Cornell University Library TD 25.S2A5 1916 River des Peres plan concerning largely 3 1924 015 817 855 RIVER DES PERES PLAN CITY PLAN COMMISSION SAINT LOUIS, MISSOURI 1916 B Cornell University B Library The original of tiiis book is in tine Cornell University Library. There are no known copyright restrictions in the United States on the use of the text. http://www.archive.org/details/cu31 92401 581 7855 RIVER DES PERES PLAN. Concerning Largely the Industrial and Residential Expansion and Economic Welfare of St. Louis. Prepared by THE CITY PLAN COMMISSION in conjunction with The Department of Public Utilities The Department of the President — Division of Design The Department of Public Welfare — Division of Parks The Department of Streets and Sewers BOARD OF PUBLIC SERVICE. St. Louis, Mo. A. R. Fleming Printing Co. 1916 E,V, liS^^^^D A-SfeSle^ .TO n/4 OFFICE OF THE CITY PLAN COMMISSION October Sixth, Nineteen Sixteen. To THS HONOEABLB Board of Pubi,ic Service, City of St. L,ouis, Mo. Gentlemen: — The danger from flood and pollution in the River des Peres Valley has caused, from time to time, a demand for relief from intolerable conditions. In addition to a proposed sewer and channel for this valley it has been suggested that a railroad be built to complete the belt line about the city, and also that a driveway be built through the unusually attractive scenic area. Realizing that these and other local matters should be given simultaneous consideration, and realizing further that the mere elimination of flood and pollution troubles would not alone give to a vast idle but important section of the city the impetus to the early' residential and industrial development which should come here, the City Plan Commission has caused to be prepared this River des Peres Plan as a basis for any contemplated action. Included in the plan is a sewer and channel designed by the Division of Design, Department of the President, Board of Public Service ; a railroad designed by the Department of Public Utilities, Board of Public Service ; a driveway ; a complete major street plan; and provision for the establishment of an industrial area of- approximately 950 acres. The urgency for relief from present conditions in the River des Peres Valley has prompted the preparation of this report previous to a Comprehensive Ran for the city at large. With respect to the section under consideration, however, the plan is believed to be comprehensive and will be in absolute conformity to all city expansion. While the detail of the plan has been carefully prepared, it is respectfully submitted to your Honorable Board for con- (3) sideration and such wise modification as may result from public hearings or other expression of public opinion. The City Plan Commission indorses this plan as an unusual opportunity for the advancement of the best interests of St. Louis, the future benefit from which will be inestimable. Respectfully submitted, James C. JoNts, Chairman; DwiGHT F. Davis, Vice Chairman; Dr. B, W. Clarke, Chas. H. Diel, Dr. W. H. Fuchs, Clarence H. Howard, lyouis LaBeaume, Proe. a. S. Langsdore, George J. Tansey, Members of the City Plan Commission. E. R. KiNSEY, President Board of Public Service. ^ Nathan H. Hali,, President Board of Aldermen. Chas. M. Talbert, Director of Streets and Sewers. James N. McKelvey, Building Commissioner. Nelson Cunlipe, Commissioner Parks and Recreation. Members Bx-OMcio. Walter B. Stevens, Secretan-y. Harland Bartholomew, Engineer. (4) TABLE OF CONTENTS. PAGE Title Page 1 Letter of Presentation 3 Contents 5 List of Illustrations 7 The Problem 9 Several Considerations. An Unusual Opportunity. The Storm Water Problem and the Disposition of Sewage. . . 14 Present Conditions — Storm Water. Present Conditions — Sewage. Proposed Sewer System. Method of Payment. Streets 22 Principal Radials. Principal Rectangular Streets. The McCausland Viaduct. Streets and Transit. Railroads 29 Residential and Industrial Districts 32 Driveway 35 Conclusion 37 CB) LIST OF ILLUSTRATIONS. Plan No. PAGE 1. River des Peres Plan 8 2. Sections of Proposed Channel and Sewer 19 3. Cross Section of Proposed Main Artery 25 4. Present and Proposed Trolley Lines 27 5. Cross Section of River des Peres Valley 32 6. Proposed River des Peres Driveway 34 (T) £S- ^^ ><35/ ^*< ■^^i\--— .^^^^:^ ~^~&?/y£v K^ 1^1045 ./.. ./^ ■ !t.C» p/\nii\ . Oil s3i:4> >-i^-^= ■<^ y&/ V/< ^^. 1^ ^^ pK;ii ^ M/l.'TA/T\' ^1 ££J_^^r/l aRArm,==== ?fev. s%^ ~4P- SCAL£c/FF£T O /ceo ecco 30C04COD ^to> %>- SHOWING CJiANNEL FVR STORM WATER PROPOSED Bi" DEFT OrSmeETS^SFWBRS A/YD Cay/YECTlNa RAILROAD PBOPOSEDBrDRPtOPRUELICUTILITIfS. STMEET-prTE/rSIO/rSRESIDE/fTIAI^-. Jf/DUSimAL DISTRICTS^ RRfv^mr CITY PLA/Y COMMISSIOTY jEFFES^rf- 's-.. '-s: ^^^ Sept J gj 6 ST. LOUIS MO. /URLA/YD BARTNOianEW £yyo//V£rff <POZ£D RIVER DES PERES CHANNEL & SEWER AS PREPARED BY DIVISION OF DESIGN- DEPARTMENT OF THE PRESIDENT BOARD OF PUBLIC SERVICE PtAN No. 2. (19) 20 CITY PLAN COMMISSION be obliged to pay about three- fourths of the total cost. To wait until the county would unite in building the sewer would involve great delay, invite additional flood and health menace, to save no more than one-quarter of the total cost. There is a very general lack of knowledge regarding the method of assessing the cost of sewers. To show the comparative percentage of cost to be paid by the property owners and by the city in the River des Peres, as compared with other major sewer systems, the following table was prepared by the Division of De- sign, Department of the President, Board of Public Service: Cost Per Acre of Main Sewer System. General Comparison. Special City's City's Tax Share Total Share Mill Creek, Old System $561 $471 $1,022 46% Mill Creek, (now) 1,210 471 1,681 28%' Mill Creek Final 1,210 801 2,011 40% Rocky Branch — Original System 314 264 578 46%' Now (including joint district relief) 560 264 824 32% Proposed Relief 843 406 1,249 33% Final Relief (including East- ern Sewer) 843 630 1,473 43% Ferry Street, Now 394 360 754 48%' Ferry Street, including pro- posed relief 690 394 1,084 36% Harlem Creek 709 198 907 22%, River des Peres, Now 702 89 791 11% River des Peres, Proposed . . 702 456 1,158 39% Old Southern 324 197 521 38% Old Arsenal 451 262 713 37% Southern, with Proposed Work 898 484 1,382 35% Arsenal, with Proposed Work 1,025 549 1,574 35% It will be seen that the average percentage paid by the city is about 40. In all of the older and consequently smaller sewer systems which drained directly into the Mississippi River, the city paid about 37% of the cost. COST OF SEWERS 21 The percentage paid by the city for the old Mill Creek system was 46, it is now 28, but will have been increased to 40 when all the necessary extensions and connections have been completed. The present percentage of cost (11) paid by the city in the River des Peres Valley is by far the lowest and the city's share will just about be normal here as compared with the rest of the city, if the work is paid for through a bond issue. Attention is called to the fact that the highest cost per acre of sewer service is in the Mill Creek Valley — $2,011. This figure consists of $1,210 paid by special tax, $471 paid by the city with $330 yet to be expended by the city. The city's share will then be 40% or the same per cent, which it has paid, or eventually will pay, in all other sewer systems. Short blocks, shallow lots, greater length of sewer per acre or per block, and the practically impervious nature of the district are responsible for the higher figure. The Southern-Arsenal EHstrict will have paid $1,574 per acre and the Rocky Branch $1,473 when all work is completed. They are among the most closely developed sections in St. Louis. In the Ferry Street district, which adjoins the Rocky Branch, the cost per acre will be about $1,100, the lower cost being chiefly because of its smaller area and nearness to the Mississippi River. The Harlem' Creek District is less expensive because large sewers were constructed in the initial work about 15 years ago. It is similar to the River des Peres district in many ways, but cheaper because of an outlet on the Mississippi much nearer the center of its drainage area. STREETS. Once the offensiveness of stream pollution by sewage and the dangers of flood have been eliminated in the River des Peres 'Valley, the next step necessary to make accessible the idle ter- ritory is the planning of principal streets. These should be prop- erly situated and of sufficient width to accommodate any demands of traffic or transit normally to be expected. Premature opening of any of these streets is not contemplated. The actual alignment and width of the major streets should now be determined and definitely established by ordinance, however, to thus preclude interminable difficulty when actual development occurs. Streets once fixed on the city plan have an infinitely greater chance of correct execution than those which for reasons of economy are constructed with insufficient width or imperfect alignment, due to their establishment following initial land development rather than preceding it. The greatest development resulting from improvement of conditions in the River des Peres Valley will occur along the lower reaches of the stream near the southern city limits, east from the Frisco R. R. to the Mississippi River. Many major streets are now to be found throughout this area, especially east of Gravois Avenue. With but one or two exceptions, all major streets for the district will be merely extensions of existing streets. Principal Radials. Manchester Avenue, Watson Road, Old Manchester Road, Gravois Avenue, Morganford Road, Michigan and Ivory Avenues and Broadway are the present principal radial thoroughfares. The term "radial" is used to describe these streets since each has a direction leading toward the city's business center and not in alignment with the rectangular street plan so generally fol- (22) STREETS 23 lowed throughout the city. The purpose of these radials is to permit -rapid and easy movement of traffic to and from the busi- ness center. Since each of the radials will pass through districts used for industry and residence, there is to be expected traffic common to both — ^motor trucks and heavy horse-drawn vehicles, trolley cars and passenger automobiles. The variety of traffic and necessity for rapid movement will require ample street room. These radials, then, should have widths greater than other streets. Based on the probable future demands of traffic and transit, the present and proposed widths of these principal ar- teries are : Proposed Minimum Street Present Width Width Old Manchester Road 60 feet 80 feet Watson Road SO feet 80 feet Wherry Avenue 60 feet 80 feet Gravois Avenue 60-80 feet 80 feet Morganford Road 40 feet 80 feet Michigan Avenue and Ivory Avenue . . 60 feet 60 feet Broadway 80 feet 80 feet Ivanhoe 60 feet 106 feet Several of these radials already exist in the River des Peres Valley. Where widening is suggested, it could be obtained by the establishment of building lines to which future buildings should conform. Some of the radial streets do not yet exist in the River des Peres Valley, and their extension with the desired width would be most simple. On Plan No. 1 will be seen the present and proposed alignment of these radials. No additional radials are considered necessary. St. Louis lacks good cross town streets. In the River des Peres Valley at least one good cross town street should be planned before its construction becomes impossible because of excessive cost. Since the greatest industrial development would probably occur immediately north of the industrial railroad, a cross town street, to be most effective, would pass through the center of the industrial district. Such a street would be in effect a counter radial, in that it would intersect most of the other radial streets 24 CITY PLAN COMMISSION at right angles. It should serve as a great distributing highway as well as for through cross town service. There should be great demand for such a street provided' it be given adequate width and proper terminating points. It is estimated that a width of 106 feet would be required for such a street, distributed as follows: 2 sidewalks each 16 feet 32 feet 2 roadways each 27 feet 54 feet 2 trolley lines each 10 feet 20 feet Total 106 feet See Plan No. 1 for alignment of this street, and Plan No. 3 for cross section. The eastern terminus of this street would be at the Alabama Avenue bridge or on Broadway via Davis Street; the western terminus at Old Manchester Road and Ivanhoe Avenue, from where it would connect directly with Manchester Avenue and McCausland Avenue, by means of a viaduct. From the latter point traffic could go east, west or north for indefinite distances. Over this viaduct could come traffic and a trolley line from the northwestern part of the city (such as the Hamilton Line), and continue south and east to the city limits. As a cross town thoroughfare the route would be unsurpassed. The McCausland Viaduct. Not only would the proposed viaduct serve as a link in the major street plan, but it would also be of immeasurable benefit to the immediate locality. . The Frisco Railroad acts as an, insur- mountable barrier to communication between the section along Manchester Avenue near McCausland Avenue and the section about Ivanhoe Avenue on the hill east of the Frisco. Old Man- chester Road is the only present connecting link between the two districts and its extreme grade makes it a most ineffectual tie. West of Kingshighway there are no good crossings of the River des Peres Valley. A few dangerous railroad grade cross- ings occur which are avoided as much as possible. A viaduct as (26) 26 CITY PLAN COMMISSIO N suggested at one of the busiest points would be of tremendous advantage, greater probably than some of the viaducts already- built. For numerous reasons, particularly because of topographical conditions, street plan and economy, it would be uriwise to build this viaduct at another point. Its cost is estimated at $437,600. This cost should most properly be paid through a bond issue rather than out of current revenue, as has been customary here- tofore. It is questionable as to just how much of the cost could be charged up to the railroads for the elimination of grade crossings. The cit/s share is estimated at about $400,000. Principal Rectangular Streets. Supplementing the large radial streets there should be a system of streets having the same general direction as the great number of small streets, but wider, and at such distance apart as to afford effective means of distribution of traffic throughout the entire area. The streets should be the connecting link be- tween homes or factories and the major radial streets. Their existence is most essential. Already we find the beginnings of such a system in the district in question, but it is far from com- plete. Certain widenings and extensions are necessary. On Plan No. 1 is shown a complete system, which would not be difficult to obtain. The present and proposed widths of certain streets or extensions comprising this system are as follows : proposed Minimum Street Present Width Width Loughborough Avenue 60-70-80 feet 60 feet Bates Street 60 feet 60 feet Eichelberger Street 50^60 feet 60 feet Nottingham' Avenue 60 feet 60-80 feet Chippewa Street 60 feet 80 feet Fyler Avenue 45-60 feet 80 feet Arsenal Street 60 feet 80 feet Hampton Avenue Sulphur Avenue 60 feet 80 feet Brannon Avenue 60 feet 80 feet Morganford Road 40 feet 80 feet —PROPOSED TROLLEYUNES In ODNNECn<»l - Wtw RIVER-DESKISS PLAN pkesent Uncs Pl,AN No. 4. (27) 28 CITY PLAN COMMISSION Streets and Transit. The failure of the southwestern portion of St. Louis to develop as it should, particularly in sections removed from the River des Peres Valley, is partially due to a lack of transit facilities. To a limited extent transit facilities should precede development. Lack of good transit is all that stands in the way of extensive development in the southwestern part of the city. In planning a major street system, therefore, the probable future transit needs have been considered. On Plan No. 4 is shown a system of proposed transit lines which would effectively serve most of the area in question. Streets where transit lines will come should be wider than those which are given over ex- clusively to vehicular travel. As a basis for planning the major system of streets, the proposed transit plan was first devised so that on no major street where transit lines should come would there be a minimum width of less than 80 feet. On major streets without transit lines a minimum width of 60 feet is planned. RAILROADS. As a part of this "River des Peres Plan," a municipal rail- road is proposed from the levee at the mouth of the River des Peres to the Frisco and Terminal Railroad intersection at Maple- wood. With the completion of negotiations now pending, the city- will come into possession of a railroad system extending along the water front from the Chain of Rocks to Arsenal Street. This could be extended on the top of the levee to the River des Peres. The present proposal is for a further extension through the River des Peres Valley westward to where the Frisco Railroad and the right-of-way of the Terminal Railroad join. While the Terminal Railroad has acquired and graded a right-of-way tO' the Frisco tracks, it has not yet completed its construction between the Frisco and Missouri Pacific in Maplewood — a distance of some- thing less than one mile. Construction of this is believed to be merely a matter of time and expediency. A municipal railroad system as outlined would be of great practical advantage to the industrial development of St. Louis, for by means of this system a connection with all railroads en- tering St. Louis could be effected. A complete railroad belt would be established witli connections with the Terminal Railroad in Maplewood and near the river front in the vicinity of the old waterworks. The further practical advantage of this system is predicated upon a direct connection to the tracks of the new Municipal ("Free") Bridge. ' The two chief benefits to be derived from such a system as described would be ( 1 ) the opening up of large areas, now idle, to good industrial use, and (2) opportunity to direct through freight around the city rather than into the congested Mill Creek Valley, as is now done. With regard to the railroad in the River des Peres Valley only, with which this report is immediately concerned, its con- struction at the present time is justified even without immediate complete connections, for at either end it would tie into a much (29) 30 CITY PLAN COMMISSION used railroad, the St. Ivouis & San Francisco on the west and the Iron Mountain on the east. As the elimination of danger from flood and contamination and the development of a proper street plan will be of immediate encouragement to the development of this valley, so the building of a railroad will at once furnish one of the prime requisites. The topographical nature of the valley is such that little land immediately south of the present and proposed channel is suited for industrial use, due to an abrupt rise, making railroad approach difficult. North of the present and proposed channel, however, there is considerable bottom land and only in the ex- treme west does the ground rise abruptly. For this reason, the railroad has been planned north of the new channel. A further reason for this location next to the channel is that excavations for the new channel can be used as fill for the railroad, thus eff ectirtg a very considerable economy in construction cost. Just south of the channel and parallel to it is the city boundary line, so that any extensive industrial develop- ment resulting from a railroad on the south side of the channel would necessarily be outside the city limits and of consequently little benefit to St. Louis. Where connections are made with other railroads at either end of the line, and where several large streets cross the valley, expensive development is encountered along the railroad right- of-way, necessitating some little cost for condemnation of land and for bridging. The street plan and railroad have been so planned as to avoid any undue number of bridges. The cost of the line is not considered great, however. It can never again be built for the present figure. The cost, as ccnTipared with the resultant effect of a railroad in the valley in new industries, busi- ness and increased taxes and ratables, is a comparatively small item, irrespective of the value of the line as a link in the complete railroad belt line. The total cost for the construction of the railroad, including right-of-way, grading, culverts, bridge construction, paving, track work and all related items is $526,615.* *From report of John A. Knox, Assistant Engineer, Department of Public Utilities. INDUSTRIAL RAILROAD 31 The cost here given is for a line which will connect at grade with the proposed Municipal Railroad on the levee and with the Iron Mountain Railroad, pass over Broadway, Alabama Avenue and intervening streets, descend to grade near Grand Avenue and pass under Morganford Road, Gravois Avenue, Watson Road, rise on grade near Wabash Avenue from where it would turn west, bridging the valley, and connect with the Frisco tracks and Terminal right-of-way. Should occasion demand a change in the grade of this road at any of the crossings, these items of cost would be altered. At all intersections with major streets, there is a separation of grades, so that there is at present no ap- parent reason for change of plan. RESIDENTIAL AND INDUSTRIAL DISTRICTS. Material excavated for the new channel of the River des Peres will be used to build the railroad and to fill in the old channel. Two large areas will be made useful which at present are idle. One of these is bounded by Morganford Road, Weber Road, Alabama Avenue, Schirmer Street, Eugene Avenue and Blow Street. The second is bounded by the proposed railroad, Bancroft Avenue, McCausland Avenue, Nottingham Avenue, Donovan Street, Eichelberger Street, January Avenue and Brunswick Street. These two areas are shown on Plan No. 1 as industrial territory. Each includes some land not now subject to overflow and used for farm purposes. In general, however, the land is idle and would be of great value as industrial property, due to its proximity to the new industrial railroad and the op- portunity to obtain switch connections into very nearly all property. Approximately 950 acres of ground is included within these two tracts which would be no inconsiderable addition to the present limited available industrial property in St. Louis. No detail street plan for these tracts is suggested since the major streets previously outlined will care for the majority of traffic and the location of minor streets is of no great moment. Obviously there will be demanded by the various plants locating here, tracts of varying size necessitating unusual block dimensions and consequently irregular minor street plan. A larger area for industrial use would be highly desirable, but the strict limitations of proximity to railroad, existing de- velopment and characteristics of adjacent territory, make this im- possible. East of Alabama Avenue, for instance, the territory is at present entirely built up, while it would be inadvisable to have factories north of Blow street, since the land here would be inac- cessible for railroads, and furthermore, there should be residential rather than industrial development adjacent to Carondelet Park. (32) asks wi yx^ ' Lj r J i imaa g iii^w.,.^© «=fe& StCriON C-C I600 F£ET EAST OF MORGANFORD ROAD SHOWING PROPOS £ D CHAR/^CT£P OF DEVELOPM EN T IN RIVER DE3 PERES UA L L C Y CITY PLAN COMMISSION ST. LOUI^ MO Plan No. 5. INDUSTRIAL DISTRICTS 33 Between Morganford Road and Kammerer Avenue, in the River des Peres Valley, there is a strip of land which could be de- veloped for industries but, like that north of Blow Street, it would be better suited to residence, particularly since the proposed driveway will follow the line of Kanunerer Avenue. West of Kammerer Avenue, considerable land is used for cemeteries and for residences, which have centered about Gravois Avenue. Just west of Gravois Avenue and north of the new railroad lies the second industrial district. This is limited on the north by probable residential development at Bancroft Avenue and Eichelberger Street, land north of these streets being far better suited for residential than for industrial development, much of it being so used at present. Examination of the plan will indicate that several residential areas have been provided adjacent to the industrial districts. While a residential district next a factory district would not seem most desirable, at first consideration, it indeed is quite essential. Here can be built homes for the workers on ground best suited for residence, while the objectionable elements of time, travel and traveling expenses are eliminated. This is a much desired condition in many manufacturing cities. Several large industrial institutions have even gone so far as to build model homes ad- jacent to the factories which are rented to the employes, the pur- pose being to aid the employes in securing good living conditions with a minimum of expense and inconvenience. The actual establishment by the city of a residential or in- dustrial district from which other development would be excluded is something never before attempted in St. Ivouis. This has been done in other American cities, however, notably Los Angeles, New York and Minneapolis, and a similar establishment would be of tremendous benefit to St. Louis, especially in a development of the character under discussion. secTiON a-B looo ft w£St of i^atsom ro^o PLAN SHOWING RE.LAriON OF PROPOSED RiVER DES PJERES DRIVE TO PRESENT PARK SrSTEM CITY PLAN COMMlSSfCi/^ ST j.auis MO S£fT laie. HARI-^r/O BAttrHOLOMBW CNQIftEBR Plan No. 6. (34) DRIVEWAY. From the Frisco Railroad in L,indenwood east as far as Morganford Road, there is a strip of property between the city line and the proposed channel which varies in width from 150 to 800 feet, being about 200 to 300 feet wide on the average. This land is mostly unused. With the proposed improvements of channel and railroad it would still be of little use for residence or industry, due to inaccessibility and its steep slope toward the river channel. Because of its natural attractiveness, its use for park purposes is suggested. The very limited width, however, would demand that a drive, rather than a number of disconnected parks, could best be built. Careful study of the relation of this area to the park system of St. Louis indicates that it could profitably be made a part of the city's park system by incorporating it as a portion of a drive extending from Kingshighway southwest by a circuitous route to McCausland Avenue. From Forest Park at Clayton Road and Skinker Road to Forest Park at Kingshighway and Oakland Avenue there would then be a continuous drive of approximately 1 1 miles over McCausland, the new driveway and Kingshighway. Such a circuit would be of unusual beauty in many places, would afford an excellent opportunity for demonstrating the ad- vantages of a large part of the city about which comparatively little is known by the average St. Louisan, while its complete closure as a part of the park system would be a most pleasing feature, a result which other cities are spending enormous sums to obtain. With the development of pleasure vehicles has come a demand for drives and driveways connecting the parks almost as insistent as for the parks themselves. The opportunity here presented is, to say the least, unusual, and its equal cannot be had again within the city limits. The route and design of the driveway are shown on the ac- companying plan. In general it is proposed to have two 30-foot roadways separated by a planting strip 100 feet wide, there being 30-foot planting strips on either side of the roadways. Where the right-of-way is narrow a single roadway of 60 feet can be (35) 36 CITY PIvAN COMMISSION built with a 30- foot planting strip on either side. Bridges will be necessary to connect with the viaduct over the Missouri Pacific tracks at McCauMand Avenue, under the Frisco tracks at Linden- wood and over the channel and industrial railroad at Kammerer Avenue. These bridges would be 80 feet in width, with a road- way 56 feet wide and two sidewalks 12 feet wide. Some varia- tion in the width of the center parking strip would occur where it would be necessary to place the roadways either on top or at the foot of an unusually steep slope. The estimated cost of the driveway and adjacent park land, 280 acres in all, bridges, grading, paving and parking complete, is $1,277,668. The cost of the driveway should be met wholly by bond issue since it would be of lasting benefit to the entire city and would be of little or no benefit to local property. North of the driveway would be the new channel and railroad and on the south would be the city line, benefit assessments on either side being impossible. It is possible that some benefit assessments could fairly be levied against adjacent property from McCausland Avenue to the Frisco tracks, and from Hamburg Avenue to Kingshighway Southwest, but the unusual forms of construction in both places would greatly limit any extensive benefit assessments. All things considered, it would seem that this improvement could best be financed through a bond issue. The greatest degree of usefulness would occur after the com- pletion of Kingshighway Southwest, an undertaking which it is hoped will soon be completed, and the widening of McCausland Avenue from 60 to 80 feet. The latter could probably best be done by the establishment of a new building line and its cost paid for partly by assessment and partly by the city. This driveway, with adjacent park area would add 280 acres to the city's park area, a small but desirable addition. The city's increase in park area has been at a standstill for several years. In adding to its park area St. Louis has not kept pace with other large cities. CONCLUSION. The total cost of the River des Peres Plan is $8,019,118 di- vided as follows : Open Channel, closed sewer and all other related con- struction $5,815,450 Double track industrial railroad complete 526,000 Driveway from Kingshighway Southwest to McCaus- land Avenue and Manchester 1,277,668 Ivanhoe Avenue — McCausland Viaduct (city's share) 400,000 Total $8,019,118 It is proposed that the entire sum should be raised by a bond issue, the term of which must be 20 years, according to the present limitations of the State Constitution. Each cost item is for an improvement of city wide benefit, as previously explained. The construction of the sewer and channel for the disposition of sewage and relief from floods is an imperative undertaking. The danger to health and property is constantly increasing. So great is the demand for relief that right-of-way for the channel will gladly be given by many owners, some of whom now have damage suits pending against the city. Many owners have al- ready signified a willingness to donate land for channel, railroad and driveway, thus probably reducing by a considerable sum the cost of land condemnation as estimated above. Approximately 72%' of the entire cost of the proposed plan is for the sewer and channel which the city must soon construct. When it is considered that for an additional 28% ($2,203,668) untold benefit can be derived in the opening up of idle territory to industries and residence, with highly desirable railroad facilities, a complete circuit driveway and a good street plan, the necessity for simultaneous action on all projects seems obvious. St. Louis, among other progressive American cities, has in- terested itself in modern city planning. In the River des Peres Plan is presented a city planning possibility which many cities would welcome and undertake at far greater expense than the (ST) 38 CITY PIvAN COMMISSION present plan involves. It is because of the opportunity for con- structive city planning that the City Plan Commission has caused the publication of this report. The Commission indorses the plan most heartily, believing as it does, that it is for the very best interests of the City of St. I/>uis. In April, 1917, a referendum on a municipal bond issue will probably be held. Provision for the River des Peres Plan should be made in that issue, for, to repeat a previous statement, no greater or far-reaching undertaking for the commercial and in- dustrial advancement of St. Louis can be conceived. PRELIMINARY STATEMENT ON DISTRICTING A REASONABLE EXERCISE OF THE POLICE POWER FOR HEALTH. SAFETY AND GENERAL WELFARE PUBLISHED BY THE CITY PLAN COMMISSION OF ST. LOUIS JULY, 1916 ■ / Wilson Printing Co., St. Louis. Districting is the power of a city to control, to a limited extent, the character and extent of aU, building development within the city. It means the establishment by the city of restrictions governing the height, the occupancy and the area of ground to be covered, of all buildings. Districting is the establishment and enforcement of restrictions by the city in the interest of all, rather than the establishnient of less effectual restrictions by private covenant or in deeds of sale. Intermingling of residences^ stores and factories is a common, though most undesirable condition; a condition most uneconomic and most unhealthful. The invasion of a good residence district by an apartment, a store or factory, often results in the immediate depreciation of property values for a distance of several blocks, and usually spells the doom of the neighborhood for its original purpose. Nothing that can be done can restore those original values. Districting is justifiable as a reasonable exercise of the police power in the interests of health, safety and the general welfare. A proper and reasonable districting plan means more to the economic welfare of a city than can be estimated. It means the preservation of present true values, the conserva- tion of future values, a more uniform city expansion than has hitherto been customary, and a greater degree of stability in values of land and improvements. In every city the com- mercial, financial, industrial and residential districts are quite clearly defined, for each district seeks locations best suited for its particular purpose. Since no definite limits to these districts exist, however, overlapping usually occurs and here is where the most chaotic and detrimental conditions occur. The enforcement of a proper districting plan would prohibit haphazard tendencies and fix each district so that it might develop to its uttermost. HEIGHT RESTRICTIONS. All large cities place usually arbitrary limitations on the heights of buildings. Some of these follow: Baltimore 175 feet Berlin 72.2 feet Boston— 1. Cologne 65.6 feet (District A) 125 feet Dresden 72.2 feet (District B) 80-100 feet Edinburgh 60.0 feet Chicago 200 feet Hamburg 78.7 feet Cleveland — 1 200 feet Leipzig 72.2 feet Indianapolis 200 feet London 80.0 feet Washington, D. C. — Paris 65.6 feet (Pennsylvania ave.) 160 feet Rome • 78.5 feet (Business Sts., 2) 130 feet Stockholm 72.2 feet (Residence Sts.) 85 feet , Vienna 82.0 feet St. Louis 250 feet 1. Not to exceed 2% times width of widest street. 2. Not to exceed street width, plus 20 feet. European height limitations are much less than Ameri- can, chiefly because the iormer have a more direct relation to street width. Some American cities have determined height limitations on the basis of street widths, though the multiple is usually greater than those used in Europe. The basis of height limitation is that of street width, simply because light cannot penetrate to the lower floors of buildings where these are unduly high on both sides of the street. Air and ventila- tion are also factors of importance. AREA LIMITATIONS. Yards and courts provide necessary light and air to build- ings from the sides and rear. Obviously, buildings in a single block should occupy a similar proportion of lot to enable each to contribute unii'ormly to the general supply of light and air. A building covering 100 per cent of the lot and several stories high, is dependent on adjoining property for its sup- ply of light and air. When several adjoining properties are thus built on, they are unable to secure adequate light and air, with the result that each building becomes detrimental to the health of those who live or work therein. These prin- ciples are usually realized and the evils guarded against through enforcement of laws governing tenement house con- struction. They are not adequately guarded against in the ' regulation of other structures. The economic advantage of limited area as well as height restrictions is readily under- standable. A proper districting plan would not ignore existing con- ditions nor would it be oblivious of future requirements. Pre- scribed height and area restrictions would be governed by existing conditions, and where intensity of development is greatest, the restrictions would be less stringent than in sec- tions where little or no development has taken place, thus insuring more desirable conditions in the interest of the gen- eral welfare and incidentally insuring a greater degree of uniformity. OCOUPANOY RESTRICTIONS. The reasonableness of segregating residence from indus- try and from business is obvious. It is clearly in the interests of public health and public safety. Not only are the. noise, smoke and dirt common to industrial districts harmful to the health of those who may live continually amid such condi- tions, but the danger of accident to children is evident. One of the greatest economic losses in large cities is from the deterioration of whole neighborhoods which have been in- vaded by undesirable businesses immediately upon the ex- piration of limited restrictions originally established in. deeds of sale. Sucli invasion may eventually have been warranted through, the natural processes of expansion, but a proper dis- stricting plan would prohibit unwarranted or untimely inva- sion of a detrimental character and would permit a change in use only by petition of a majority of those affected. , Legislative acts in New York, Massachusetts, Miimesota and "Wisconsin authorize the establishment of residential or industrial district, or both, under certain conditions. In Seat- tle limitations are placed on the location of buildings used for certain purposes. In Los Angeles the entire city, except- ing two suburbs, is divided into residential and industrial dis- tricts. In European cities, districting is carried to a much greater extent tiian in America. CONCLUSION. The rapid haphazard aad uneconomic growth of Ameri- can cities has made necessary some form of municipal regu- lation such as can be accomplished by a districting plan. While such restrictions can never entirely relieve evil ten- dencies and practices, their enforcement will unquestionably be an improvement on present methods or lack of method. Court decisions have upheld their constitutionality when they can clearly be shown to be a "reasonable exercise of the police power." REFERENCES. Report of the Heights of Buildings Commission, New York — 1913. Tentative Report Commission on Building Districts and Restrictions, New York— 1916. City Planning, edited by John Nolen. Housing Problems in America, Proceedings National Housing Con- ference — 1915. Protecting Residential Districts by Lawrence Veiller in Proceedings National Conference on City Planning — 1914.