXIV Public buildings 104 Group plan 104 Group plan, Cleveland 107 Group plan, St. Louis 106 Public Buildings Commission, St. Louis 106 Public reservations 80 Radial thoroughfares 6 Importance 3, 4 Railroads 52 (See also Transit ; Transpor- tation.) Connecting Municipal Bridge and Municipal levee track 58 Des Peres Valley 56, 58 Facilities, development 56 Municipal 56, 58 Traffic 52 Rapid transit. Business district 24, 26 Plan 1^' 16 Page Recommendations for immediate action 37 Recreation 79 Centers , 84 Facilities, kinds SO Facilities, St. Louis 86 Needs of St. Louis 88 Problem, complications 84 Statistics, St. Louis 86 Replanning in cities 26 Re-routing of trolley lines 46 Residential streets 6 River front streets 2 River terminals 60 Existing and proposed 60 Report on, by S W. Bowen . . 61 River trafBc 53 Roadway, width 6 St. Louis, growth XVI St. Louis as an industrial center. . 55 St. Louis City Plan Commission, (See City Plan Commission.) St. Louis Public Buildings Com- mission 106 Sanitation of tenements 98 Sewers XX Shade trees 118 Sidewalks ^ 112 Granitoid 114 Signs, (See Billboards and Signs.) Special assessments. Bonds for 32 City's share of cost 32 Justification of 28 Payment 32 Street intersections 122 Street plan, existing, St. Louis . . 2 Street plan, major 2 Street railways 120 (See also Trolleys.) Streets, (See also Sidewalks.) Classes in St. Louis 4 6 Fixing on city plan 36 Importance 1 Lighting 116 Paving 112 Planning for probable use . . 1 Streets and transit 45 140 CITY PLAN COMMISSION Page Subdivisions, Approval, proposed law .... 130 Control 34 Plats for, filing of, subject to official control 34 Suburban areas, control by coun- ty and city plan commis- sions 37 Suburban growth XVIIl Suburban traffic of steam rail- roads 52 Summary of report XIII Subway loop 52 Subways, (See also Transit.) Tenements, (See Housing.) Terminal facilities 56 Terminal loop, suburb.an traffic... . 52 Terminal Railroad Association ... 56 Terminals, (See also River terminals.) Thirteenth street, (See Twelfth St. — Florissant Ave.) Traffic, business district 8, 10 Traffic census 6 Traffic circulation about business district 24 Traffic congestion 1 Traffic problem. Forest Park en- trance. Linden bou! 122 Traffic statistics 51 Transit facilities, present 46 Transit, improvement by street development 46 Transit lines, Cost of various types 49 New York City, cost 50 Transit problem 45 Growth of vs. population growth 45 Transit statistics 51 St. Louis 48 Transit and city expansion 45 Transit and streets 45 Page Transportation 55 (See also Transit.) Trees, (See Shade trees.) Trolley lines, rerouting 46 Trolley tracks. Pavement 120 Treatment 120 Twelfth St. — Florissant Ave., widening and extension. . 38 Twelfth St. — Gravois Ave., widen- ing and extension 38 Union Station as terminal for suburban trains 52 Utility of city plan 112 Veillor, Lawrence, on housing re- form 98 Washington avenue. Widening 38 Report of commissioners .... 29 Water supply XIX Welfare, general vs. individual, in city planning XV Wholesale district 20, 22 Widening of streets. Benefit districts 28 Building line method 33 Cost distribution 30 Gravois Ave. (See Twelfth St. — Gravois Ave.) Market street 24 Olive street 40 Twelfth St. — Gravois Ave. . . 38 Washington Ave 38 Width of major streets 16, IS In relation to transit plan . . . ' 16 Standards is Width of streets. Differentiation by classes .... 6 St. Louis 16, 18 Wires, (See also Poles.) Removal 114 Zoning, (See Districting.)