NAC ON MAKING A CITY TO BE PROUD OF YOU CAN BE proud of things well done, — if you help to do them. If you help to make your city a place where hone^ business gains fair profits and decent people live in peace and comfort then you may be proud of it; not otherwise. City Planning is simply the watch- word of those who see plainly that it pays to ask. wise and honeSt men to attend diligently to the city's busi- ness, and who themselves every day do and say something which helps to carry out a wise City Plan. Cornell Hnbersitg OF THE CoUeoe of Ercbitecture .^y,S3.'^.. \mmiM 1076 Cornell University 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/cu31924024418935 CITY PLANNING FOR NEWARK THE CITY PLAN COMMISSION NEWARK. NEW JERSEY NEWARK, N. J. L. J, HARDHAM PRINTING COMPANY 1913 b^ n3 OFFICE OF THE CITY PLAN COMMISSION Newark, New Jersey, December 31, 1913. To the Honorable, the Mayor and Common Council of the City of Newark, 'N. J. Gentlemen : We hand you herewith a summary of the work of this body since its appointment by you, two and half years ago, June 1, 1911. In this summary we have included a few of the many facts we have caused to be gathered con- cerning Newark's present condition, all the recommenda- tions we have made in the several reports heretofore sub- mitted to you, and a few suggestions not previously pre- sented. To these we have added, with a view to future work, a brief outline of some of the more important of those aspects of city planning which we haVe not yet taken up at all or have considered only briefly. The index covers the contents of this volume, and indexes in considerable detail also all of the reports that we have compiled, whether they have been printed or not. We have thus made this report a key to the greater part of the city planning material which we have gathered. We have found the work which seemed to fall within the city plan commission's duties of the keenest interest. Our requests for information, suggestions and co-opera- tion made to citizens, civic bodies, private corporations and all departments of the city government have met with hearty response. Our recommendations have everywhere been courte- eously received and we believe have helped to increase the sum total of intelligent interest on the part of our fellow citizens concerning the future of our city. IV CITY PLAN COMMISSION We hope this volume will prove a useful handbook for all private citizens and public officials who wish to know their city, wish to see it grow in efficiency and beauty and are willing to work for its improvement. Respectfully submitted, David Grotta, President. Austen H. McGregor, Vice-President. Frederick J. Keer, Treasurer. John Cotton Dana. Christian W. Feigenspan. GusTAVus Staehlin. Joseph M. Byrne. Richard Stockton. Members of the City Plan Commission. Robert L. Ross, Secretary. E. P. Goodrich, George B. Ford, Expert Advisers. Harland Bartholomew, Assistant Engineer. SUMMARY A brief review of the contents of tliis volume is here given for ready reference and for the use of those whose time will not permit a careful perusal of the entire book. The Introduction gives facts and figures which tell why Newark is a good place in which to live and do business. Business and residential districts of the city are noted, as are also sewer system, water supply, death rate, wages for skilled and unskilled labor, rents of homes for all classes, prices of land for business and residential purposes, prices of water, gas and electricity, and the fact that many great railroads cross the city. It calls atten- tion to Newark's good government, schools, churches, public and private hospitals, benevolent institutions, recreational facilities and financial institutions. Chapter I. contains a brief statement of the functions of a good city plan. Many suggestions for improvements in the street system are shown by maps, with brief notes on why each change is needed, what it would accomplish and how much it would cost. It shows how these improvements could all be com- pleted within ten years under existing laws. The princi- ples of excess condemnation are discussed. Chapter II. is devoted to municipal decoration. The more important street intersections, public plazas and approaches to the city are pointed out and suggestions are made for an attractive architectural treatment of each. Among those discussed are : Broad and Bridge Street Intersection, Military Park Rearrangement, Ironbound Plaza on Market Street and Clinton Avenue Plaza at Elizabeth Avenue. Chapter III. treats of the width and arrangement of streets. The problems due to increasing demands of VI CITY PLAN COMMISSION traffic are discussed. The many functions of a street are described, as well as their several types. Examples of how other cities are meeting street prob- lems are cited. The zone system is described. Newark's principal thoroughfares are held up to view and suggestions offered which would make them individually more efficient and, collectively, a great and unified system. Chapter IV. is on harbor development. The advan- tages of the New Jersey shore are compared with those of New York. " • A Commission, armed with State authority, is recom- mended, which would have jurisdiction over all develop- ment in communities which border on Newark Bay. Other recommendations include the removal of obstruc- tions at the entrance to the bay and the removal or improvement of the Central Railroad bridge. Local development is discussed, and suggestions are made for procedure if this method is to be followed exclu- sively. Figures are given which show the extent of Newark's commercial and industrial activities. Examples of inc^is- trial foresight in foreign cities are shown. Federal improvements of Newark's waterways are described. Chapter V. restates the opinion of this Commission that the present Centre Market should be abolished, that a wholesale market should be established near the freight yards at South Broad Street and that certain local retail markets should be established. Only in this manner will Newark's food supply be systematically and economically handled. Chapter VI. reviews the trolley transportation prob- lem. A description of the study made by this Commis- sion is given. The new terminal scheme is described and the city's duty is shown, in that all studies point to the same conclusion — that the only complete solution of SUMMARY VII trolley congestion lies in the opening and widening of certain streets in the central part of the city, and this the city alone can do. Chapter VII. is a review of the Morris Canal situation. The construction, uses, property titles and legislative con- siderations are given in as much detail as space allows. The problem is one of State-wide scope. The local aspect of the canal situation is described, as is also a plan for abandonment. Chapter VIII. is devoted to municipal recreation. The attendance and features of playgrounds are given in tabular form and otherwise. A department of municipal recreation is recom- mended, and the acquisition of new playgrounds. Chapter IX. contains a review of all which has been accomplished by this Commission in its two and a half years of existence. Each of the published reports is reviewed and a list of the same is given at the conclusion of the chapter. Chapter X. tells of the many branches of work as yet untouched or unfinished, some of which this Commis- sion will take up during the ensuing year. TABLE OF CONTENTS Letter of Presentation iii Summary v Contents ix List of Illustrations xv Newark's Advantages xvii (J. C. Dana) Section I. — Excellently Situated. Section II. — Homes and Savings. Section III. — Manufacturing Figures. Section IV. — Progressive City. Section V. — Schools and General Welfare. CHAPTER L Suggested Improvements in the City Plan. (Harland Bartholomew) Functions of City Planning. Front Street. Diagonal Street. Washington Street. Bridge Street. Lafayette; Street. Frelinghuysen Avenue. Beaver Street. Plane Street. Belmont Avenue and Norfolk Street. Green Street. High Street. Third Avenue. Jackson Street Bridge Approach. Vailsburg Section. Southern Section of the City. How to Obtain Results. Excess Condemnation. CITY PLAN COMMISSION CHAPTER II. Municipal Decorative Improvements 43 Civic Activities. Public Plazas. Broad and Bridge Street Plaza. Military Park. Market Street Plaza. Railroad Environments. Clinton Avenue Plaza. CHAPTER III. Street Widths and Arrangement 55 Street Congestion. Land Distribution. Street Standardization. Width of Streets. Evolution of. a Street. Dedication of a Street. Widening Costs. Examples in Other Cities. District of Columbia. The Zone System. Suburban Thoroughfares. Crosstown Highways — East and West. Crosstown Highways — North and South. , Conclusion. CHAPTER IV. Harbor Development 68 Section 1. — A Broad Plan and a State Commission. The Port of New York, the World's Industrial Centre. Industrial Disadvantages of Manhattan and Long Island. Advantages of New Jersey's part of the World's great port. The Special Claims of Newark and Elizabeth Meadows. Facts to be kept in mind concerning Harbor Development. The work should be treated as one of a Com- munity of Interests. Two Fundamentals. TABLE OF CONTENTS xi Section 2. — Newark Bay Port District. No detailed suggestion oflfered, Section 3. — If treated as a Newark Problem only. Sectipn 4. — Newark's Present Plans. Section 5. — Newark's Industrial Growth. Newark Manufactures. Building Construction. Storage Buildings. Factories and Alterations. Commercial Activities. Section 6. — Newark Commerce. Newark Bay and Passaic River Freight. Passaic River at Nairn Linoleum Works. Section 7. — Foreign Examples of Industrial Fore- sight. German Ports: Emden. Bremerhaven. Hamburg. Lubeck. French Ports. Newark and Foreign Ports. Port of Portland, Oregon. Section 8. — Federal Improvements of Newark Waterways. Section 9. — Newark's Deep Water Front — Ample for the present. CHAPTER V. The Market Problem 90 Centre Market Present Conditions. Abolition of Retail Market. The present Site. Wholesale Market. Farmer's Market. Public Opinion. Supplemental Suggestions. The Bond Issue. Sub-Markets. The Retail Market Fallacy. XII CITY PLAN COMMISSION CHAPTER VI. Trolley Transportation 100 (Harland Bartholomew) The Problem. Public Loss. Public Service Railway Co. Study of Conditions. Re-routing. Trolley Transportation Report. Attitude of the Commission. Public Service Terminal. The City's Duty. CHAPTER VII. The Morris Canal 115 (Based on information furnished by Fred G. Stickel, Jr., Secretary, Morris Canal Investigating Committee.) Construction of the Canal. Titles to Canal Property. Basin of 1867— Grant of 1889. Commercial Use of the Canal. Legislative Commission of 1905. Agreement of Overhead Construction. Taxation of the Canal. Legislative Committee of 1912. Present Morris Canal Investigation Committee. A State Problem. Park Boulevard Plan. Newark and the Canal. CHAPTER VIII. Municipal Recreation .....125 (Based on information furnished by J. Leonard Mason, Secretary, City Playground Commission.) Recreation and Citizenship. Demand and Supply. Classification of Playgrounds. Park Playgrounds. Playflelds. TABLE OF CONTENTS xiii Game Fields. Athletic Fields. Wading Pools. School Playgrounds. City Playgrounds. Grounds and Buildings. Recreation Buildings. Public Baths. A department of Municipal Recreation. New Playgrounds CHAPTER IX. Review of the Commission's Work 133 Appointment. Organization. Enabling Act. Secretary. Experts. Preliminary Report. Appointment. Market Report. Traffic Report. Broad Street Paving Report. Housing Report. Annual Report. Experts. Diagonal Street Resolution. Supplementary Market Report. City Plan Law. Sign Report. Farmers' Market Resolution. Nye Tract. Trolley Transportation Report. Romaine Place. Sanford Avenue Heights. Oakland Terrace. Meadow Report. Asylum Tract. City Planning for Newark Report. Reports Issued by the City Plan Commission. XIV CITY PLAN COMMISSION CHAPTER X. Future Work of the Commission 142 (Geo. B. Ford) Water Front. Railroads. Streets. Street Fittings. Sub'Structures. Rapid Transit. Industrial Districts. Market System. Housing. Recreation. Parks and Parkways. Civic Structures. Restrictions. Paying for Improvements. Publicity Campaign. Conclusion. Index - 149 (W. B. Morningstern) UST OF ILLUSTRATIONS Newark's Strategic Position xviii Passaic Valley Trunk Sewer xix Passaic Drainage Basin xx Elements of Newark's Population xxi Congested and Undeveloped Residential Area xxiii Moderate and Expensive Residential Area xxiv Newark Factories xxvi Metropolitan Newark xxviii Location of Parks, Public Buildings, etc xxx 1. Front Street, Straightening 5 2. Diagonal Street, Proposed 7 3. Market Street Buildings to be condemned at south end Diagonal Street 9 4. Washington Street, Straightening 11 5. Bridge Street, Widening 13 6. Lafayette Street, Widening 15 7. Frelinghuysen Avenue, Continuation 17 8. Beaver Street, Extension 19 9. Plane Street, Continuation 21 10. Belmont Avenue and Norfolk Street Connection 23 11. Green Street, Extension .". 25 12. High Street, Straightening 27 13. Third Avenue, Extension 29 14. Jackson Street Bridge Approach 31 15. Vailsburg Section 33 16. Southern Section of the City 35 17. New Museum and Library 42 18. Bridge Street, the Gateway of Newark 45 19. Bridge Street Plaza 47 20. Iron Bound Plaza 49 21. View Across Iron Bound Plaza 51 22. View Down Diagonal Street 53 23. Suggested Arrangement of Streets 54 24. Newark Bay and Meadows 75 25. Meadow Development, Board of Works Plan 79 26. Centre Market Relocation 93 27. Residential Map 99 28. TrafBc at Broad and Market Streets 101 XVI CITY PLAN COMMISSION 29. Flow of Daily Travel 103 30. Chart of Hourly Riders, Orange Line 105 31. Chart of Comparative Seats and Riders, Orange Line 107 32. Resume of Traffic Counts 109 33. Public Service Terminal Ill 34. Public Service Terminal, Cross Section 113 35. Extension of Trolley System 114 Improvements in Center of City facing page 1 Newark and Contiguous Territory Insert in rear of book NEWARK'S ADVANTAGES A book on city planning suggests improvements. To suggest improvement is to say something is wrong which improvements can make right. So this volume, full of suggested improvements, points at a good many faults in Newark. This commission does not like to give a wrong im- pression of our great city. So we put into this introduction some of the facts which help to make Newark a good place in which to live and do business. I. Excellently Situated Newark extends for six miles north and south along a high ridge which rises a little west of the Passaic River and Newark Bay. The city covers the ridge and flows down into and across the hollow beyond it on the west, and out upon the low-lying plain between it and bay and river on the east. The summit of the ridge looks eastward beyond the Hudson to the giant buildings of Manhattan, nine miles away, and westward four miles to the Orange Mountains. Newark is thus set on a hill. The greater part of all its people have their homes well up from tidal river and bay and the salt marsh lands which border the latter. The town is for the most part high and well-drained. A complete sewer system and a well-nigh perfect and most ample water supply help to make the good location still more healthful. The death rate last year, 14.34, is bet- tered by few large cities and shows that in the advantages just noted must be included efficiency in health adminis- tration. XVIII CITY PLAN COMMISSION Shows Newark's strategic position for manufacturing and commerce. Note how it is crossed or closely approached by nearly all the great railway systems of the United States just as they reach the Port of New York. From the Newarker for November, 1911. The houses of most of the more prosperous are on the ridge, at its northern and southern ends. A few of the older homes are down in the old city, on the plain, where the original settlers in 1666 laid out the Broad and the Market streets, so common in their day, and marked their crossing as the city's center for all time. On the slopes of the ridge also, and on the plain to the east, are sections taken over as their own special quarters by Germans, Italians, Poles, Russians, Hungarians and others of our later settlers. New York commuters are beyond the hollow on the west and at the northern and southern ends of the ridge. Factories and workshops have also found proper sites on the hill, though most of them stand on the lower land. NEWARK'S ADVANTAGES XIX Shows the trunk sewer running from Paterson, N. J. to Bobbin's Reef, N. Y., 26 miles. Work has begun on this great interurban enterprise and is being rapidly pushed forward. The sewer when complete will purify the Passaic River and Newark Bay and make still more attractive the homes in all the vast region which it drains. From the Newarker of July, 1912. near the city's center, and to the east and southeast near the river and marshes. XX CITY PLAN COMMISSION Passaic Drainage Basin .s5 I /' IwY"^ Scale A '^^ jfi ! 1 1 1 1 1 1 1 1 1 1 I 1 1 1 jJi J^S 16 Miles •v^ li 29 s North (^^ Vx ^Q^ ^^^ P), \i«f5-. /^^^^^Vl ^%) w/ v)^ ^^^^mr ^Mj w!^ '^^ r ^"^^ J h- j^ wi' 7^ fHSsibi:^ S^ pS ^wOJ\32jZr>' li^ ^gsy^ 4>fc^ % <'<\~xr> 1 ^>o V II iri: l| Shows the source of Newark's water supply, 21,267.71 acres owned by the city and all guarded with extreme care. The water coming from it is very pure and abundant. From the Newarker for March, 1912. The town has grown since 1830 from an ancient, quiet place of 11,000 people, where a few factories disturbed but little the serenity born of 160- years of moderate growth, into a distinctly industrial city of the modern type. For nearly seventy of the eighty-four years of growth, since 1830, the town's development was quite unguided. Fac- tories and tenements jostled the old homes. New comers settled singly or in groups by nationalities where they NEWARK'S ADVANTAGES xxi Showing the elements of Newark's population. The figures are in thousands. Though published in the Neivarker two years ago they are quite accurate for to-day. More than two-thirds of the people of the city are foreigners. More than half of these foreigners are Italians, Jews and Germans. would. Hence we have a city which startles many new- comers by its seeming discordant mingling of fine homes and uninviting tenements and factories. But a more care- ful look shows that this mingling of home and business is not as distressing as it may seem at first, and is not without its advantages. Moreover, as the very existence of this book shows, the unguided growth of former years is now to be guided, to the advantage of all and to the betterment of the city's aspect. II. Homes and Savings The workingman can rent in a tenement fairly good quarters for housekeeping for from .'?10 to $14 per month. XXII CITY PLAN COMMISSION Laws regulating tenements are better than in most states, and are quite well enforced.* A flat in a two-family house can be had for from $18 to $40 per month.** The trolley system, in spite of some congestion and delay at the city's center, is so efficient that a worker in almost any factory can reach a section where he can find a home within his means for five cents and in from ten to thirty minutes. Thousands own their own homes. The 210 local building and loan associations hold nearly $40,000,000 of assets for 72,000 shareholders. The house owner of moderate means must usually travel a little further to his place of business than the man in the tenement or flat. But within twenty to thirty minutes of the business center he can find a lot, 25x100 feet, for from $300 to $1,000 and can build on it a modern, six-room frame house, with bath, electricity and gas for from $2,000 to $4,500.* * * In the savings banks 127,000 depositors have $43,- 000,000 of savings, an average of about $341 each. National banks and trust companies are used by 10,000 firms and 77,000 families, and hold over $84,000,000. , Food prices are up to the average of eastern cities. Clothing, household goods and general merchandise are sold on a narrow margin, as they must be in any city as well supplied as is Newark with huge and progressive de- partment stores. 'Laborer's Rent: — We have some of the older fashioned tene- ment houses where four and even five rooms may be had for $9.00, while in some of our modern six-family tenements as high as $15 is paid; but these latter houses are surprisingly convenient and comfortable. **Flat Rentals: — The lower rent quoted is obtained in houses where there is no heat, etc., the higher rental prevails in flats favorably situated, and where practically every known improve- ment is installed. ***Land Values and Building Costs as stated, can be readily verified. NEWARK'S ADVANTAGES XXIII /SeWffFIK BfJY C indicates congested residential area close to the business and traffic centre (the black spot) . D D is the large region to the northwest, west and southwest, lying partly in and partly outside the city limits, available for homes of moderate cost. It is nearly all high and well drained, and traversed, as shown by trolley lines. Only a very small part of this large suburban area is as yet built up. The one hundred and sixty years of rather slow and peaceful growth up to 1830 gave the city a certain stability, a certain habit in sound business methods, which seems still to retain its hold. Newark-made goods have every- where a good name. Business conservatism still prevails ; XXIV CITY PLAN COMMISSION M marks Newark's region of homes of people of moderate incomes; while B B B mark regions of expensive and high grade residences. but is now coupled with a very manifest civic progressive- ness. Serious strikes are almost unknown, and while labor organizations are not indifferent, they seem to come rather easily to reasonable arrangements with employers. III. Manufacturing Figures Factory sites are abundant and not expensive. Lots not far from freight yards, or near the twenty foot chan- NEWARK'S ADVANTAGES xxv nel of the Passaic which is used by tugs, tows, and schooners, and within ten to twenty minutes by trolley of homes within workmen's means, cost from $250 up- wards per thousand square feet.* Lofts for factory purposes quite near the city's center cost from $200 to $700 per thousand square feet.** Wages for day labor are from $1.65 to $2.25. Laborers are paid by the month $45, though most are hired by the day. Skilled mechanics get from $2.75 to $6.00 per day. The minimum wage for women employed by the corpora- tion which controls the gas, electricity and trolleys of near- ly all north Jersey is now $9.00 per week. Women clerks in the Prudential Insurance Company begin at $7.00 per week, and in some factories at a higher figure. Land, building, rent and wages are all, in general, perhaps a little less than they are in New York City. Industries are very varied, and are exceeded in extent by only ten other American cities, though in population Newark is the fourteenth in order. It is not difficult here to get and hold steady skilled workmen. Water for domestic purposes is supplied by meter or at a flat rate and is consumed at the rate of 41,000 gallons per capita per year. Metered water for manufacturing costs $1.03 per thousand cubic feet, subject "Factory Sites: — The explanation of the apparently wide margin of prices in this case is that low figures apply to out- lying acreage, and reclaimed meadow land, all, however, being within the city limits, and near to conveniences — higher priced land means ordinary city lots in streets containing all improve- ments, and suitable for other occupancy. Strictly speaking, Newark has no exclusively manufacturing district. * "Lofts: — The different rentals here mentioned cover, generally speaking, lofts old and new, and with and without power; location and type of construction, also being important factors. XXVI CITY PLAN COMMISSION Newark factories; their location. The dots represent single factories. The numbers inside the sub-divisions are the nunAers of factories in those areas. Total number indicated, 2,000. Note that factories are near the centre of the city, as is natural in an industrial town. It is evident from their location that railroads are thought to be of more importance than water transportation. From the Newarker of December, 1911. to discount of 2% on quantities exceeding 100,000 cubic feet. Electricity for lighting is from 10c to 3c per k. w. hour, according to quantity. For power the rate varies accord- ing to connected load and hours used. Gas for lighting homes or for heating or washing is 90c per thousand; for industrial use from 55c to 90c, according to quantity. NEWARK'S ADVANTAGES xxvii Compare these conditions and these prices with those in other manufacturing cities, and then set also to the credit of Newark these facts, that it has water transporta- tion to the center of tlie world's commerce in New York Harbor nine miles away, that it is crossed by five trunk line railroads and their connections — with many miles of freight yard sidings — which are in effect eastern terminals of all the railroads of the country save the New York Central and the New England system, and that it is within seven miles of one of the world's greatest supplies of labor and raw material, and of the greatest purchaser of manu- factured products, and it is plain that Newark, though capable of improvement, is a city of advantages for home and business. IV. A Progressive City More may be said. Newark has always been quite well governed; perhaps a little too conservatively in former days, but never with any gross extravagance or malfeasance. The same ancient habit of serenity already alluded to, touched with old fashioned morality, which has kept the city peaceable and honest in its growth from 11,000 in 1830 to 400,000 in 1914— an average of forty per cent in every decade, — has retarded improvement in some lines. The modern city improvement movement has also been delayed in its action here by two facts, one the large number of New York commuters who sleep in Newark, but think only in terms of the city of their business; the other, the pull upon the time and attention of men doing business in Newark of the great metropolis which is al- ways in sight across the meadows and is always making enticing appeals to the attention. That the city improve- ment spirit now prevails here is evidenced by the existence XXVIII CITY PLAN COMMISSION Newark is shown in the space crossed by diagonal lines. Population, 400,000. Railroads are shown by black lines. •The small circle takes in several suburban towns and has a population of 590,000. The larger circle has an area of 130 square miles, the same as Philadelphia, and a population of 1,300,000. The area included in the circle and the line extending north is 200 square miles and has a population of 1,700,000. From the Newarker for January, 1912. of this Commission and the pvibhcation of this report, and still more by the swift changes for the better taking place in the city's general aspect. Property is assessed for taxation at nearly its full value and the tax rate is not excessive, slightly over two per cent. Much beer is made here; but in number of saloons, 1386, and arrests for drunkenness and for all other cause.s. NEWARK'S ADVANTAGES xxix Newark has a very good record among cities of its class. In the homicide record of the first decade of the twentieth century, compiled by the Spectator, Newark and Rochester, N. Y., were coupled as standing next in point of excellence in this respect to Milwaukee, the best city in the U. S. V. Schools and General Welfare In the last decade Newark has discovered that she is herself no mean city, and has learned to look upon herself with respect and to wait upon her own needs. For education, more is spent here per capita than in almost any city in the land. Young people crowd the day schools to the doors. Much highly skilled labor is here employed, so it is not surprising that relatively more boys work hard through the winter in the evening schools than in other of our great manufacturing centers. Churches are almost too abundant. They are active in social and educational work. Hospitals, asylums, homes, special aid and public welfare organizations .are abundant, well supported and are now learning to work well together under a very efficient bureau of associated charities. It would be difficult to name a movement for social betterment of any kind that has not here found some of its earliest advocates and supporters — summer schools, all- the-year-schools, evening schools, trade schools, boy's homes, baby's hospitals, certified milk, and anti-tubercu- losis crusade. The city, indeed, has never been backward in mutual aid, in promotion of the welfare of the young, the sick and the helpless. It has rather notably failed in care of its personal appearance, and in secondary and higher education and in attention to the suppression of certain general ills like XXX CITY PLAN COMMISSION the impurities of its river (it vainly sought legislation against this twenty years ago) , the multitude of its mosqui- toes (in the suppression of this nuisance it is a pioneer in the United States), and the inconveniences of its main business streets. But while it is true that it has been rather notably lacking in attention to these matters, it can scarcely be said that it is not giving them due attention now. In the last few years the streets have been kept remarkably clean. ^^^"^ NEYYi^RK Shows how large a part of the city's area is unoccupied swamp or meadow; how numerous and well scattered are the Parks (in- dicated by diagonal ruling) ; the distribution of school houses (shown by black squares), and the main line of the trolley system. This last is to be greatly improved as soon as extensions planned can be carried out. NEWARK'S ADVANTAGES xxxi especially in view of the very large per cent, of foreign born residents who, quite naturally are so taken with the delights and advantages of a democracy that they do not learn easily to bear their share of its responsibilities. Three high schools have just been built, in as many years, with several grade schools, all of the latest and best type. A plan for a City University is receiving serious attention and can scarcely delay realization for long. A vast sewer system, inter-city in scope, will soon purify the river, and the mosquitoes are now under a systematic attack. Perhaps enough has been said to show that Newark is worthy to be the home of any man and can furnish a proper setting for the largest enterprise. If the visitor will not judge it from the car window as he rushes through; but will drive about it for an hour, he will find that in spite of the fact that its two thousand industrial enterprises (there are 6,000 manufacturing plants recorded, but many are of course small), dominate much of the civic land- scape, as they must and should, it has all the miles of streets, of homes, the many parks,* the boulevards, the thousands of shade trees, and the public buildings, which a rich city in America is entitled to. Perhaps to the pros- pective dweller here the most important and not least manifest traits are those which mark Newark as a rather quiet, rather conservative and very prosperous town. *0f the cost of a very wonderful county park system the city pays three-fourths. SUGGESTED IMPROVEMENTS IN THE CENTRAL PART OF CITY. THE NUMBERS 1. The County Court House. 5. New Soldiers' and Sailors' Monument. 2. SuBgested "Slraieht Line Plaza" giving 6. Free Public Library. Washington Street a direct crossing over Market 7. D., L. & W. Station. 9. Pennsylvania & Hudson & Manhattan Tubes to Mechanic Street and north to Canal Street. New D Station. Extension of Green Street through to Washing- Markets 10. New Post Office. ton Street, taking in and widening Pearl Street. Street. 3. City Hall. 4. Central R. R. Station. Removal of corner now obstructing High Street Bridge Street, grade lightened, widened II. New Pennsylvania R. R. Station, and parked in center, making a proper approach Note also: as it crosses Orange Street, to a Real City. Widening and extension of Beaver Street south Straightening and widening of Front Street. Wideni Street to Wideni GESTED IMPROVEMENTS IN THE CENTRAL PART OF CITY. THE NUMBERS INDICATE s' Monument. 9. Pennsylvania & Hudson & Manhattan Tubes to Mechanic Street and north to Canal Street. Station. 10. New Post Office, ghtened, widened 11. New Pennsylvania R. R. Station, a proper approach Note also: Widening and extension at Beaver Street south Extension of Green Street through to Washing- ton Street, taking in and widening Pearl Street. Removal of corner now obstructing High Street as it crosses Orange Street. Straightenine and widening of Front Street. New Diagonal Street with Plaza where it joins making an east and west cross-town thoroughfare Market Street. south of Market Street. Widening of Market Street from Mulberry Extension of Plane Street through to Washing- Street to the Plaza. ton Street, Widening of William and Lafayette Streets, CHAPTER I. SUGGESTED IMPROVEMENTS IN THE CITY PLAN. Functions of City Planning. The rapid, consistent and apparently long-to-be-con- tinued growth of large American cities has now made city planning of as much importance here as it has been in Europe for some time. The development of our communities must be carefully guided if in the future city there is to be a wholesome condition free from the errors of the past. It is city planning, above all things, which will prevent defective growth and remove the bad effects of past errors. The greatest influence on the character of every city is its street system, representing as it does from 25% to 40% of the total area. It behooves each municipality to mould its streets into a simple and efficient structure if they are to fulfill successfully their part in the develop- ment of a greater city. There are two important things in the growth of a city which it is the part of a city plan to watch and guide : (1) Adjustment of inadequate existing conditions to meet present and future requirements, and (2) The proper guidance of new growth to har- monize with the older parts of the community. The recent and unprecedented growth of our large cities was not expected when they were laid out, and business districts have naturally far outgrown the limits to which they were originally confined. Again, business of to-day is far different from that of years gone by, so that large buildings, wider streets and better pavements have become necessities. The encroachments of business upon territory already developed has necessitated the expenditure of large sums of money to widen and extend CITY PLAN COMMISSION old streets, and to create new ones; and it is the duty of a city plan so to direct this expansion as to obtain the best and most far-reaching results in the most economical manner. With increase of population, residential districts usually expand in greater proportion than do those devoted to business; but this expansion is usually confined to outlying undeveloped areas, and when such is the case it is the function of a city plan so to c|irect this growth that the new community is not a separate unit, but a part of one large comprehensive scheme. In this type of development it is not as costly or as difficult to accomplish proper results as in the expansion of business districts. A large city ofttimes grows and absorbs small com- munities which had previously been developed irre- spective of other than local conditions. In such cases it is for city planning so to re-arrange, if necessary, streets of the old communities as to make them parts of the scheme being followed for the enlarged city, and not natural barriers between those sections of the city which lie on either side of them. It is impossible to lay out an ideal street system, for each city has its own individuality, due to its topographic details, character of business, type of population, etc. One universal need, however, is that of good crosstown thor- oughfares, with radials running from the approximate center of the city to suburban districts. Newark is particu- larly fortunate in this respect, and needs but little improvement to develop a street system comparable with the best in other American cities. As has been said, improvements within business dis- tricts are usually expensive. The longer they are delayed the more costly they become, and undue delay means stunted growth. The good city plan is one which tells how, when, and where street improvements can most profitably be made. IMPROVEMENTS IN THE PLAN A city without a plan has been compared to an organization without a head. Promiscuous development results in chaos. The proper administration of cities is as much of a scientific procedure as is that of directing the affajrs of a large business institution, for a city is just as much of a unit as is a business concern. The successful city is one wherein the street system is a unit. Lack of continuity in the street system leads to great loss of time in carrying passengers and in transporting goods. There follow a series of maps illustrating improve- ments in our street system, each of which is required for the development of a "Better Newark". Accompanying each map is a short note which tells why the change suggested is needed, what it would accomplish, and sug- gests how it would save time and money to every manu- facturer who transports goods over the streets of that part of the city, to every citizen who rides in the trolley cars, and, in fact, to all who use the streets of the city in any way. At the end of the chapter is a plan whereby all of these improvements can be systematically financed under existing laws. CITY PLAN COMMISSION Front Street.* There is serious need of better street facilities along the Passaic River front, especially from the Pennsylvania Railroad to the Clay Street bridge. River Street, Front Street and Ogden Street would, if straightened "and widened, serve traffic demands well for some time. At present these three streets are taxed to their fullest capacity with vehicular traffic, which steadily increases and will increase more rapidly if the commerce of the river grows by reason of the development of Newark Ray. The accompanying map illustrates probably the worst portion of Front Street and a suggested plan for its straightening. The property values in the locality are not very high, and a reasonable expenditure here seems war- ranted by the fact that this is the only commercial thor- oughfare connecting the large manufacturing district in the eastern section of the city with the north end. The assessed valuation of property affected by the improve- ment is about $100,000. $250,000 would cover the cost of condemnation, opening the street, paving, etc. Were excess condemnation possible, the map shows that a large percentage of the cost of this improveftient could be recovered by the purchase by the city of muti- lated property and the disposal of unused portions after the improvement was completed. * Proceedings have recently been initiated by tiie Board of Street and Water Commissioners for the completion of this improvement. S/JYBnOOK fLflCE PLATE I. Proposed Straightening of Front Street at Rector Street CITY PLAN COMMISSION Diagonal Street. This extends from the intersection of Broad Street and Central Avenue to the Pennsylvania Railroad Depot on Market Street, and is one of the most urgent of all improvements. It would accomplish things for which Newark has long been striving. First and foremost, it would help solve the street car problem as no other single improvement could. Cars from the north could reach their destination without approaching the now con- gested "Four Corners", and great relief would there be given. It would furnish another much-needed east and west thoroughfare by Market and Diagonal Streets and Central Avenue. This would serve both vehicles and trolleys. It would give direct communication between the "Iron- bound" district and the north end of town, and immediate access to the former by all pedestrians entering Newark by the McAdoo Tubes. It would open a new business thoroughfare, and would increase both the immediate and adjacent property values by giving a natural incentive for expansion tQ the business section of the city. Newark is growing rapidly, thirty per cent, every ten years. The business district has so concentrated itself about the intersection of Broad and Market Streets and the immediate vicinity, that unless new streets are opened to permit a natural growth to take place, it will suffer in many ways from over-concentra- tion. The opening of Diagonal Street would affect prop- erty values over the whole section bounded by Diagonal. Market and Broad Streets. The assessed valuation of real estate to be condemned for cutting this street is about $725,000. It would cost about $2,500,000 to condemn this property and open the street. This may seem a stupendous amount; yet New York, Pittsburgh and Rio de Janeiro have all within the PLATE II. CITY PLAN COMMISSION past ten years undertaken and completed street openings many times more costly than this. While $2,500,000 to open the street would be the initial cost, the burden of which would fall upon the city, it is safe to say that within twenty years the improvement would fully pay for itself in increased taxable properties, and in time saved to traffic of all kinds. Counts have been made with great care by this Com- mission to determine precisely the amount of each kind of traffic which would use Diagonal Street each day at the present time, with results as follows : Vehicles 1,216 Trolley Cars '. 618 Pedestrians 700 Computing the value of time and distance saved, wear and tear, etc., for all traffic for one year, we get an amount equal to the interest upon an investment of $1,500,000. In other words, this improvement would pay for itself in thirty years by the mere saving in time, etc., to the community at large, irrespective of increased property values. Again, in the immediate vicinity, within 500 feet of Diagonal Street, there is property, amounting to $6,000,- 000 in assessed valuation, which, if increased ten per cent, in taxable value, would in a few years completely recompense the city for the initial expenditure. Little, if any, objection can be made to this improve- ment by one who carefully considers its present and future value to the whole city. PLATE III. MARKET STREET. — Shows character of buildings to be condemned at the southern end of proposed Diagonal Street 10 CITY PLAN COMMISSION Washington Street The street system of Newark is chiefly of the rectangular block type, with several important avenues radiating from the center. In the newer parts of the cily, particularly Clinton Hill, this system has been so developed that the result is unusually pleasing, and very serviceable. Unfortunately, in laying out the older parts of the city the rectangular system was not as closely adhered to as might have been. Washington Street is an example of a street which fails to perform its proper functions because of the irregular manner in whicli it crosses Market Street. Broad Street is, and probably always will be, the great north and south thoroughfare of Newark. Its ample width, 132 feet, enables it to accommodate an enormous amount of traffic. But there is need of several large north and south thoroughfares, parallel to Broad Street, and at proper distances from it. Washington Street is far enough from Broad to develop independently, yet near enough to absorb all excess travel which cannot be accommodated on the latter. Furthermore, Washington Street is so situ- ated as to perform duties which can never be performed by Broad Street. It starts at Bridge Street, where nearly all through north and south traffic from the cast and north- east must enter or leave Newark. It runs south across Market, with the very disturbing offset already noted at that point, and on to Clinton Avenue. Every statistical study we have made of traffic movements as related to Washington Street points to the same conclusion, that it should not stop at Clinton, but should be continued to Frelinghuysen. The connection between Washington Street and Frelinghuysen Avenue would create a completfe, straight, natural north and south crosstown thoroughfare. The present plan of only one north and south thorough- fare must be abandoned if Newark is ever to be relieved of the village atmosphere which it now enjoys. 1: MHf^t^ET ST PLATE IV, Proposed Widening of Washington Street at Market Street 12 CITY PLAN COMMISSION Probably the greatest hindrance to the immediate commercial and traffic development of Washington Street is the break, just mentioned at Market Street. The map suggests a method of removing it. To be sure, property is expensive at this point and the improvement might not produce tangible results at once ; yet it is safe to say that in twenty years Washington Street would so develop in com- mercial and other uses as to repay the cost of improve- ment through increased taxable values. The assessed valuation of real estate within the sug- gested widening is $720,000. It would probably cost less than $2,000,000 to complete the improvement. Bridge Street In Chapter II. will be found a description of the proposed improvement of Bridge Street, from Broad Street to the Passaic River. This is almost the only entrance to the city from the east and northeast. The size and char- acter of our city demand that a dignified approach Bere be made. The street should be widened and repaved, the grade lessened and the architectural surroundings im- proved. The accompanying map shows a suggested widening to 100 feet. The assessed valuation of real estate needed for this improvement is about $160,000. To complete the entire improvement, grading, paving, etc., would probably cost $400,000. PLATE V. Proposed Widening of Bridge Street 14 CITY PLAN COMMISSION Lafayette Street There is not a continuous east and west crosstpwn thoroughfare in Newark outside of Orange Street, and here again arises the question of proper expansion in street system versus the village conditions for which New- ark is fast becoming unpleasantly famous. North of Market Street an admirable east and west crosstown thoroughfare will be secured by the completion of Di- agonal Street, via Central Avenue. It will serve for both trolley and vehicular traffic. At a like distance to the south of Market Street a good east and west thoroughfare can be obtained by making proper connections between Lafayette and William Streets. The latter would have to be regraded for a short distance each side of High Street. This improvement would give an east and west thorough- fare unequaled in the city. Its connections with Spring- field Avenue and Hamburg Place would afford relief not only for vehicular traffic on Market Street but also for, street cars. No other single improvement, with the pos- sible exception of Diagonal Street, would do as much as this one for the betterment of rapid transit. Few sug- gestions can be offered which could be of more benefit in the long run to the city and to all interests attendant upon the development of a good street system. The property affected by this improvement is assessed at approximately $600,000. It would cost about $1,500,000 to complete the improvement, with all grading, pav- ing, etc. PLATE VI. Proposed Widening of Lafayette Street 16 CITY PLAN COMMISSION Frelinghuysen Avenue In discussing the improvement of Washifigton Street, it was pointed out tliat a connection between that thoroughfare and Frelinghuysen Avenue would form a straight and natural north and south crosstown thorough- fare unequalled in the city. A glance at the map confirms this statement. Two streets only connect Newark with Elizabeth, — Frelinghuysen Avenue and Elizabeth Avenue. Frelinghuysen Avenue is the one which, were it properly connected would naturally be most used, for the excessive grades and curves of Elizabeth Avenue restrict it almost entirely to local usage. Frelinghuysen Avenue is straight, of ample width and almost level. These qualities make it a natural crosstown thoroughfare, and it would be used as such were it connected with Washington Street at its north end. Although this improvement is not at present urgent, it soon will be, and it will rapidly increase in cost if delayed. Its accomplishment would constitute a long step ahead in the development of a good street system in Newark. The assessed value of the real estate involved is ap- proximately $300,000, and the total cost of the imjwove- ment would be about $750,000. PLATE VII. Proposed Continuation of Frelinghuysen Avenue to Connect with Washington Street 18 CITY PLAN COMMISSION Beaver Street Clinton Street owes much of its growth in business and in fine office buildings in recent years to the fact that it is closely connected with Market Street by Beaver Street. This latter, which was a few years ago a despised and neg- lected alley, is rapidly becoming important on its own account and not simply because it is a short cut from Market to Clinton. Were Beaver Street extended on the south to Mechanic Street, the latter would at once become a far better street for business and for offices. It is too narrow to be used to advantage for through traffic, but not too narrow to serve well for many other purposes. Beaver Street might also well be extended to the north as far as North Canal Street, there connecting with Pine Street. The plan shows how helpful this extension of Beaver would be to the development of business and the movement of traffic near the center of the city. Among other things, it would break the long blocks, 750 feet in length, which now extend from Broad to Mulberry. The assessed value of the real estate involved in the suggested change is about $700,000. It would cost about $1,500,000 to complete the whole improvement. • ME.CHfftilC STREET /Y. C/friRL PLATE VIII. Proposed Extension of Beaver Street 20 CITY PLAN COMMISSION Plane Street The abrupt ending of Plane Street at Court Street makes it unsuitable as a north and south highway for vehicular traffic. Plane Street is a business thoroughfare of no mean proportions. It will continue to grow, par- ticularly as Washington Street will be burdened with in- creased trolley traffic. Were it continued to Washington Street its increased usefulness would soon become appar- ent, and another step would be taken in the development of an efficient street system. The assessed value of the real estate within the zone of improvement is about $110,000, and the entire change could probably be made for $250,000. COi/ffT ■ST PLATE IX. Proposed Continuation of Plane Street 22 CITY PLAN COMMISSION Belmont and Norfolk Connections Belmont Avenue, Norfolk Street and Clifton Avenue form three of Newark's best streets, streets of which any city could be proud; but the poor connection in the block between Springfield and South Orange Avenues is impos- sible in a city the size of Newark. Here could be one of the greatest thoroughfares in the city. It is so far from the business district that it can easily create a center of its own, and it could become not only a great traffic and business highway, but also one of exceeding beauty by reason of its situation and attractive surroundings. All this it would have been before, were it not for the obstruction formed by the block shown on the accompany- ing map. A glance at the general map tells the possibili- ties of this thoroughfare, extending as it does from one end of the city to the other. It is suggested that the city acquire and condemn the entire block bounded by Jones Street, South Orange Ave- nue, Beacon Street and Springfield Avenue. Were it pos- sible to apply here the principle of excess condemnation, the city could reimburse itself to a large extent on this improvement. • The assessed valuation of real estate needed for the improvement is about $450,000. The change would per- haps cost $1,000,000. Would not the results obtained be worth far more than this ? PLATE X. Proposed Connection of Norfolk Street and Belmont Avenue 24 CITY PLAN COMMISSION Green Street Were Green Street continued westerly to Washington Street, as shown on the map, several desirable results would be attained. A new vista would be opened up toward the City Hall. Present traffic on Green Street would have an outlet to the west. If the continuation were carried, by a diagonal street, to the junction of Plane and William Streets, the new Board of Health Building would be set off to advantage. There are only one or two high-valued properties involved in the improvement, and several very undesir- able properties would be eliminated by it. Much low- valued property would be greatly improved and the improvement would apparently very nearly pay for itself in increased property values. The map shows that the improvement is, in reality, a widening and extension of what is now Pearl Street. The assessed value of the real estate involved is about $200,000. The completed improvement would probably cost about $300,000. PLATE XI. Proposed Extension of Green Street 26 CITY PLAN COMMISSION High Street One of the best crosstown thoroughfares west of Broad Street is High Street. It is much used by vehicular traffic at several points. Its value for this would be great- ly increased by the removal of two breaks, — one at Orange Street and the other at Eighth Avenue. These two cross- ings are particularly bad in view of the large amount of traffic which uses them. The assessed valuation of property affected by the two suggested improvements is about $35,000. The total cost would probably be $100,000. >0 ORf=iNGC v57" PLATE XII. Proposed Straightening of High Street at Orange Street and at Eighth Avenue 28 CITY PLAN COMMISSION Proposed Extension of Third Avenue All wheeled traffic entering Newark from the north- west, originating in Bloomfield, Glen Ridge, Caldwell, Montclair, etc., enters on a single highway, — Bloomfield Avenue. That part of this traffic which goes to the north- ern section of the city, east of Branch Brook Park, must traverse almost the whole length of Bloomfield Avenue before it can turn north. Fourth Avenue is the first east and west street it reaches, and, though this is a good thoroughfare, its use would call for an extra journey of nearly a quarter of a mile, even if it were possible to use Third Avenue on the way. But the latter can not be used, for, as the map shows, it does not extend through to Bloomfield Avenue. The street opening suggested seems highly desirable in view of the great traffic, which will undoubtedly increase, between the localities mentioned. Furthermore, the improvement seems necessary for the logical development of a system of through east and west lines, especially as streets are here 800 feet apart. The assessed valuation of property to be condemned for the improvement would amount to but $52,000. Prob- ably $150,000 would more than cover the cost of condem- nation, opening and paving. HIGHLAND fIVE. //a ^ /V?A'/f£-/? 57- / / N / ^ / :t / 1 g RlP6£ 57" ^ ^ CLIFTON f)YE . 5i 5 ^ PLATE XIII. Proposed Extension of Third Avenue 30 CITY PLAN COMMISSION Jackson Street Bridge Approach Wheeled trafFic over Jackson Street bridge is nearly a thousand vehicles per day, and will undoubtedly in- crease as manufacturing districts nearby continue to grow. At present there is a steep grade from the bridge to Market Street producing a very dangerous condition. This grade should be reduced, and property should be acquired and cleared each side of the approach at Market Street, to enable drivers to see vehicles approaching the crossing from other directions than their own. Examination of traffic conditions near this bridge shows much movement on Tyler Street, and from that street to the bridge. Several different routes are open between the bridge and the junction of Tyler and Lafayette Streets. Apparently Tyler Street is an outlet for a major portion of the whole manufacturing district. Con- sidering also the fact that the junction of Ferry Street, Merchant Street and Hamburg Place, — the busiest point in the city east of the Pennsylvania Railroad — is but one block away, it is plain that there is need of good connec- tion between the bridge and these two points. The route from the junction of Ferry Street and Hamburg Place? is very inconvenient. The map gives a suggestion which seems commendable. The present bad conditions, it should be noted, will become quite intolerable as the meadows gradually develop. It is especially urged that the southwest corner of Market and Jackson Streets be immediately removed in view of its obstruction to through traffic on Jackson Street. The probable cost of the improvement suggested has not been figured. Though large, it would not be prohibi- tive, as there are no costly buildings to interfere and land values are low. The greatest difficulty would probably be found at the crossing of the Central Railroad, and even this could no doubt be satisfactorily arranged. PLATE XIV. Proposed Approach to Jackson Street Brid 32 CITY PLAN COMMISSION Vailsburg Section The Vailsburg Section had a very haphazard growth before it was annexed to Newark. As a consequence, its street system cannot be made efficient without much ex- pense. Apparently each property holder divided his plot regardless of his neighbors, with the result that there are no good crosstown thoroughfares, except Grove Street, Myrtle Avenue and Sandf ord Avenue. The map shows a suggestion for street openings, widenings, and extensions which would give this region a system of both residential streets and traffic highways sufficient to meet all probable demands. A plan of the kind suggested must be adopted before long, for the press of population will soon be felt here, as is shown by the many active real estate opera- tions. Improvements can be made much more cheaply now than later. Note the advisability of co-operation with both Irving- ton and East Orange in developing such a plan. It will be as much to the advantage of these towns as to Newark to have a street system permitting easy access from one to the other. Study should be made in this section for the proper location of parks, playgrounds and such pyblic buildings as will later be needed. S O U T \'~' i^n — n: 1>:' 1' ^i rr PLATE XV. Black lines indicate suggested improvements 34 CITY PLAN COMMISSION The Southern Section of the Gty South of Clinton Avenue and west of Elizabeth Ave- nue is one of the most rapidly growing sections of the city, some day to become one of Newark's finest residential centers. The greater part of the street system has already been laid out, but there are a few undeveloped areas which, if properly arranged, will round out the scheme and produce a unified system. For through north and south streets it is suggested that Belmont Avenue, Bergen Street and South Tenth Street be developed in proportion to evident needs. For east and west streets, Chancellor, Lyons, Hawthorne and possibly Benner Avenues, should be so developed as to carry the principal through traffic. It may also be advisable to extend Clinton Avenue as shown on the map, there being no good diagonal streets in the entire region. J nnnnnnnnnnnn^:K< THE rtEVff^nn city PLUH COMI^/SSlOn SUeSESTED //^f6'U~IO'-^ 2^ ^^!—lo~^ei^ 2.Z » % © 1 -V- ■. ...v : .■■■■ '■^'•- ■■ "-Jw/'4?l ':■'- '- >j:i 1 — /£■ — 4< 2* »*^ 2°' >!« ^-^ >!• — '«■ ' NCi^nRKCiTY PLRn co/n /mission SUGGESTED flRRflMGEMEriT OF STREETS fi — inH^Ofi itcaiDcmmL otrcet^ s—m/noR ncsiocNTiUL jr^CETS c — Bu-a/nej^ THonouoHFrtRc PLATE XXIII. CHAPTER III. STREET WIDTHS AND ARRANGEMENT Street Congestion That the street system of a large city represents its greatest investment and that it is the principal determin- ing factor in the growth and successful development of that city, is a fact seldom realized by the general public. Few, if any, realize that a street system could be so poorly constructed as absolutely to inhibit development; or, on the other hand, that a street system could be so designed as to meet the needs of many decades, with few important, changes. The largest cities of to-day have now reached and in many cases have far exceeded, the capacities of many of their busier streets. To remove this diflQculty new streets are being opened and old streets widened at enormous expense. Work of this nature is for the most part very recent. Few streets have ever been so systema- tically designed as to meet all future demands; traffic has but recently reached unmanageable proportions, and only in the last few years has systematic study been applied to the question of street widths. Land Distribution The street system might be called the frame work of the whole city structure; though individual streets are local institutions which play important parts in the de- velopment and welfare of their respective communities. Streets occupy from twenty-five to forty per cent of the area of a city. Consequently, much space can be con- served for other uses by the judicious determination of street widths. This becomes a very important item in an intensively-used business district, for the greater the space devoted to streets the greater the area over which business must be spread, with a resultant loss of efficiency. 56 CITY PLAN COMMISSION Excessive street widths in residential districts mean more scattered houses, and a greater distance to be traveled between business and residences. Land which could profitably be used in business districts is often sacri- ficed to unprofitable street widths, lot sizes are small, property values high, buildings are of great height and cover the whole area of lots, with corresponding difficul- ties due to congestion, loss of light and air, etc. In resi- dential districts the largest permissible number of houses per acre is often built, and so streets which are unduly wide lead to high rents, small rooms, and bad housing conditions. Cost of New Streets Improvements made to streets of excessive widths are not only great in initial cost, but also in maintenance. An Enghsh authority, Mr. John S. Nettlefold, in "Slum Reform and Town Planning," estimated, after extensive surveys, that the interest on expenditures for street im- provements, including opening, paving and sewers, "comes to $0.25 or more per week on a house rented for $1.50, if the number of houses is restricted to 15 per acre." « In the opening of new territory, the cost of improve- ment for paving and sewers alone has been known to exceed the value of the land. Another English authority, Mr. Alderman W. Thompson, in "Housing up to Date," estimates that the cost of street improvements in some in- stances has amounted to $220 per cottage. In analyzing figures of this kind the effect which the street system exerts upon housing conditions is very apparent, for rents are correspondingly high when taxes for street improve- ments are great. It is common for property owners to build as many houses as is possible upon a given area to offset these tremendous costs, and as a result we have slums and tenements in many of our large cities. Thus it is seen that widths of streets do not usually STREET ARRANGEMENT 57 coincide with local needs, and that where widths of streets depend largely upon the conditions under which they were established, a new and difficult problem arises immedi- ately upon the change of those conditions. Many and varied methods of meeting the problems of excessive cost in the opening, widening and improve- ment of streets have been tried; among others, excess con- demnation and single tax. They may both be called re- sults of unwise city planning. Street Standardization Streets may be divided into three classes, (1) Main traffic highways; (2) Ordinary business streets; (3) Resi- dential streets. Several subdivisions are possible under each of these headings, and no hard and fixed rule can be established as to the proper width of any one of them. In fact, the cause of many street problems has been an unwise attempt to standardize widths. No such standard- ization has been successful, and it is very doubtful if it ever could be except in a very general way. Laws in many cities fix street and sidewalk widths, with varying degrees of sucess. For instance, there is in New York City an ordinance dealing with street arrange- ments which requires a thirty foot roadway in all streets sixty feet wide; a forty-two foot roadway in all streets of eighty feet; a sixty foot roadway in all streets of one hun- dred feet. To one familiar with New York the absurdity of such an ordinance is quite evident. Compare two streets of like width, one in the east side tenement dis- tricts, and the other in the down town wholesale shippers' district. In the former will be found, say, fifty or more pedestrians to one vehicle, and in the latter, fifty vehicles to one pedestrian, though in each case the width of the roadway and the width of the sidewalk are the same. Another very glaring error is the ordinance enforced in some cities which requires a specific width, say a mini- 58 CITY PLAN COMMISSION mum of forty or fifty feet, in all residential streets. Under such a rule the general character of a neighborhood is often inimediately lowered, because owners must erect as many houses as is possible upon any given land, to obtain repayment for excessive expenditure for street improvements. An ordinance of this nature is sometimes demanded by so-called f oresighted civic bodies, on the plea that some of the streets laid out under it may by and by become traffic or business thoroughfares, although not one out of fifty is likely to be so developed. Thus forty- nine expensive streets are laid out uselessly to secure a needed width in one. Another great mistake often made in trying to estab- lish a general street system is that of too rigidly adhering to a defective scheme of extension, like the gridiron plan. Although this plan usually makes for easy access, and can be quickly executed in any given area, yet it cannot be successfully applied in a district which has marked topographical features. When applied to districts con- taining hills, bluffs, lakes or streams it is usually at an excessive cost, in the long run. It may necessitate a deep cut through a hill, or a huge fill, to make an easy grade. Whereas, if it had not been necessary to adhere strittly to the gridiron system, the hill or hollow could have been avoided by a slight detour. Some cities avoid these difficulties by establishing the width of a street by the building lines, then, when the street is laid out the roadway width is determined by the amount of anticipated traffic, and, as traffic increases, the carriageway is widened. This method has proved wise in many instances. Yet here again there is the danger of needlessly sacrificing land for wide streets, land which may never be needed for them. Width of Streets In several cities careful studies have been made of the exact widths of all cars and vehicles used therein. STREET ARRANGEMENT 59 and, though results have varied, a general average has been determined upon. In the City of New York, for in- stance, the average width of all vehicles, from hub to hub, has been found to be very nearly six and a half feet, though of course many large motor trucks greatly exceed this. But the cost of operation of motor trucks, except in long hauls, has been shown to be so great that it is doubtful if this method of transporting goods will be very greatly used for some time to come, unless some method of greatly reducing the cost of short haul opera- tion is discovered. To determine the proper width for a street there must first be known, as nearly as may be, the number of lines of traffic to be expected on it in each direction simultaneous- ly. When this is known, it is easy to determine how much street width is needed, the average width of each line of vehicles being known. For each line of vehicles a width of eight feet may be allowed, the difference between six and a half, the width of vehicles, and eight, being used to facilitate passing, turning corners, etc. In like manner it has been found that a unit of ten feet can well be taken for each single line of trolley cars. Thus, in determining street widths, multiples of eight and ten feet can be used according to the number of lines of vehicular and trolley traffic to be accommodated. For pedestrian traffic it has been found that a unit width of two feet is sufficient for one line of pedestrians, and sidewalk widths should therefore be laid down in multiples of two. In the diagram on page 54 are shown three types of streets whose widths have been determined in this manner. "B" represents a minor residential street, used only by local residents and merchants' wagons. It seems sufficient to allow only twenty-four feet for the roadway. On this a vehicle can stand at each curb, and still permit another to pass in the center. A sidewalk width of six 60 CITY PLAN COMMISSION feet seems enough, thus enabling three people to walk abreast. The width of the street, from building line to building line is one hundred feet and the surplus widths are so distributed as to create the best possible garden features. Evolution of a Street "A" represents what might be called a high-class resi- dential street, upon which considerable traffic is expected. This width might also apply to a minor business street. The roadway width of forty-two feet permits four lines of vehicular traffic, and one line of trolley traffic; the trolley tracks being placed at one side to avoid vehicular inter- ference, to leave a maximum for wheeled traffic and to make it more convenient for passengers to enter and alight from the cars. This street is also one hundred feet be- tween building lines, the surplus Widths again being used for landscape and garden effects. "C" represents a typical intensively-used business highway. Here the whole hundred feet of width is put to use for travel of all kinds. The roadway width of sijty- eight feet permits three lines of vehicular travel in each direction, and two lines of trolley traffic. The sidewalk widths of sixteen feet permit eight lines of pedestrian travel in each direction, or sixteen lines all told. In making streets, the eventual use of which is in doubt and present requirements are not great, it is advis- able to establish building lines one hundred feet apart, as shown in the illustrations. The initial cost of this would not be great, and the final cost could be made to coincide with natural development. For strictly residential streets, probably always to remain such, it is not advisable to adopt a policy of this nature; unless abutting property holders desire it because of its possibilities for landscape and garden effects. STREET ARRANGEMENT 61 Dedication of a Street The majority of all streets in this country were orig- inally dedicated to their purpose by original owners of the land. This method of extending street systems has many serious defects. It results in short streets, non- continuous streets, poorly located streets, and, quite natur- ally, in narrow streets. Here the need of a rigid city plan becomes apparent. There should be in every city a body with power so to regulate the extension of the street sys- tem as to make all additions coincide and harmonize with all previously approved streets in their vicinity. Widening Costs Probably the most expensive of all street operations is the widening of old streets which have developed so much traffic as to make them no longer adequate to the demands made upon them. In the majority of cases, the first houses on streets of this nature stood well back from the street line. As business crept in, stores were built, and the city instead of compelling sidewalks to be placed nearer the houses, as it should have done, permitted new buildings to be erected near the sidewalk. That business and traffic are beginning rapidly to increase on any given street is commonly shown by the fact that buildings, here- tofore well set back from the sidewalk, are moved for- ward. Then is plainly the time to establish a building line and move the sidewalk back, rather than to permit buildings to be moved forward. Examples in Other Cities In widening old streets no rule, strictly adhered to in one community, has proved successful in another. The method used most commonly in Europe is excess con- demnation, and though several states in this country have laws enabling cities to employ it, none has yet taken advantage of it. This is probably due in part to the fact 62 CITY PLAN COMMISSION that all have feared it would introduce harmful specula- tion into local politics. Pennsylvania and Massachusetts are perhaps the leaders in this matter. Several years ago Philadelphia found it necessary to widen Chestnut street and the fol- lowing law and ordinance were passed to make it possible : "An Act. — Defining the line of Chestnut street in the city of Philadelphia, Section 1. Be it enacted * * * * that the south line of Chestnut street, between the rivers Dela- ware and Schuylkill, shall be at the distance of 539 feet southward of the south side of Market street; Provided, That this act shall not interfere with any buildings now erected on the south side of Chestnut street. Approved April 28, 1870." "An Ordinance. — To provide for the widening of Chestnut street on the City Plan: Section 1. The Select and Common Council of the city of Philadelphia do ordain that the Department of Surveys be and is hereby author- ized to revise the City Plan so as to make Chestnut street from the Delaware River to the Schuylkill River of the width of sixty (60) feet, widening equally on both sides from the old center line. Section 2. After confirmation and establishment of said lines it shall not be lawful for any owner or builder to erect any new building or to re- build or alter the front of any building now erected, with- out making it recede so as to conform to the lines estab- lished for a width of sixty (60) feet. Approved, March 31, 1884." Subsequently two other streets were widened under similar ordinances. This indicates that the procedure was successful, at least to a degree, in the first instance. Prob- ably this is the best example of the practical application of this principle in this country. Numerous instances may be found in both Paris and London in which such a pro- cedure has been successfully carried out. STREET ARRANGEMENT 63 District of Columbia The city of Washington, D. C, perhaps gives us the best example of wise forethought in the construction of its streets. When streets are there laid out a building line is established, and as it is not common practice to extend the roadway over the whole area allotted to the street, the excess portions are equally divided on either side, and the use of same given to the abutting property owners, as if those parts of the street belonged to them in fee simple, until such time as the business of the street warrants its widening to the building lines originally established. As the business of the street increases, up to the time when it is widened, property owners may use that portion of the excess width which is in front of their property in any manner they see fit. For instance, storekeepers sometimes extend the sidewalk back to their buildings, build an awning over it and use it for business; while others use the space for garden purposes or simply as a lawn. This method of street widening is far cheaper and more effective than that of allowing buildings to be erected near, or back from the street line as abutting own- ers choose, until its traffic is greater than its width can well accommodate. Under this latter method it often becomes necessary to establish a new building line, some distance behind the former one, and fix a time limit when buildings shall be moved back to it. By placing a time limit the city is not at once burdened with large financial expenditure, and improvements take their course at the convenience of property holders. If, before the expiration of the time limit, the city wishes to complete the project, it finds it much cheaper to condemn only the structures not already moved back, than it would have been to condemn them all at first. 64 CITY PLAN COMMISSION The Zone System From the preceding remarks, outlining the experi- ence of other cities, can be drawn profitable suggestions for Newark. In planning streets it is plain that main traffic highways should be determined at the earliest pos- sible moment, and so developed as to form a skeleton structure upon which the city shall be built as it expands. Then should be located the several zones of activity; the business zone, the commercial zone, the manufacturing zone, the residential zone, etc. It is of course impossible to build walls around cer- tain sections of a city and say, "We will put all business activities here, and all industrial activities there." It is possible, however, to determine these several zones in advance in a general way. Where cities are already built and the zones established, allowance must be made for growth by forecasting future requirements as closely as possible. Once these requirements have been met as fully as conditions permit, the street system in each zone should be laid out according to the traffic which may be expected in it. • Suburban Thoroughfares The structural frame of Newark's street system is unquestionably good, and if study is made along lines here suggested the best and most requisite improvements can be discovered. The main traffic highways and sub- urban thoroughfares are Frelinghuysen Avenue, Elizabeth Avenue, Clinton Avenue, Springfield Avenue, South Orange Avenue, Central Avenue, Orange Street, Bloomfield Ave- nue, Belleville and Washington Avenues and Market Street and its connections with the Plank Road. Each of these thoroughfares leads to suburban territory, and each has all the essential requirements of directness and sufficient width. Each serves its purpose admirably, and there will probably be little necessity of other like arterial highways, STREET ARRANGEMENT 65 except in the undeveloped meadow district where pro- vision for them can well be made in advance. Crosstown Highways — E^st and West The main east-and-west crosstown thoroughfares are Park Avenue and its connections, Orange Street, Central Avenue, Market Street and its connections, William Street and its connections. Eighteenth Avenue and others which are not in themselves complete. It will be seen at once that none of these streets complete an entire, through, crosstown highway, although the connections with many of them form crosstown streets which are used to great advantage. The make-up of Newark is such as to pro- hibit good east and west crosstown thoroughfares, partly because of its irregular topography and partly because of undeveloped sections, and artificial barriers in the form of railroad embankments. On the completion of Diagonal Street a good east-and-west thoroughfare will have been established by way of Central Avenue, Diagonal Street and Market Street or Ferry Street. North of Central Ave- nue there is little need of a through east-and-west street other than those already provided, for the present at least. In the suggestions offered in Chapter I, the widen- ing of Lafayette Street would form an admirable east and west crosstown thoroughfare. South Street, connected with Spruce Street, would form another. South of this point so much depends upon the manner in which the meadow district is developed, as to make it impossible to determine at present the best through highways. Those which it would seem most advisable to extend are Alpine Street, Peddie Street and Chancellor Avenue. Crosstown Highways — North and South . The most important north and south crosstown thoroughfares are Tyler Street, Mulberry Street, Broad Street, Washington Street and Frelinghuysen Avenue, Bel- 66 CITY PLAN COMMISSION mont Avenue and its connections with Norfolk Street and Clifton Avenue, Bergen Street and South Tenth Street, Few of these streets are in any sense completely developed. Tyler Street, for instance, is a comparatively short street, though it now handles much trafiic. Its future depends on the development of the meadow area. It should be connected directly with Jackson Street bridge. Mulberry Street is another thoroughfare which, though not essen- tially crosstown may grow into such on the development of the territory which lies a,t its southern extremity. Broad Street is Newark's largest crosstown thoroughfare. It probably will not be extended further south, being blocked by the railroad in that direction. Washington Street and Frelinghuysen Avenue will constitute, if properly connected, one of Newark's finest highways, aesthetically and commercially. Belmont Avenue, if wisely connected with Norfolk Street, has the requirements of a magnificent highway. It runs through a thickly populated section and is so far from the commercial center of the city as to be able to develop a business center of its own. The same is true of Bergen Street. In the development of these two streets lie great advantages, both to their own immediate locali- ties and to the whole city. West of Bergen Street there should be at least one good crosstown thoroughfare to meet the needs that will surely arise. A glance at the map of Newark indicates that South Tenth Street is the one which should be so developed. Its connections on the north and south are very bad. They could be bettered, however, much more easily now than later, and such betterment is strongly recommended. Conclusion These crosstown thoroughfares constitute the struc- tural framework of our street system. Our future city is STREET ARRANGEMENT 67 lo be built upon them. Let us bear this in mind con- tinually and so shape our ends as to make them com- mensurate with our needs. To do this we must take each of these streets and treat it individually. We must not say "Is this not a fine street? See its large buildings, the great traffic it now accommodates, its fine pavement !" Rather, we should ask, "Is this street going to serve its purpose 50 years hence? Is it sufficiently wide? Are its connections with other large streets sufficiently good? In other words, does this street, beautiful as it now is, meet all the needs of a street of its character?" It is evident, in answer to these questions, that Wil- liam Street, Central Avenue, Eighteenth Avenue, Wash- ington Street, Tyler Street, Belmont Avenue and South Tenth Street do not meet the requirements their very exist- ence compels them to have. Lack of proper connections, lack of continuity, is the predominant evil. Specific rec- ommendations covering these streets are found in Chap- ter I. Another bad feature of these streets, sure to become more evident with time, is insufficient width. The bad results of narrowness have been noted elsewhere. Plainly, in the future highways of this city, widths of 90 or 100 feet will never be too great. Washington Street, Belmont Avenue, Bergen Street, South Tenth Street, Tyler Street, William Street, Lafayette Street, and a portion of Central Avenues should all be made 90 or 100 feet wide. Study should be made as to how these widenings can best be accomplished, particularly with reference to the estab- lishment of building lines back of present ones and a time limit set within which all buildings must recede to the new line. CHAPTER IV. HARBOR DEVELOPMENT I. A Broad Plan and a State Commission The Port of New York, the World's Industrial Center Industries locate where they can get best transpor- tation facilities, and are nearest to large markets of sup- plies and of labor and large groups of consumers. In and about New York are found the greatest storehouse of supplies on the American continent, the greatest number of purchasers and consumers, and the greatest supply of labor. At New York Harbor meet the principal water and land transportation lines of the world. Regular sailings to all parts of the world are made from here, and here all the railroad companies of North America have either their tide water terminals, or maintain a service through con- necting roads or coastwise steamship lines. The following appears in the 1912 Report of the Chamber of Commerce of New York : • "With five per cent, of the population of the country, the city of New York has nearly ten per cent, of the indus- trial establishments of the country; while the value of its products is almost ten per cent, of the nation's. The added value in New York is nearly eleven per cent, of the country's. "The four largest manufacturing cities in the United States next to New York are Chicago, Philadelphia, St. Louis and Cleveland, and they are making gratifying gains; and yet * * * in number of industrial estab- lishments New York is bigger than all four put together, while in number of wage earners and in value of products this city stands not far from the other four cities com- bined." HARBOR DEVELOPMENT 69 Industrial Disadvantages of Manhattan and Long Island Industries have come to New York for the reason that it is the great American market of labor and supphes, and is the principal point of trans-shipment of commodi- ties between land and water carriers. They have come here for those reasons, in spite of the fact that in New York direct rail connections for freight are lacking, and that nearly all raw materials and finished products are subject to cost of drayage and lighterage in addition to the ordinary rail and water transportation charges. Naturally the most desirable frontage in the New York portion of the harbor has been taken up by railroads and steamship lines, and additional docking accommoda- tions are much in demand. Industrial establishments have in recent years located in outlying boroughs, and par- ticularly in that section of Brooklyn where large terminal companies have built modern factory buildings so con- nected with the water front as to handle commodities between factory buildings and points of destination. Nearly all freight shipped from New York by rail is subject to lighterage cost, and while this may be absorbed by transportation companies in their through freight rates, it still is there and must be included in the price paid by the consumer. Advantages of New Jersey's Part of the World's Great Port The New Jersey shore, bordering on New York Harbor, has the advantage of rail and car terminals of trans-continental lines already located there. If proper organization of water front and back lands was effected, this New Jersey area would outrank all other sections in its commercial and industrial possibilities. New Jersey has never attempted harbor development, and New York City has thus far absorbed nearly all the advantages which come from its location on the greatest harbor in the world. 70 CITY PLAN COMMISSION The Special Claims of Newark and Elizabeth Meadows The shores of Newark Bay have great commercial and industrial possibilities, but no attempt should be made to develop them for large passenger steamship trade. Freight trade is of far more advantage to any community than passenger trade. Newark Bay development should not be attempted by or for any one connnunity. Such development does not affect Newark only. It concerns all communities in the New Jersey district of New York Harbor, and includes those on the Hackensack and Passaic Rivers as well as those immediately on the bay. A general plan should be prepared that will include so much territory as is essential to a complete and comprehensive scheme. The map shows that tlie quadrangle, bounded on the northwest by the Pennsylvania main line New York division, on the northeast by the Lehigh Valley and Penn- sylvania line to Greenville, on the southeast by Newark Bay, on the southwest by the Jersey Central main line, should, together with the opposite shore of the bay, be considered as one complete section of the whole port dis- trict. The commercial and industrial development of*the section mvist affect, as already noted, all surrounding com- munities, including Newark, Elizabeth, Jersey City and Bayonne; and in that development provision should be made to handle freight for the benefit of communities Ijdng along the shores of the Hackensack and Passaic Rivers. Facts to be Kept in Mind Concerning Bay and Meadow Development New York is the greatest commercial and industrial center on this continent. Nearly all its land commerce with the west is inter- rupted at its door by the Hudson River, and has to bear a HARBOR DEVELOPMENT 71 heavy charge for transfer from railroad terminals in New Jersey. Its docking facilities are relatively limited and can be extended but little and only at considerable cost. Docking facilities developed toward the east, on the Long Island shore, have the great disadvantage of being still more widely separated by water from existing rail- road terminals in New Jersey than are those in New York proper. Land near New York suited to manufacturing indus- tries will be more and more sought for. The rapid growth of this whole region in population and industries is assured. That population and those industries are now so great that the increase alone, in the next ten years, will be 250,000 in the former and $180,000,000 (value of products) in the latter. Near New York no land now unoccupied can offer such advantages for factories and warehouses as could that surrounding Newark Bay, were it properly developed. All but two of the great American railway systems— the New York Central and the New England group — have terminals of their own or of their connecting roads on or near the shores of this bay and all can be easily con- nected by a belt line. Two large rivers enter the bay and carry a considerable commerce. Despite lack of development, the tonnage of the Kill van KuU for 1911 was 13,546,544, or only slightly less than the commercial tonnage of the Suez Canal for the same year. This development should be primarily for industrial purposes — factories and warehouses. But, along with this preparation for factory and ware- house sites should go, at a proper rate to meet all needs as they arise, preparation for transport by land and water, and, especially, for easy transfer between the two. 72 CITY PLAN COMMISSION This preparation should keep in view not one com- munity only, but all the communities affected by it. It should be a North-East-New-Jersey and New- York-Harbor plan and not a Newark plan. The Work Should be Treated as One of a Community of Interests The many interests here involved, including those of Newark, Elizabeth, Bayonne and Jersey City; of railroads, steamship lines, public service corporations, transfer com- panies, manufacturers, land owners, and the general pub- lic can be compelled to unite for the good of all only through the interposition of the State government. It is evident, therefore, that a Commission is needed, with power to lay out plans for the proper devel- opment of great areas ready for that development, and with power to compel private individuals and public and private corporations within the given area to conform to the plans which may be laid down, when duly advertised, and duly adjudicated as to grievances. This is the method adopted in Massachusetts for the proper contyal of the development of the metropolitan area of Boston. The course of procedure of such a State commission as regards the bay and meadow problem might be some- what as follows : Such Commission should secure the aid of the federal government in removing obstructions to navigation at the lower end of the bay, including Bergen Point Light, the rocks between it and the new pierhead line, and Shooter's Island; and in dredging a large basin, and, later, dredging a channel, as needed, along the newly established pierhead line on the west side of the bay. Also it would insist that the present low bridge of the Jersey Central be so ele- vated as to provide at least 24 feet clearance. This has been advocated for many years. HARBOR DEVELOPMENT 73 Meanwhile it would lay out a scheme of development for the bay shore on both sides and for the meadow area and would compel all development thereafter to conform thereto, but only just in advance of needs clearly foreseen. Thus no time or money would be wasted, and industrial sites and proper railroad and water connections therefor would be offered for use as rapidly as the demand appeared. Two Fundamentals The broad facts that this Commission seeks to empha- size are two : First — That, properly developed, the meadows will offer more advantageously situated factory and ware- house sites in the next twenty-five years (while the area within a radius of twelve miles is increasing its popula- tion by 25,000 per year and the value of its manufac- tured product by $18,000,000 per year) than can any other spot in the United States. And, second — ^That proper development can be car- ried out only under the direction of a State authority which recognizes the common interests of all the com- munities affected by the developments. II. Newark Bay Port District At a meeting of interested citizens from Newark, Elizabeth, Bayonne and Jersey City, held at the Board of Trade rooms in Newark on January 7, 1914, the outline of a bill for the appointment of a commission with State power with authority to prepare and carry out a compre- hensive scheme for the development of the Newark Bay district was presented, discussed and unanimously approved. The bill provides for a commission of twelve mem- bers, three from each of the cities above named. They will form a perpetual body politic and corporate with the usual powers. They will lay out development plans for 74 CITY PLAN COMMISSION the area in question. These they will submit to each city for approval by the electorate thereof. The plans as approved shall be carried out by the commission, at the cost of the several cities, and pro rata according to their respective assessed valuations. As improvements are made the commission will assess benefits on the adjacent lands. They will make harbor regulations ; acquire land by gift, purchase or con- demnation; apportion revenues and make leases. The Commission plan here outlined is quite in accordance with the scheme which this Commission, as stated above, believes to be the proper one. Indeed it may be said that for ten years and more every competent person who has carefully examined this question has come to this same conclusion, that the devel- opment of the whole Newark Bay District should be treated as one problem, not by one city only but by all the cities concerned in it, and under the direction of a body duly appointed and armed with State authority. No Detailed Suggestions Offered It is plain that the details of the scheme of develop- ment which a State commission may most wisely follow must be left for that commission to determine. The map here given, therefore, shows only present developments, the new pierhead and bulkhead lines, and, as previously noted, suggests, by their absence, the removal of certain obstacles to navigation at the foot of the bay. III. If Treated as a Newark Problem Only If it proves impossible to secure the passage of a law under which a State commission may direct the commer- cial and industrial development of great areas like that which borders on Newark Bay, all as suggested earlier in this chapter, and if Newark insists on carrying ovit alone its own work within its own area only, then this Commis- sion urges that the work be done, substantially in accord- 76 CITY PLAN COMMISSION ance with the suggestions offered in Part I. of this chapter, and somewhat as follows: Induce the federal authorities to remove obstructions at the entrance of the bay. Make sure that the New Jersey Central's low bridge will be rebuilt on piers and so elevated as to give at least 24 feet clearance. Induce the federal authorities to dredge a channel along the new pierhead line, as rapidly as needed. Supervise dock development along the Passaic; see to it that dockage facilities are always in advance of demand, as they now are, and put improvements where needed and as needed. Extend streets on the meadows in such a manner as to invite construction on them of factories and ware- houses. Fill meadows near city and along needed streets with city refuse. Carry a wide street from Frelinghuysen avenue over the half-developed area along the northern junction of unused marsh and existing buildings and on to the Plank Road. • Extend Avenue R to the southern boundary of the city, first endeavoring to secure from Elizabeth an agree- ment to meet the same with a street extended north. Fill land along river and bay with channel dredgings and with refuse from other sources as opportunity offers. When more dock facilities are needed add them first along the lower reaches of the Passaic, and not several miles away from the city proper on the bay shore. IV. Newark's Present Plans In contrast to the suggestions heretofore made wo present the following brief statement of the plans laid down by the Board of Street and Water Commissioners of Newark for an independent development, for Newark HARBOR DEVELOPMENT 77 only, of a portion of the meadows and of the bay shore, and of the progress thus far made therein. Some seven years ago the Board of Street and Water Commissioners of the City of Newark engaged the services of a Board of Consulting Engineers to report upon a plan for meadow and harbor development. This board reported in favor of the now well-known inland canal scheme. It suggested that the city purchase a tract of meadow land, having a frontage of 4,000 feet on Newark Bay and extending inland very nearly to the main line of the Pennsylvania Railroad. The Peddie Street ditch runs through the center of this tract. The proposed canal, 700 feet wide and 12,000 feet long, was to be built through the center of this tract, open- ing at its inner end into a large basin, 2,000 feet wide and about 5,000 feet long. The excavated material from canal and basin, it was estimated, would serve as fill for the entire tract to be purchased. A detailed plan was submitted, which showed a street system, railroad sidings, public wharves, bulkheads, etc. Estimates on costs for excavation and fill and bulkhead construction were also included in the general plan. Although the Board in question has never undertaken the execution of this scheme as a whole, it has, from time to time, acquired property within this area known as the canal zone. It now owns probably 50% of the entire zone. A large portion of the purchased land lies east of the Central Railroad's tracks. For the purchase of this prop- erty $400,000 has been spent of the $2,000,000 made avail- able by legislative enactment. The canal scheme has not in general been looked upon favorably. The principal objections to it are: (1) It is not needed, there being as yet no demand for land on water front which is not met by that lying along the Passaic on deep water secured without cost by the federal government. (2) Distance from the city. (3) Obstruc- 78 CITY PLAN COMMISSION tion formed by the Central Railroad's bridge. (4) High cost of pumping and filling. (5) Probability of ice in a dead-end canal. (6) Lack of sanitary flushing possibili- ties. (7) Long wait before any returns can be received from investment. (8) Only a small part of the large meadow area would be developed and the digging of other canals would be necessary, all to the detriment of a comprehensive plan for meadow and harbor develop- ment. The Board in question has very recently published a new plan for meadow development. It follows the lines of the canal scheme. It proposes to build a crib and fill in an area of about 100 acres, shown oil the map as Plot 1, with pumpings of government dredges now working in Newark Bay, and to dig a channel, 200 feet wide, from deep water in Newark Bay to this plot, and along the south side of it, as shown on the map. From the pump- ings of this channel it proposes to fill Plot 2. Thus will be created a bit of dry land to which additions can be made as called for. Docks 1,200 feet long are to be built out from Plot 1. Extensions of Bay Avenue and Avenue R are to form connections between this area and the city proper. This plan can be adapted to the original canal scheme if desirable, the latter, however, being postponed for the present. The Board wishes to develop as quickly as pos- sible the land now in the city's possession. An obvious objection to this scheme is its great dis- tance — two miles — from present-day Newark, with no residence sites nearby and no transit facilities by which workers can go to and from their homes. Moreover, it affects one community only, and is not a broad, compre- hensive plan of harbor development. _x y^^^ + ^ y^y^ t \M y/^A 1 v=\ x//' — .1 H / (f xJi \\ / 1 I* \a X / jj k\ rA -^ \X / ,yy L r af onefime /^yntTkif JjIu27 in HerTh £3t HI 2S 134 f 392. 22. i7 7Zfa 74 1 M ff i.73 A.« 2rK ■ J>? 4J9 lZ4t A 12 71.0 i.67 M t.t Serfe/fSt n^rAita Karth 4 Si It J-HA il7 e.94 r-tso 7.7li M SZ US SoitM 4.11 /(. •C77 4S7 i.t3 _f/oo 7.6i M 41 Ch /ton /Ire Mii^rl, 3.S2 It 711 6S7 I0.t4 70 a t. IS V 32. 7.6 9 SinfA 3. 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One entire day was given to the study of each line of cars operating in Newark. The investigation included each of the subjects listed as headings in the table. The results, as summarized, afford interesting comparisons and show the extent of the studies made. no CITY PLAN COMMISSION to the city authorities a proposal for the solution of the problem in the form of a new terminal building, together with extensions of the present system. The work pro- posed was to be undertaken solely by the trolley company and involved an expenditure of from four to five million dollars. The terminal building, to be erected near the business center of the city, is to have two approaches, — one a sub- way leading to an underground floor; the other an ele- vated structure leading from an opposite direction to an upper floor. Loops were provided for each within the building. The building proper, eight stories high is to be used for the home offices of the company, which owns and controls trolleys, gas and electricity in the vicinity; the main or ground floor is left as a concourse, free from trolley operation. The terminal will be the first step toward better rapid transit in Newark. It will give to the public an idea long needed in Newark — that all good transportation does not necessarily terminate or originate at the "Four Corners." The ultimate rerouting of the cars with regard to the terminal cannot yet be determined, quite obviously. Cer- tainly the terminal will at once absorb surplus travel during rush hours. It will also serve as a center for sub- urban lines, thereby differentiating local and suburban travel, a highly desirable feature. The plans offered were in effect approved by the Board of Street and Water Commissioners and are now being considered by the State Board of Public Utilities. The chief inspector of the latter body recently issued a report on the subject. In it he included six of the specific recommendations previously suggested by this Commis- sion. He also expressed the opinion that final solution of the trolley problem will be found only in the opening and widening of streets by the city; but, in view of the fact that such improvements would probably not be soon PLATE XXXIII. PROPOSED PUBLIC SERVICE TERMINAL. 112 CITY PLAN COMMISSION iindertaken, he feels that the suggestions offered by the Public Service Railway Company should be in general approved. The City's Duty The construction of the terminal will not give relief for more than ten or twenty years, in the opinion of even the railway company. At the end of that period condi- tions will have become fully as bad as they are at present, provid_ed the city does not make improvements in its streets. The trolley company cannot be expected to finance such improvements, although it should bear its just share. The sooner the city undertakes the improve- ments the cheaper will they be, and the better for itself and all concerned. •PLATE XXXIV. PROPOSED PUBLIC SERVICE TERMINAL. CROSS SECTION. PLATE XXXV. EXTENSIONS PROPOSED BY PUBLIC SERVICE. CHAPTER VII. THE MORRIS CANAL The Morris Canal has for years been the subject of discussion, investigation, research and debate by legisla- ture, society and individual. Recommendations, sugges- tions and plans have been many and diverse, some based on facts, some on hearsay, and some only on knowledge and recognition of particular local conditions. As a result, a subject itself unusually complex has become doubly so, and the facts clouded. The latest inquiry is being made by the Morris Canal Investigation Committee, provided for by the Legislature of 1912. That committee, it is presumed, will report its conclusions and findings to the Legislature of 1914. Construction of the Canal The construction of the canal from the Delaware River to the Passaic was authorized by a law passed in 1824, which incorporated the Morris Canal and Banking Company. The charter perpetually exempted the canal property from taxation, permitted it to exact toll charges, and provided that ninety-nine years from the passage of the act the State could purchase the canal at a fair valua- tion; but on failure so to purchase, the charter of the com- pany was to continue for fifty years longer, when it was to cease and the canal become the sole property of the State. A supplemental act, in 1828,* provided for an exten- sion of the Canal from the Passaic to the Hudson. Work was begun in 1825 and completed in 1836. Its length was 102 miles, with 4.69 miles of feeder. An elevation of 514 feet from the Hudson River to Lake Hopatcong is overcome by 12 inclined planes and 16 lift locks. It has a capacity of about 1,000,000 tons per annum each way. 116 CITY PLAN COMMISSION Pursuant to authority given by the charter, the Canal Company obtained lands and flowage rights at Lake Ho- patcong and raised thie waters of the latter about eleven feet, thereby making the wonderful lake we know to-day. The lake is, therefore, partly natural and partly artificial. A total of 6.81 miles of the Canal lies within the borders of the present city of Newark. Titles to Canal Property The titles in the lands taken and held by the com- pany for the Canal and its uses are of four kinds : ■B -as §£; S I «§ "o§ 3 ■g . « 9 . s ° ■ «« ^« o ^ ^^ m M M P3 i-H icket 662 4,117 86 1,372 662 128 CITY PLAN COMMISSION Athletic Fields Branch Brook 76,245 Westside 4,074 80,319 Wading Pools Branch Brook 75,565 Westside 60,125 Riverbank 12,560 148,250 School Playgrounds The Board of Education maintains playgrounds on school premises and in connection with school buildings, twenty-two in all. These were used as summer play- grounds for sev-en weeks during summer vacation, from July 8 to August 23, 1912. The Annual Report of the Board of Education for 1912 says: "The playgrounds maintained by the Board of Educa- tion are in operation on school days from 1 to 5 P. M., and on Saturdays, from 8:30 A. M. to 12:30 P. M. Nearly all are equipped with the best up-to-date apparatus. «The daily program includes, as special features, children's games of many kinds, manual occupation work, physical training, exercises, folk dancing and athletic sports. In addition to the twenty-two playgrounds wherein play is organized, the regulations of the Board require the yards of all school buildings to be kept open for the use and enjoyment of the children of the neighborhood from 8 A. M. to 5 P. M. each weekday of the summer vacation, excepting Saturday, when the school yards are closed at 12 o'clock, noon." During the summer season of 1912 there were 9,965 children enrolled upon the twenty-two playgrounds, and 155 instructors were employed to supervise and direct the play. MUNICIPAL RECREATION 129 City Playgrounds At present there are seven City Playgrounds which are maintained the year round. These are located as follows : No. 1 — Canal Street to Commerce Street. No. 2 — Cor. Prince Street and Waverly Avenue. No. 3 — Newton Street, near Bank Street. No. 4 — Lafayette Street and N. J. R. R. Avenue. No. 5 — Oliver Street to Chestnut Street. No. 6 — Cor. Belleville, Arlington and Wakeman Aves. No. 7 — Summer Avenue and Eighth Avenue. The first three are owned by the Playground Commis- sion ; the other four are rented. Attendance for the year 1912 : Oliver Street Playground 67,779 South Canal Street Playground 162,989 Prince Street Playground 314,330 Newton Street Playground 183,127 Lafayette Street Playground 74,200 'Belleville Avenue Playground 'Summer Avenue Playground 802,425 'Opened in 1913. Grounds and Buildings The general condition of the grounds has been some- what improved during the last season; but further improvement is still needed. Three City Playgrounds are equipped with electric lights and are kept open until 9:30 every evening except Sunday. There are Recreation Houses on Newton Street and Prince Street grounds. They are not well adapted for their use, as they were formerly dwellings, and were never intended for Recreation Houses. There have been no funds available to put these houses in order, consequently they are in a very run down condition and poorly 130 CITY PLAN COMMISSION equipped for recreation purposes. On Lafayette Street and Belleville Avenue Playgrounds small portable houses are used, giving a room 20 feet by 40 feet, in which games are played, folk dances taught, and entertainments given from time to time by the children. These houses are well suited for use on rented property, where it would be unwise to build permanent structures. The Commission is experimenting with portable com- fort stations, which have been greatly needed. Both port- able recreation houses and comfort stations are of sheet steel. New apparatus has been installed on all grounds this season, consisting of swings, slides, giant strides, gymna- sium apparatus, and equipment for basketball, volleyball, etc. Recreation Buildings Recreation buildings similar to those in Boston are strongly urged. They combine a gymnasium, which may be used as a public hall, a swimming pool, game room, reading room and administration offices. They should be built in or near playgrounds, though where thi^ is inipossible, they may well stand by themselves. Even the smallest playgrounds should have, at least, a small recreation building near by. Public Baths This year the public baths were placed under the control of the Playground Commission. They have been made as attractive as possible. The attendance has been very satisfactory, showing high appreciation of public bathing facilities. There are four public baths : No. 1 — Summer Avenue, near Eighth Avenue. No. 2 — Morris Avenue, between South Orange and Fourteenth Avenues. MUNICIPAL RECREATION 131 No. 3 — Walnut Street, near Van Buren Street. No. 4 — Montgomery and Charlton Streets. (Opened September 3, 1913.) The three old baths are of the swimming pool type, but the pools were not constructed properly and are closed, it being impossible to keep them in a sanitary con- dition. They are used as shower baths only. The Com- mission may use the pool spaces in the old buildings for small gymnasiums or more shower baths, or may install a filtration plant and so reconstruct the unused pools as to make them sanitary. The swimming pool type of public baths is decidedly the most popular. If properly constructed and carefully managed, the possibility of contagion is reduced to a mini- mum, and in view of the great advantages of a swimming pool, this type of public bath seems easily the best. Shower baths are always installed with a swimming pool. Swimming should be taught to every child, and regu- lar instruction in it should be given to all school children. A report from one of the largest schools in the city shows that out of an enrollment of 247 boys, there are only 87 who can swim, and out of an enrollment of 275 girls, there are only 15 who can swim. Swimming pools, then, give opportunities for a means for wholesome exercise, pro- mote cleanliness and give training in an almost essential art. Exhibitions and contests from time to time arouse interest and provide enjoyment for the entire community. Many who would not otherwise patronize public baths form habits of cleanliness through the attractiveness of swimming pools. A Department of Municipal Recreation From the above data it is evident that Newark is pecuharly fortunate in the number and extent of its play- ground facilities. It will be seen that the administration 132 CITY PLAN COMMISSION is divided among three separate bodies, and while such sub-division is necessary at present, it would seem that certain features could well be assembled under one body. This body would be known as a Department of Municipal Recreation. New Playgrounds In the past little thought has been given to saving play spaces as the city developed, and consequently it is now necessary to open them at high cost in thickly popu- lated districts. Many dilapidated buildings, stables and sheds ought to give way to small attractive recreation centeils. Such centers should be scattered throughout the con- gested sections of the city. They form city safety-valves and are far better investments than jails and houses of correction. When new districts are being developed, the city should set aside land for playgrounds. They should be planned for in the Vailsburg section, for instance, and in the south and east parts of the city. Many fine plots are now available in sections which will be entirely built up in a few years. One or more should be established in the Fourteenth Ward. The playground opposite Morton Street School should be enlarged to take in the entire half block. The property on South Orange Avenue, near South Twelfth Street, should be carefully considered for a future play- ground. Belleville Avenue Playground, now rented, should be purchased, as should also the Lafayette Street and N. J. R. R. Avenue properties. CHAPTER IX. REVIEW OF THE COMMISSION'S WORK Appointment Under authority of the act of March 30, 1911, enabUng cities of the first class to appoint City Plan Commissions, on June 1, 1911, Mayor Haussling appointed the following citizens as members of the Newark City Plan Commission to serve for a term of one year : Frederic Bigelow John Cotton Dana Christian W. Feigenspan David Grotta Frederick J. Keer John H. Kehoe Austen H. McGregor Samuel E. Robertson Gustavus Staehlin Organization Shortly thereafter the Commission met and organized; Commissioner Grotta being elected President, Commissioner McGregor, Vice-President, Commissioner Robertson, Treasurer. Mr. Newton H. Porter was engaged as Temporary Secretary. Enabling Act On July 28, 1911, the first report was issued containing the text of the enabling act and the suggestions of a Com- mittee on Organization. Secretary On February 13, 1912, Mr. Bigelow resigned as a Commissioner, and on February 29, 1912, was engaged as permanent Secretary. Experts On March 8, 1912, the services of Mr. George B. Ford and Mr. Ernest P. Goodrich, both of New York, were engaged as experts. On May 15, 1912, Mr. Bigelow resigned as Secretary. 134 CITY PLAN COMMISSION Preliminary Report On June 1, 1912, the experts issued their first report to the Commission. This report was in the nature of an outline, describing the fields which the experts proposed to study, and the problems to be met, together with a detailed description of work done to date and the lines along which studies were being made. This report included a list of maps already made or under way, con- sideration of certain street openings and widenings and brief statements on canal, market, and trolley questions. Appointment On June 1, 1912, Mayor Haussling appointed the fol- lowing citizens as members of the City Plan Commission for a term of one year : David Grotta Austen H. McGregor Samuel E. Robertson John Cotton Dana Christian W. Feigenspan Frederick J. Keer Joseph ;M. Byrne Gustavus Staehlin Richard Stockton The organization of the Commission remained the same, save that Mr. Robert L. Ross was engaged as Secre- tary. Market Report On September 3, 1912, the Commission forwarded to the Mayor and Common Council the report of its experts on the Market Problem. The recommendations, etc., therein made will be found in Chapter V. of this report. Traffic Report On November 6, 1912, a report on traffic conditions was submitted to the Commission by the experts. Con- ditions at the intersection of Market and Broad Streets were considered in detail in a sub-report, entitled "An REVIEW OF WORK 135 Analysis of Market Street, Newark, Trolley Operations and Suggestions for Improvements and Relief," by Mr. F. Van Z. Lane. A second sub-report was upon conditions at the intersection of Broad and Bridge Streets, entitled "Suggestions for the Rehef of Traffic Congestion, Imme- diate and Future, at the Junction of Broad and Bridge Streets, Newark, New Jersey," by Mr. H. Bartholomew. Broad Street Paving Report On November 26, 1912, the Commission forwarded to the Mayor and Common Council the report of its experts upon the paving of Broad Street. Much difference of opinion prevailed in the city as to the kind of pavement which should be laid on Broad Street in place of its ancient granite blocks. In their report the experts gave a careful study of all pavements in common use in the large cities of this country, and stated that there are but three which are suitable for Broad Street, — sheet asphalt, wood block and granite block. Sheet asphalt was rejected for its great maintenance cost. The report then stated that wood block, properly treated and laid, and granite block, so trimmed as to leave no interstices greater than a quarter of an inch and grovited with cement, were of almost equal merit; but that in view of the fact that quietness should be given great weight in determining the type of pavement for this particular street, wood block was to be preferred. In a letter submitting this report to the Mayor, the Com- mission went on record in favor of granite block by a vote of 6 to 3. Housing Report In December, 1912, a report on housing conditions, prepared by Dr. James Ford, of Harvard University, was submitted to the Commission by its experts. Housing conditions in all parts of the city were described; the char- acter of dwellings, the distribution of the foreign and native population and other data, being duly set forth. 136 CITY PLAN COMMISSION A house-to-house survey of five selected blocks in different parts of the city was made to illustrate extremes in conditions good and bad. The report shows that Newark is notably free from lot congestion, narrow streets and alleys, surface drainage and one-room apart- ments. The conditions which most seriously menace Newark's welfare were found to be dark rooms, streets without sewers, garbage not well protected, land filled with garbage, and very serious fire risks. Dark rooms were shown to be conducive to the spread of tuberculosis, whether they are windowless rooms, basement rooms, or rooms lighted only by openings into shafts or into narrow alleys between buildings. It appears that under present laws it is possible so to erect buildings as to make them serious fire risks, to con- struct buildings with dark rooms and other unhealthful and unsanitary conditions, to erect tenements upon streets not provided with sewers, to build factories in residential districts and to cover with buildings too large a part of lot areas. Specific recommendations were made for changes in tenement house laws, building code and sani- tary code, which would help to lessen these evils. The zone system was discussed. It was shown that it is possible to restrict vmhealthy growth and to maintain the best standards in the better residential districts. Methods by which other cities are meeting housing prob- lems were noted. Annual Report On December 20, 1912, the experts presented to the Commission, in the form of an annual report, a statement of subjects studied, subjects under consideration, and reports made during the year ending December 31, 1912. Experts On January 1, 1913, the services of Mr. Ford and Mr. Goodrich were again engaged for one year. REVIEW OF WORK 137 Diagonal Street Resolution On January 3, 1913, a resolution was forwarded by the Commission to the Mayor and Common Council, favor- ing the construction of a street known as Diagonal Street, from the junction of Rroad Street and Park Place to the Pennsylvania Railroad plaza on Market Street. Supplementary Market Report On January 29, 1913, a supplementary report on the Market question was issued, again stating that the Com- mission favors the construction of a wholesale market in the south end of the city. In view of a seemingly strong public sentiment in favor of the retention of a retail mar- ket, the report suggested that such a market be estabhshed with a new and proper building on the southeast corner of the present site. On February 28, 1913, the resignation of Commis- sioner Robertson was forwarded to the Mayor. No suc- cessor was appointed. City Plan Law On March 12, 1913, a statute became effective which changed the previous City Plan law as follows : "The terms of the Commissioners were changed from one year for each member to three one-year terms, three two-year terms and three three-year terms; the number of Commis- sioners to remain the same unless reduced at the discre- tion of the Mayor." It further provided that "All questions concerning the location and architectural design of any work of art, statue, or any other memorial within such city, shall be referred to the City Plan Commission for its consideration and report before final action is taken thereon." And that, "All plats or re-plats of any lands within the limits of such city shall be submitted to the City Plan Commission 138 CITY PLAN COMMISSION for its recommendation before the same are approved." The limit of the annual appropriation was increased from $10,000 to $25,000. The new law also automatically continued the Com- mission then in oflice until the first of January, 1914. Sign Report On March 28, 1913, a report of the experts was sub- mitted to the Mayor and Common Council, suggesting changes in the ordinance regulating the construction and maintenance of projecting street signs and roof signs. Jurisdiction of sign construction is now vested in both the Building Department and the Board of Street and Water Commissioners. The report of this Commis- sion suggested changes in the City Ordinances and Build- ing Code whereby jurisdiction would be centralized. A model ordinance amendment was suggested which would regulate projecting street signs in the following manner: All signs to be constructed perpendicular to the build- ing to which attached. No sign over one foot thick. * No sign should be less than ten feet above sidewalk. Signs from ten to twenty feet above sidewalk not to project over four feet. Signs from twenty to forty feet above sidewalk not to project over eight feet. Signs over forty feet above sidewalk not to project over four feet. No sign to project over curb line. No sign to exceed the height of building. No sign to project beyond lines drawn in a horizontal plane at an angle of 45 degrees, with the building line from the line of juncture of the building line with the side lot lines. REVIEW OF WORK 139 No signs to interfere with fire escapes or show win- dows. No sign to be so constructed as to be in danger of falling. All signs to be of non-combustible material. With regard to roof signs : No sign to be over forty feet above top of building. All signs to be of metal. No sign to exceed 1,600 square feet. All signs between 500 and 1,000 feet square to pre- sent a surface of not over 50% subject to wind pressure. All signs over 1,000 feet square to present a surface of not over 30% subject to wind pressure. On May 1, 1913, the request of Mr. George B. Ford, Expert, for a leave of absence of about six months was granted. Farmers' Market Resolution On May 13, 1913, a resolution was forwarded to the Mayor, protesting against the action of the Common Council in authorizing the purchase of a site for a farm- ers' market on Mulberry Street, immediately south of the Central Railroad of New Jersey. Nye Tract On May 13, 1913, a report was forwarded to the Mayor and the Board of Works, regarding the proposed opening of a large tract in the southwestern portion of the city, known as the Nye Estate. This was the first improvement of its kind submitted to the City Plan Commission under the new law. Trolley Transportation Report On June 19, 1913, a report on trolley transportation was forwarded to the Mayor and Board of Works, a description of which is given in Chapter VI. of this report. 140 CITY PLAN COMMISSION Romaine Place On June 19, 1913, a report was issued concerning the opening of a street known as Romaine Place. Sandford Avenue Heights On July 1, 1913, a report was issued concerning the opening of a street layout to be known as Sandford Avenue Heights, nvimber 1. Oakland Terrace On July 1, 1913, a report was issued concerning the opening of a street to be known as Oakland Terrace. Meadow Report On November 26, 1913, a report on the meadows by Expert Goodrich was issued, a digest of which is contained in Chapter IV. of the present report. Asylum Tract On December 9, 1913, a report was issued concerning the opening of a tract of land formerly occupied by the Essex County Hospital. • City Planning for Newark Report On December 31, 1913, a report was issued, entitled "City Planning for Newark." Reports Issued by the City Plan Commission 1. Enabling Act. Printed — 15 pages. 2. Preliminary Report. Printed — 24 pages. 3. Market Report. Printed — 15 pages. 4. Qroad Street Paving. Printed — 10 pages. 5. Housing Report. Printed — 75 pages, 3 maps, 20 illustrations. 6. Annual Report (1912) . Printed — 9 pages. 7. Traffic Report. 26 pages. REVIEW OF WORK 141 8. Report on Opening of Diagonal Street. 4 pages. 9. Report on Signs. 4 pages. 10. Fanners' Market Resolution. 1 page. 11. Report on Opening of Nye Tract. 2 pages. 12. Trolley Transportation. 107 pages, 9 illustra- tions, 133 charts, 16 tables. 13. Report on Opening of Romaine Place. 1 page. 14. Report on Opening of Sandf ord Avenue Heights, No. 1. 2 pages. 15. Report on Opening of Oakland Terrace. 1 page. 16. Meadow Report. 41 pages. 17. Essex County Hospital Tract. 1 page. 18. City Planning for Newark, N. J. Printed — 200 pages, 45 illustrations. CHAPTER X. FUTURE WORK OF THE COMMISSION The work of this Commission, as presented in this and other reports, covers many pliases of city planning, and is distinctly constructive. The community can well afford to give careful attention to its proposals for better- ment. Perhaps the most urgent matters have now been examined and discussed, but many others of importance should be considered if the Commission is to furnish a comprehensive plan for the whole city. Such a plan should be prepared, including all the many phases of the subject, and so setting forth their interrelations that an adjustment between the several parts can well be made. The report in hand, though it summarizes the work of three years only, shows clearly what such a complete city plan for Newark would be like. Were a complete study of the city once made, it would disclose plainly the relative urgency of each problem, so that all could be taken up in their proper order and available money apportioned'to best advantage. Such a comprehensive plan would also present to the citizens an ideal for which to strive, and would inspire civic pride, and would arouse support for securing results. Among the subjects not yet touched upon or which should be treated more in detail are the following : Water Front. The water front has been considered only in connec- tion with meadow development. Plans for developing the whole water front should be worked out in detail, pointing to the most economic use of this very valuable property; these plans should include taking certain por- tions of the water front into the park and parkway sys- tems. FUTURE WORK 143 Railroads The best location of existing or new railroad stations, the relocation of tracks for relieving street congestion, opening up new neighborhoods to residence use and pro- viding less unsightly railroad bridges across principal streets, should all be subjects of consideration. Attention should be given to the handling of freight from a business standpoint, with freight yards so located as to serve best those who use them. This would call for much careful investigation for efTiciency and would mean locating rail- ways, stations, approaches and freight yards on the com- prehensive plan. Streets Urgent street problems have already been presented, but in the outlying districts are many crucial ones still unsolved, and still others will appear in the many new areas in which streets are yet to be laid out. It is very desirable that future streets be so located now as 'to har- monize with a general plan of development. Street Fittings Little attention has been paid to the design, location and arrangement of trolley poles, electric light poles, street name signs, fire alarm boxes, watering troughs, public comfort stations, etc. While these matters are not as urgent as some others already considered, they have a great deal to do with the appearance of the city and the impression it gives to strangers. This Commission could well make a study of this general subject and offer sugges- tions to those who have them in charge. Sub-Structures No attention has been paid to sub-structures, or the possibility of grouping them in pipe tunnels to prevent continual tearing up of streets for repair work. Such 144 CITY PLAN COMMISSION sub-structures should be considered in detail with refer- ence to the work now being done and about to be done by city departments and by private corporations, and provi- sion made therefor. Rapid Transit The transit problem has been well worked out in the reports already submitted. More attention could be given, however, to the question of rapid transit in relation to the developing of new sections of the community, particularly industrial regions. This implies proper provision for transit between residential sections and places like the meadow district. Such rapid transit schemes should be incorporated in the comprehensive plan. Industrial Districts Attention has been given to laying out industrial dis- tricts in connection with the water front development. This should be carried further and plans set forth in detail, so that lot and block units and street arrangements may fit into one another and into the general plan of the eity. Meadow development will be slow and will be mainly carried out by private interests as the need arises; but however slow and fragmentary it may be, it should all conform to a carefully considered general plan. Other portions of the city, particularly adapted to industrial use, should be plotted in the same way and incorporated in the comprehensive plan. Market System Market plans, with particular reference to a whole- sale terminal market, have been presented. A terminal market and several municipal retail markets distributed throughout the city should be considered in detail and reported upon. FUTURE WORK 145 Housing The housing report, submitted in December, 1912, covers the ground quite tlioroughly. Suggestions were made in it for replanning unsanitary areas, and for making plans of model housing areas in outlying undeveloped sections. The items should be incorporated in the com- prehensive plan. Recommendations for changes in hous- ing legislation and administration should be pushed to an end. Recreation Recreation has been studied in much detail, but no report has yet been submitted. The data gathered should be assembled, findings and conclusions tabulated and made public. Plans should be made and included in the comprehensive plan showing ideal locations, sizes and kinds of necessary and desirable playgrounds. Spe- cial studies should be made of the designs of these play- grounds, adapting them to those parts of the community which they are to serve, and connecting them all with the school recreational system. Available plots, near ideal locations of playgrounds, should be examined to learn if they can be used in the place of ideal plots, and if so, how much they would cost in each instance. The general scheme of playground development should fit into the comprehensive plan as a whole ; and an order of urgency be determined, that lands, may be acquired and playgrounds developed where most needed. Parks and Parkways Newark is particularly fortunate in the number, area and design of its parks. Rut certain sections of the city are still not served by parks and no adequate parkway connects existing parks. This point should be carefully considered and reported on. 146 CITY PLAN COMMISSION Present street planting is good, thanks to the amount and quality of the work of the Shade Tree Commission. Improvements could be made in the use of grass borders, shrubbery and flowers in streets and in smaller parks. The comprehensive plan would include these items, worked out in detail, with the aid of the Shade Tree Com- mission. Civic Structures Many good suggestions have been made for the loca- tion and design of civic structures. However, no general plan for grouping civic structures has been presented, and this should be done, bearing always in mind provisions for new buildings. Several central sites, like those by the Public Library, the City Hall, the Court House, and the Pennsylvania station, should be considered in detail, after the manner of the studies offered in this report. Let the city hold competitions among architects for designs for groups of buildings at these and other points. Around certain public squares and parks much could be done to control the architecture of buildings fac- ing such squares and parks. These matters should be •worked out in detail and included in the comprehensive plan. Restrictions Billboards and street advertising signs formed the subject of a report, now under consideration by the city authorities. This should receive further attention and proper results be obtained. The limitation of the heights and areas of buildings should soon be taken up, treated in detail, and ordi- nances or laws formulated. Other cities have seriously considered this subject and Newark could profit by their experience. The districting of buildings should be considered, that factories may be excluded from certain residential districts, as has been done in other cities. FUTURE WORK 147 Paying for Improvements. Study should be made of the comparative value of methods of paying for improvements now in vogue in Newark and other cities. Reference is made particularly to assessing costs of improvements on abuttors, to excess condemnation, and to the unearned increment tax. The advantages, and disadvantages, of municipal ownership of public utilities should be presented. Publicity Campaign The Commission is now possessed of a great mass of interesting and valuable information. To secure results along the lines suggested above, and others not here men- tioned, this information should be brought again and again to the attention of the whole citizen public, plainly and briefly. A publicity campaign should be persistently carried on to bring out this information, together with the findings of this Commission. Conclusion The foregoing statement presents many matters as yet unfinished. All are important and all are essential parts of a complete, well-rounded plan. It is very desirable that all be fully considered and duly incorporated in one comprehensive scheme for the whole community. Only thus will overlapping and inter- ference be avoided. And only thus will the relative value and urgency of each be clearly seen. Such a comprehensive plan will not only prove a great source of inspiration and civic pride, but will also have a marked value in advertising the city by convincing the outside business man that Newark is a live and pro- gressive community, and a good place in which to locate his business. 148 CITY PLAN COMMISSION Such a comprehensive plan will show that money here spent on improvements is used to the best advantage and that the city is getting full value therefor. We repeat some of the suggestions given in Report No. 1: "This Commission should get in touch with all the city departments and especially those that inay in any way come in contact with, or be affected by, any sugges- tions and plans that this Commission may set forth. This Commission should early secure statements from them about the developments and changes they have in mind that may touch upon projects that this Commission may consider. We are confident that all the departments of the city will look upon this Commission as an agency well adapted to bring together the facts of Newark's municipal life, to look at those facts without prejudice, and to draw from them reasonable and helpful recommendations to be sub- mitted for approval to our fellow-citizens. If this Com- mission is, as we believe, thus looked upon by the city at large and by all its departments, we may be sure that any reasonable request for figures, plans, statistics, sugges- tions niid (.riticisms will be cheerfully granted." Index to Report* and Other Material of the City Plan Commission of Newark, New Jersey Reports that have been printed are fully indexed by number (bold face) and page. Manuscript reports are noted under title with synopsis of contents in oi^der. Entries for maps and charts with no numbers refer to such maps and charts as are on file in the office of the Commission. The list of reports by number is given on page 140 of this report. Academy Street Widening, Map Act enabling cities of the first class in New Jersey to provide for City Plan Commission, 1, 3 Supplement, 1, 4a Administration laws, report to be made, Q, 8 Advantages of Newark, 18 xvli Albert street, see Island district Amendments to Rules, how made, 1, 8 Apartment hotels should come un- der Tenement House Apt, 6, 38 Architecture, report in progress, 6, 8 Area increase, Map Arlington Street, see Springfield Avenue Asylum tract report, noticed Dec. 9, 1913, 18, 140; report in full, 16 Augusta Street, see Springfield ave- nue Augusta street area should be opened up to commerce, 5, 53 Avon Avenue Traffic, 3 Charts Bank Street Traffic, Chart Barnard, Seymour, in charge of recreation investigation, 6, 7 Bartholomew, Harland, report on trolley transportation, 12 (Not printed) for contents, see "Trolley Transportation" Suggestion for the relief of traffic congestion, immediate and future, at Broad and Bridge streets. Part of Re- port 7 Basement dwelling conditions, 5, 9 Basin of 1867, 18, 117 Baths, public, location and descrip- tion, 18, 130 Bayonne affected by bay develop- ment, 18, 70 Beaver Street Extension, llap. Beaver Street, suggested extension, 18, 18; map, 18, 19 Belleville, Map Belleville Avenue Traffic, 2 Charts Belmont Avenue, suggested connec- tion with Norfolk Street, 2, 23; 18, 22; map, 18, 23 Traffic, Chart Bergen Line, Passenger Counts, 6 charts Route, Map Bigelow, Frederic, member of City Plan Commission, 1911, 1, 6; 18, 133 Secretary 1912, 18, 133 Billboard restrictions needed, 18, 146 Bloomfield Avenue Traffic, 3 charts Bloomfield Line Passenger Counts, 6 charts Route, Map Board of Education playgrounds, 18, 128 Board of Health susceptible to popular demand, 5, 46 Board of Street and Water Commis- sioners meadow plans, 18, 77 approval of Public Service ter- - minal plan, 18, 110 Board of Trade committees and city planning, f>, 74 150 CITY PLAN COMMISSION Boulevard plan for Morris Canal, IS, 120 Branford Place Extension, 2 Maps Levels, Map Bremerhaven, Germany, port devel- opment, IS, 84 Brick Tenement Houses, Location, Map number and cost, 5, 23 Bridge and Broad Street plaza, 18, 44; illustration, 18, 45 Bridge Street, suggested widening, IS, 21; map, 18, 13 Widening, Map Bridge Street Bridge Traffic, Map Traffic, Chart Broad and Bridge Street plaza, 18, 44 Broad and Market Streets, Traffic movement at, 18, 101; 2 maps Broad Line, Passenger Counts, 6 charts Route, Map Stops on. Map Broad Street paving, report 4; re- ferred to, IS, 135 Broad Street Profile, Map Broad Street Traffic, 9 Charts Broome Street, see Prince Street Brown, Miss Udetta B., engaged for housing investigation, 5, 2 Building and Loan associations pro- mote home building, 5, 58 statistics, 18, xxil Building code of 1911, 5, 26 changes recommended, 5, 38 Building codes and the state laws, 5, 27 Building Committee of Common Council, powers on appeal, 5, 45 Building construction by wards, 1907-11, 18, 81 Building Department of Newark, general recommendations re- garding, 5, 44 Building districts of Newark, exist- ing, 5, 60 Building inspectors, need of more, 5, 45 Buildings, height of, restrictions, IS, 146 Bulletins, need of publication of, 1, 12 Business enterprises, need of co- operation, 1, 14 Business, order of, at meetings, 1, 8 Byrne, Joseph M., member of City Plan Commission 1912r, 18, 134 Canal, Morris, see Morris Canal Canal zone meadow plan, objections, IS, 77 Cars, Distribution of, 3 Maps per hour. Chart Cellar dwelling conditions, 5, 10 should be prohibited, 5, 3 6 Central Avenue Traffic, 4 Charts Central Line Passenger Counts, 6 Charts Route, Map Centre Market conditions described, 3, 5 site should be abandoned, 3, 6 present condition, 18, 90 See also Market Centre Market, 5 Maps Centre Street Traffic, Chart Charitable organizations, '18, xxix Charts on file Avon Avenue Traffic, 3 charts Bank Street Traffic Belleville Avenue Traffic, 2 charts Belmont Avenue Traffic Bergen Line Passenger Counts, 6 charts Bergen Street Traffic, 3 cHarts Bloomfield Avenue Traffic, 3 charts Bloomfield Line Passenger Counts, 6 charts Bridge Street Bridge Traffic Broad Line Passenger Counts, 6 charts Broad Street Traffic, 9 charts Cars per hour Central Avenue Traffic, 4 charts Central Line Passenger Counts, 6 charts Centre Street Traffic City Line Traffic Clay Street Bridge Traffic Clifton Avenue Traffic Clifton Line Passenger Counts, 6 charts Clinton Avenue Traffic, 5 charts Clinton Line Passenger Counts, 6 charts INDEX 151 Charts on file Commerce Street Traffic, 3 charts Counts, ResumS of Traffic Elizabeth Avenue Traffic, 3 charts Elizabeth Line Passenger Counts, 6 charts Ferry Street Traffic, 5 charts Fifteenth Avenue Traffic Firemen's Building, Traffic at First Street Traffic Frelinghuysen Avenue Traffic, 2 charts Front Street Trdlffie, 3 charts Halsey Street Traffic, 4 charts High Street Traffic, 4 charts Jackson Street Bridge Traffic Jones Street Traffic Kearny Line Passenger Counts, 6 charts Kinney Line Passenger Counts, 6 charts Main Una Passenger Counts, 6 charts Market Street Traffic, 8 charts Mt. Prospect Avenue Traffic, 2 charts Mt. Prospect Line Passenger Counts, 6 charts Mulberry Line Passenger Counts, 6 charts Mulberry Street, 4 charts Norfolk Street Traffic Ogden Street Traffic, 2 charts Orange Line Passenger Counts, 6 charts Orange Street Traffic, 4 charts Park Avenue Traffic, 2 charts Park Place Traffic, 2 charts Paterson Line Passenger Counts, 6 counts Plank Road Line Passenger Counts, 6 charts Plank Road Traffic Principal Streets, Traffic on Prudential Building, Count at Public Service Building, Count at Riding, Chart River Street Traffic Roseville Line Passenger Counts, 6 charts Running Time Schedule, Trolley Sixteenth Avenue Traffic, 2 charts South Canal Street Traffic South Orange Avenue Traffic, 4 charts South Orange Line Passenger Counts, 6 charts Statistical Chart Springfield Avenue Traffic, 4 charts Springfield Line Passenger Counts, 6 charts Trolley Passenger Counts, 8 charts Warren Street Traffic Washington Avenue Traffic Washington Street Traffic, 4 charts William Street Traffic Charts, list, 2, 14 Chester Avenue, see Silver Lake dis- trict Chestnut Street, Philadelphia, wid- ening of, 18, 62 City Departments, need of getting in touch with, 1, 10 City Line Traffic, Chart City Plan Commission, Act enabling cities of New Jersey to pro- vide; 1, 3; Supplement, 1, 4a form of notification of appoint- ment by Mayor Haussling, 1, 5 membership, officers and execu- tive committee, 1911, 1, 6; 1912, 18, 134 preliminary report by Messrs. George B. Ford and B. P. Goodrich, 2 need of a permanent, 6, 173 future work, 18, 142 reports, list, 18, 140 review of its "work, IS, 133 rules, 1, ^ City plan commissions in America, 5, 73 in Europe, 5, 73 City plan law amended March 12, 1913, 18, 137 City planning defined, 2, 4 program laid out by expertg, 3, 8 functions of, 18, 1 what it means, 1, 13 152 CITY PLAN COMMISSION City Planning for Newark:, report, 18 City playgrounds, 18, 129 Civic activities of Newarlt, 18, 43 Civic bodies, need of cooperation with, 1, 14 Civic structures, location and de- sign, 18, 14« Civics in schools should Include City Plan information, 1, 12 Clay Street Bridge Traffic, Chart Clifton Avenue Traffic. Chart. Clifton Line Passenger Counts. 6 charts. Clifton Line Route, Map. Clinton Avenue extension suggested, 18, 34 Clinton Avenue plaza suggested, 18, 52r Clinton Avenue Traffic, 5 charts Clinton Line Passenger Counts, 6 charts Clinton Line Route, Ma,p. Columbus, Ohio, Tenement House Law provisions, 5, 35 Comfort stations should be consid- ered, 18, 143 Commerce Street Traffic, 3 charts Commissioners in 1911, 1, 6; in 1912, 18, 134 Committee on Rules appointed, 1, 9 Committees, powers, etc., 1, 8 Common Council Building Commit- tee, danger of its power on appeal, 5, 45 Congested District, 2 maps. Contour Lines of Newark, Map. Co-operation of private bodies with plan commissions, 5, 74 Co-operation with surrounding towns necessary, 5, 57 Co-operative development of land, 5, 66 Co-operative industrial commu- nities, 5, 65 Copeland, Herman, engaged for housing investigation, S, 2 Cottage construction cost, reduction of. 5, 68 Cottage for true home life, 5, 56 Counts, Resume of Traffic, Chart Courts of buildings prescribed and recommended changes, S, 31 Daily Travel, Map Dana, John Cotton, member of City Plan Commission 1911, 1, 6; 18, 133; member 1912, 18, 134 Darlc halls should be eliminated, 5, 35 Dark rooms and tuberculosis, 5, 8 Death rate and bad housing, 9, 47 Decorative improvements consid- ered, 18, 43 Delavan Avenue, »ee Silver Lake district Democracy and the housing prob- lem, 5, 7 Diagonal Street, 6 maps report by E. P. Goodrich, 8, not printed resolution Jan. 3. 1913, IS, 137 suggested opening, 18, 6; map, 18, 7 Traffic Disribution. map view down proposed, 18, 53 District of Columbia, street con- struction, 18, 63 Drink question, IS, xxviii Dwellings in poor repair, causes of, 5, 17 East Orange, Map Education, Board of, should Include City Plan information in Course of Study, 1, 12f Education in Newark, 18, xxix Efficiency and the housing problem, 5, 6 Eighth Avenue block investigated, 5, 4 Electric light poles should be con- sidered, 18, 143 Electricity, cost in Newark, 18, xxvi Elizabeth affected by bay develop- ment, 18, 70 Elizabeth Avenue Traffic, 3 Charts Elizabeth Line Passenger Counts, 6 charts Route, Map Emden, Germany, port development, 18, 83 English re-housing methods d.o not pay, 5, 51 Essex County Hospital for. the In- sane tract of land, report on the opening, IC; reference to, IS, 140 INDEX 153 Essex County Park Commission playgrounds, IS, 127 Essex County Parle System, Map Essex County plan commission de- sirable, 5, 57 Esther Street, see Island district Euclid Avenue, see Island district Excess condemnation described, IfJ 38 law in New York state, 18, 41 operation in Europe, 18, 39 Executive Committee in 1911, 1, 6 powers, etc., 1, S report on Outline of Work, 1, 9 Experts, need of, suggested, 1, 10 Factories, location, 18, xviii; map, 18, xxvl moving to the outskirts, 5, 65 sites considered, 18, xxv Factory zone of Newark, ■";, 64 Fare zone. Map Farmers' Market resolution, May 13, 1913, 18, 139 Feigenspan, Christian W., member of City Plan Commission 1911, 1, 6; 18, 133; member 1912, 18, 134 Ferry Street Traffic, 5 Charts Fifteenth Avenue Traffic, Chart Financial laws, report to be made upon, 6, 8 Fire alarm boxes should be consid- ered, IS, 143 Fire escapes, suggested changes In law, 5, 34 required by Tenement House Act, S, 24 Fire limits, buildings within, 5, 19 buildings without, 5, 22 should be extended, 5, 45 Fire Prevention Code, 5, 26 Fire problem, 5, 19 Fire provisions of the Tenement House Act should be changed, 5, 32 Fire risk of Newark, 5, 24 Firemen's Building, Count at. Chart First Street Traffic, Chart Flathouses, rent costs, 18, xxii Food prices considered, 18, xxii Ford, George B., engaged as expert, 18, 133 housing report, 5 preliminary report, 2 report for 1912, « report on market problem, 3, 5 report on paving of Bfoa Street, 4 report on projecting and sk signs, 0, not printed report on vehicular and traffl conditions, 7 Ford, Dr. James, in charge of hous ing investigation, 8, 7 housing report, 5 Frame buildings, law should b changed, 5, 33 within five feet of lot line shoul be forbidden, 5, 39 Frame dwellings constructed i 1910, 5, 22 for more than two famille ■ should be forbidden, 5, 39 Frame Tenement Houses, Locatio Map number and cost, 5, 22 France, port development in, 18, I Freight traffic of Newark Bay ar Passaic River, 18, 82 Frelinghuysen Avenue Continuatio Map suggested extension, 18, 16; ma IS, 17 Frelinghuysen Avenue Traffic, Charts Front Street, straightening pr( proposed, a, 23; 18, 4; map, 1 5 Front Street, Straightening, Map Traffic, 2 Charts Garbage disposal, 5, 15 receptacle code should be a tered, 5, 39 used for land filling, 5, 17 Garden cities, 5, 65 Gas cost, 18, xxvi Geological Survey of New Jerse Map Germany, port developments in, ] 83 Goodrich, Ernest P., engaged as e; pert, 18, 133 housing report, r, preliminary report, 2 recommendations concerning tl approval of Sanford Avem heights No. 1, 14, not printi 154 CITY PLAN COMMISSION Goodrich, Ernest P., recommenda- tions for the approval of a street known as Oakland Terrace, 15, not printed report for 1912, 6 report on Diagonal Street, 8. not printed report on market problem, 3, 5 report on paving of Broad Street, 4 report on projecting and sky signs, 9, not printed report on the meadows of New- ark, 17 report on the proposed subdivi- sion of the Nye estate, 11, not printed report on trolley transporta- tion, 12, not printed. For-con- tents see "Trolley transporta- tion" report on vehicular and traffic conditions, 7 report relative to the opening of Romaine place, 13, not printed Government control of sanitation and buildings, 5, 2 6 Grade Crossings, Map Grade elimination to be studied, 6, 8 Greater Newark, map, IS, xxviii Green street, suggested extension, 18, 24; map, IS, 25 Grotta, David, member of City Plan Commission 1911, 1, 6; 18, 133; president 1911, IS, 133; mem- ber 1912, 18, 134 Halsey Street Traffic, 4 Charts Hamburg, Germany, port develop- ment, IS, 84 Harbor development, IS, 68 frontage of Newark bay and Passaic River, 18, 89 Haussling, Mayor Jacob, appoints Newark City Plan Commis- sion, 1, 5 Health and the housing problem, 5, 5 Health codes and the state laws, 5, 27 Health Department, small propor- tion of public funds allotted to, r., 47 Health inspectors, need of more, 5^ 47 Health records, need of more, 5, 48 Height of buildings prescribed, 5, 30 of non-fireproof buildings should be limited, 5, 39 High and "William Street Levels, Map High Street at Eighth avenue, pro- posed change, 2, 22 at Orange street, proposed change, 2, 21 pavement should be replaced, 2,. 21 straightening, 2 maps suggested changes at Orange street and Eighth avenue, IS, 26; map IS, 27 traffic, 4 charts Homes of Newark, 5, 1 location, 18, xviii rents of various classes, IS, xxi Homicide record, IS, xxix House construction cost, reduction of, 5, 68 House planning near factories, 5, 70 Housing and democracy, 5, 7 and efficiency, 5, 6 and morality, 5, 6 and public health, 5, 5 and public safety, 5, 6 Housing association permanently needed in Newark, 6, 75 Housing, best type of, 5, 55 *' Housing legislation existent in Newark, 5, 26 need of enforcement, 6, 41 needed, IS, 145 Housing problem and city planning of new areas, 5, 55 and replanning old districts, 5, 50 defined, 5, 5 in Newark, 6, 5 legislation, 6, 25 of Newark contrasted with other cities, 5, 7 Housing problems, some specific, 5, 8 Housing reform promoted by Build- ing and Loan Associations, 6, 58 Housing report, by E. P. Goodrich and George B. Ford, 5; made December, 1912, is, 135; no- ticed. «, 7 INDEX 155 Hydrants in yards, 5, 14 Industrial communities co-operative, 5, 65 districts should be planned, 18, 144 Industrial map, 2 maps Industries, varied, 18, xxv Infectious diseases, investigation of origin, 5, 48 Iron Bound Plaza, suggested, at Marlcet Street and Pennsyl- vania railroad, 18, 49; view, 18, 50 Island district investigated, 5, 3 Jackson street bridge approach, 2, 2'4; suggested, IS, 30; map, 18, 31 Jackson Street Bridge Approach, Map Jackson Street Bridge Traffic, Chart Jersey City affected by bay develop- ment, 18, 70 Jones Street Traffic, Chart Joseph Street, see Island district Juvenile Delinquency, Map Kearny Line Passenger Counts, 6 charts Kearny Line Route, Map Keer, Frederick J., member of City Plan Commission, 1911, 1, 6; 18, 133; member 1912, 18, 134 Kehoe, John H., member of City Plan Commission 1911, 1, 6; 18, 133 Kinney Line Passenger Counts, 6 charts Kinney line, proposed easterly ex- tension, 2, L'3 Kinney Line Route, Map Lafayette street, suggested widen- ing, 2, 22; 18, 14; map, 18, 15 Lafayette Street Widening, Map Land, cost of, in the suburbs, 5, 65 Land development by co-operation, 5, 66 Land tax, 5, 67 Landers alley district investigated, 3, 3 should be extended to Spring- field avenue, 5, 53 Landscape architecture to be re- ported, 6, 7 Lane, F. Van Z., analysis of the Market Street trolley opera- tion. Part of Report 7 Legislation and the housing- prob- lem, 5, 25 Legislative enabling act printed July, 1911, 18, 133 Lehigh Valley Railroad Company, lessee of Morris Canal, 18, 117 Letter presenting 1913 report, IS, iii Living cost in Newark, 18, xxli Lodgers and overcrowding of rooms, 5, IS . Lodging house class, suggestion re- garding, 5, 38 ordinance, 6, 26 ordinance, some defects, 5, 25 Lofts for business, rental costs, 18, xxv Lot and house planning near fac- tories, 5, 70 Lot and street planning recom- mended for suburbs, 5, 70 Lot area covered, suggested change, 5, 38 percentage allowed built upon, 5, 30 Lot units and housing, 5, 68 Lpts, disadvantages of uniform type, 5, 69 size and shape of existing, 5, 68 wider and shallower in suburbs, 5, 71 Lubeck, Germany, port development, 18, 85 McGregor, Austen H., member of City Plan Commission 1911, 1, 6; 18, 133; vice-president 1911, 1, 6; 18, 133; member 1912, 18, 134 Main Line Passenger Counts, 6 charts Main Line Route, Map Manufactures of Newark tabulated, 18, SO advantages of Newark, 18, xxxi statistics, 18, xxiv Maps and charts prepared, list, 2, 14 Maps, Housing, on file Brick Tenement Houses, Location Frame Tenement Houses, Loca- tion One Family Houses, Location Two Family Houses, Location Typhoid Fever, Location 156 CITY PLAN COMMISSION Maps, Miscellaneous, on file Area, Increase Belleville Centre Market, 5 maps Contour Lines, Newark Essex Coiinty Park System Fare Zone Geological Survey of New Jer- sey Grade Crossings Meado* Line Newark, 1806 Newark, 1836 Newark, 1891 Newark, Parks, Buildings, etc. Nye Tract Oakland Tferrace Pavements Railroad Pi'operty Homaine Place Sanford Avenue Heights No. 1 Street Profiles United Staties United States and Canada United States Geological Sur- vey, 6 Maps "Waterfront Development Woodland Gi'ove, 1 Maps > Maps, Recreation, on file Juvenile Delinquency Occupation of Children Playground, Branch Brook Park Playground, Newton Street Playground, Prince Street Playgrounds, Location Recreation Map Third Ward Maps, Traffic, on file Academy Street Widening Beaver Street Extension Bergen Line, Route Bloomfield Line, Route Branford Place Extension, 2 Maps Branford Place Levels Bridge Street Bridge, Traffic Bridge Street Widening Broad and Market Streets, 2 Maps Broad Line, Route Broad Street, Stops on Broad Street Profile Cars, Distribution of Centra! Line, Route Clifton Line, Route Clinton Line, Route Congested District Daily Travel Diagonal Street, 4 Maps Diagonal Street Traffic Distribu- tion . East Orange Elizabeth Line, Route Frelinghuysen Avenue Continu- ation Front Street, Straightening High and William Street Levels High Street, Straightening Jackson Street Bridge approach Kearny Line, Route Kinney Line, Route Lafayette Street Widening Main Line, Route Market Street Market and Broad Streets, Traf- fic Mechanic Street Widening Mt. Prospect Line, Route Mulberry Line, Route Mulberry Street Straightening Newark and Environs Newark, Central Section Newark, Official Map Norfolk Street and Belmont ave- nue, Connection Observation Points, 2 Maps Orange Line, Route Park Avenue Continuation Paterson Line, Route Pavements, Vehicles .^.voiding Plane Street, Continuation Plank Road Line, Route Population Public Service Terminal, 7 Maps Residential Map Roseville Line, Route South Orange Line, Route Springfield Avenue Extension Springfield Line, Route Street Profiles Time Zone, Map Traffic Traffic Pedestrian, Graphical Traffic Trolley, Graphical Traffic Vehicular, Graphical Trolley Lines, 3 Maps Trolley System, Re-routing Washington Street Widening INDEX 157 Market and Broad Streets Traffic, Map Market and Broad streets, trafBc movement at, 18, 101 Market financial statement, 18, 91 present site, 18, 91 problem, 18, 90 report, 3; made Sept. 3, 1913, IS, 134; noticed, «, 5 report of City Plan Commission, IS, 95; supplementary, Jan. 29, 1913, 18, 137 report to Commission by Messrs. Ford and Goodrich, 3, 5 question, 2, 17 subdivision suggested, 18, 97 suggested plsai at south end of city, 18, 92; map, 18, 93 tract purchase, resolution pro- testing, 10, not printed wholesale, recommended, 18, 92 Market building, agreement between Newark and Morris Canal Co., 18, 119 financial considerations, 3, 15 suggested type for, 3, 14 Market farmers', at Broad and Poin- ier Streets, 18, 95 at present, 18, 90 proposed change of location, 3, 10 suggested site at South Broad Street, 3, 13 Market retail, bond issue author- ized, 18, 95 objections to, 18, 98 recommended abolition, IS, 91 should be abolished, 3, 7 suggested site on River Street, 3, 14 Market Street buildings to be con- demned to open diagonal street, illustration, l.S, 9 Market Street, Map Plaza, 18, 48; map, ISi, 49 Traffic, 8 Charts Meadow area, map, 18, xxx development facts to be consid- ered, 18, 70 objections to canal plan, 18, 77 present plans of Street and Wa- ter Commissioners, 18, 76 Meadow Line, Map Meadow report Nov. 26, 1913, 18, 140 Meadows of Newark, Report by B. P. Goodrich, 17, not printed Contents Newark manufactures, statis- tics Factory buildings, location River and Bay traffic German port developments Brertierhaven Hamburg Lubeck French port developments U. S. government work on the river and bay Vessel and freight movements Problems incident to meadow reclamation Scheme of Advisory Commis- sion July 25, 1908 Canal plans Scheme to develop with piers and slips Comparison with Hamburg Various plans proposed, with objections, criticisms, etc. Mechanic Street Widening, Map Meetings, when held, 1, 7 Metropolitan Newark plan commis- sion desirable, 5, 57 Military park plan, 18, 46; map, 18, 47 Morality and the housing problem, 5, 6 Morris Canal abandonment, 2, 16 agreement with Newark on bridges and market building, 18, 119 basin of 1867, 18, 117 boulevard plan, 18, 122 commercial use of, IS, 118 commission of 1905, 18, 119 grant of 1889, 18, 117 history and legislation, 18, 115 inquiry, 18, 115 Investigation Committee, 18, 115 Investigation Committee of twelve, 18, 121 Legislative Committee of 1912, 18, 120 problem in Newark, 18, 123 properties, 18, 116 reservoir properties, 18, 116 Mortality and bad housing, 5, 47 158 CITY PLAN COMMISSION Mt. Prospect Avenue TraflBo, 2 charts Mt. Prospect Line Passenger Counts, 6 charts Mt. Prospect Line Route, Map Mulberry Line Passenger Counts, 6 charts Mulberry Line Route. Map Mulberry Street Traffic, 4 charts Mulberry Street Straightening, Map Municipal control of housing and city planning, 5, 73 Municipal housing not expedient in America, 5, 51 Municipal ownership of land, 5, 66 should be considered, IS, 147 Museum building, proposed, illustra- tion, 18, 42 Nassau place Investigated, 5, 4 Nationality of Newark's population, diagram, 18, xxi New Jersey Central railroad bridge, 18 New Jersey shore railroad advan- tages, 18, 69 New York harbor a- world port, 18, 68 freight disadvantages, 18, 69 Newark 1806, Map Newark 1836, Map Newark 1891, Map Newark and environs, 2 maps Newark, advantages of, 18, xvii affected by bay development, 18, 70 anniversary in 1916, plans should be made, 1, 14 building construction by wards, 18, 81 central section. Map charities, 18, xxlx crosstown thoroughfares, 18, 65 death rate, 18, xvil education in, 18, xxlx factories, location, map, 18, xxvi greater city, map, 18, xxvill growth of, 18, XX Industrial growth, tabulated, IS, 80 manufacturing advantages, IS, xxxi manufacturing statistics, 18, xxiv meadow area, map, J8, xxx Offlcial Map Parks, Buildings, etc., Map population by nationality, dia- gram, 18, xxl present progressive spirit, 18, xxvii residential map, IS, 99 residential area maps, 18, xxiii, xxiv social betterment, 18, xxix strategic position for manufac- turing and commerce, map, 18, xvlli street cleanliness, IS, xxx suburban thoroughfares, 18, 64 water supply, source of, map, 18, XX Newark Bay and Meadows, map, 18, 75 commercial possibilities, 18, 70 development, 18, 70 development commission need- ed, 18, 72 development, legislative bill prepared, 18, 73 development should be general, 18, 70 freight traffic tabulated, 18, 82 harbor frontage, 18, 89 harbor plan of Board of Works, map, IS, 78 Newark City Plan Commission, membership 1911, 1, 6; 18«,133; in 1912, 18, 134 Norfolk Street and Belmont Avenue Connection, Map Norfolk street, suggested connection with Belmont avenue, 18, 22; map, 18, 23 North Eighth Street, sec Silver Lake district North Ninth Street, see Silver Lake district Nye estate, report on the proposed subdivision, by E. P. Goodrich, 11, not printed; report May 13, 1913, 18, 139 Map Oakland terrace, recommendations for the approval of, by B. P. Goodrich, l.-i, not printed; re- port July 1, 1913, IS, 140 Map Observation Points, 2 Maps Occupation of Children, Map INDEX 159 Officers of the Commission, duties of, 1, 6 Officers in 1911, 1, 6; in 1912, 18, 134 Ogden Street Traffic, 2 charts One Family Houses, Location, Map Orange line, outbound passengers, diagram, 18, 107 Passenger Counts, 6 charts Route, Map westbound passengers, diagram, IS, 105 Orange Street Traffic, 4 Charts Overcrowding of rooms, 5, 18 and air space of rooms, 5, 35 Park Avenue, easterly extension proposed, 2, 22 Continuation, Map Traffic, 2 Charts Park Place Extension of Broad Street proposed, 2, 20 Parks, location of, map, 18, xxx Parkway development needed, 18, 145 Passaic River freight traffic tabu- lated, 18, 82 harbor frontage, 18, 89 Passaic Valley trunk sewer, map, 18, xlx Paterson Line Passenger Counts, 6 charts Paterson Line Route, Map Pavements, Map Pavements, Vehicles avoiding. Map Paving problems noticed, 6, 5 Penalty clause of Tenement House act not stringent enough, 5, 41 Philadelphia street widening law, 18, 62 Pipe tunnels should be considered, 18, 143 Plane Street Continuation, Map Plane Street suggested extension, 2, 21; 18, 20; map, 18, 21 Plank Rpad Line Passenger Counts, 6 Charts Plank Route Line Route, Map Plank Road Traffic, Chart Playground, Branch Brook Park, Map Newton Street, Map Prince Street, Map Playground buildings, 18, 129 Playgrounds, county, 18, 127 future, IS. 132 location. Map municipal, 18, 125 of City Playground Commission, 18, 129 of Newark, classification, 18, 126 scheme should be developed, IS, 145 school, 18, 128 Plaza sites considered, 18, 44 Political favors in building matters, S, 46 Population, Map Population by nationality, diagram, 18, xxi Port development in France, 18, 85 in Germany, 18, 83 of Portland, Oregon, 18, 86 Porter, Newton H., temporary secre- tary 1911, 1, 6; 18, 133 Portland, Oregon, port development, 18, 86 Preliminary report issued June, 1912, 18, 134 President of the Commission, duties of, 1, 7 Prince Street, Waverly Avenue,, Broome and Spruce Street block investigation, 5, 3 Principal Streets, Traffic, Chart Privy vaults still in existence, 5, 11 Produce, how it comes to Newark, 3, 7 Prudential Building Count, Chart Public Service Building Count, Chart Public Service Railway Company and the trolley problem, 18, 102 extensions proposed by, map, 18, 114 Public Service Terminal building, illustration, IS, 111 cross section, illustration, 18, 113 plan, submission of, 18, 108 approved by Board of Works,- 18, 110 7 Maps Publicity, need of, 1, 11; 18, 147 Railroad environments considered, 18, 50 stations, tracks, etc., should be considered, 18, 143 Railroad Property Map Railroads through Newark, map, 18, xviii Rapid transit problem, 18, 144 160 CITY PLAN COMMISSION Recreation Map Recreation buildings needed, 18, 130 municipal, 18, 125 need of a municipal department, 18, 131 work in charge of Seymour Bar- nard, 6, 7 Refuse disposal, 5, 15 Rent costs of various kinds of homes, 18, xxi Report of Commission, 1912, 6; for 1913, 18; summary of 1913 re- port. 18, V Reports of results of investigation, ncied of publication, 1, 12 Residential Map Residential area of Newark, maps, 18, xxiii, xxiv Residential Map of Newark, 18, 99 Residential streets, unnecessary cost of construction, 5, 67 Riding Chart River Street suggested for retail market, 3, 14 River Street Traffic, Chart Robertson, Samuel E., member of City Plan Commission 1911, 1, 6; IS, 133; treasurer 1911, 1, 6; 18, 133; member 1912, 18, 134 Romaine Place, report relative to opening of, by B. P. Goodrich, 13, not printed; noticed, 18,140 Romaine Place, Map Roofs of inflammable material should be forbidden, 5, 33 Rooms, minimum size should be pre- scribed, 5, 34 Rosevllle Dine, Passenger Counts, 6 Charts Route, Map Ross, Robert L., secretary 1912, 18, 134 Rules of the Commission, 1, 7 Running Time, Chart Safety and the housing problem, 5, 6 Saloons considered, 18, xxviii Sanford Avenue Heights No. 1, rec- ommendations concerning the approval of, by E. P. Good- rich, 14, not printed; noticed, IS, 40 Sanford Avenue Heights No. 1, Map Sanitary Code of the Board of Health, 5, 26 changes recommended, 5> 39 Sanitary conditions and mortality, 5* 47 enforcement penalties Inade- quate, 5, 49 Sanitation of dwellings, 5, 11 Savings bank statistics, 18, xxii Schedules, Trolley, Chart School system, 18, xxix Schools, location of, map, 18, xxx Secretary of the Commission, duties of, 1, 7 Sewer, trunk, from Paterson to New York bay, map 18, xix Sewers, lack of, in certain sections, 5, 11 Shafts in new buildings should be forbidden, 5, 39 Shipman Street, see Springfield Ave- nue Sidewalk widths, 18, 57 Sign restrictions needed, 18, 146 Signs, projecting and sky, report by E. P. Goodrich and George B. Ford, 9, not printed; noticed, 18, 138 Silver Lake district investigated, 5, 4 Sixteenth Avenue Traffic, 2 Charts Slum clearance and municipal re- housing, 5, 51 elimination by taxation, 6,*5Z opening to commerce, 5, 52 proposed method of treatment, 5> 50 Social betterments of Newark, 18, xxix Soldiers' and Sailors' Monument on Military Park, 18, 46 South Broad Street suggested for wholesale market, 3, 13 South Canal Street Traffic, Chart South Orange Avenue aijd South Twelfth Street tract of land, report on the opening of, 16 South Orange Avenue Traffic, 4 Charts South Orange Line Passenger Counts, 6 Charts South Orange Line Route, Map South Twelfth Street and South Or- ange Avenue tract of land, re- port on the opening of, le INDEX 161 Southern section of city, suggested street changes, 18, 34; map, 18, 35 Springfield Avenue Extension, Map Shipman, Augusta and Arlington Street block investigated, 5, 3 Traffic, 4 Charts Springfield Line Passenger Counts, 6 Charts Route, Map Spruce Street, see Prince Street Stables, locations forbidden by Sani- tary Code, 5, 14 maintained in dwelling houses, 5, 15 unsanitary locations, 5, 14 Staehlin, Gustavus, member of City Play Commission, 1911, 1, 6; 18, 133; member 1912, 18, 134 State laws and local health and building codes, 5, 27 State matters, need of information on, 1, 11 Statistical chart Statistics, need of compilation, 1, 11 Stickel, Fred G., Jr., Morris Canal Boulevard plan, 18, 120 Stockton, Richard, member of City Plan Commission 1912, 18, 134 Streets, arrangement, 18, 55 bad features of certain, 18, 67 betterments to be studied, 6, 8 changes, estimated cost, 18, 36 classification, 18, 57 cleanliness of, 18, xxx construction in residential sec- tions unnecessarily expensive, 5, 67 costs, 18, 56 crosstown thoroughfares, 18, 65 extension and widening as a method of remodeling dwell- ing conditions, 5, 54 fittings should be considered, 18, 143 leading to suburbs, 18, 64 name signs should be consid- ered, IS, 143 plans affect housing conditions, 5, 56 problems still unsolved, 18, 143 Profiles, 2 Maps railway traffic, 2, 18 re-alignment considered, 2, 20 re-grading considered, 2, 20 standards, IS, 57 system, influence on character of a city, 18, 1 system must be planned for each city, 18, 2 types, diagram, 18, 54 widening costs, 18, 61 width ordinances, 18, 57 widths, 18, 55, 58 Sub-markets suggested, 18, 97 Suburban housing, means of promot- ing, 5, 56 land cost, 5, 65 Suburbs, need of co-operation with, 1, 14 Summary of 1913 report, 18, v Taxation of land, 5, 67 Taxation of land values as a method of slum elimination, 5, 52 of unearned increment as a method of slum elimination, 5, 52 Taxation, rates and valuation, 18, xxviii Tenants, careless habits of, 5, 17 Tenement building, method of dis- couraging, 5, 57 Tenement House- act of New Jersey, 5, 25; 5, 27 better for suggested changes than local, codes, 5, 37 court aid in enforcement, 5, 42 recommended changes, 5, 28 Tenement House Board appropria- tion insuflScient, 5, 44 Tenement House Supervision, State Board, 5, 27 pOTvers of, 5, 41 Tenement houses defined, 5, 29 elimination considered, 5, 55 penalty clause not stringent enough, S, 41 Tenement inspection hampered by insufficient appropriation, 5, 44 Tenements, brick, number and cost, 5, 23 by consent of neighbors, 5, 59 elimination from private resi- dence sections, 5, 59 frame, number and cost, 5, 22 rent costs, 18, xxi Theatre attendance, 18, 125 162 CITY PLAN COMMISSION Third Avenue, suggested extension, 18, 2S', map, 18, 29 Third Ward, Map Three-decker tenement houses of wood, 5, 61 Time Zone, Map Traffic, Map Traffic conditions at Broad and Mar- ket Streets, and at Broad and Bridge Streets, report by G. B. Ford and E. P. Goodrich, 7, not printed. (Subdivisions given under "Vehicular condi- tions"), congestion noticed, 6, 6 counts on all trolley lines, sum- mary tabulated, 18, 109 flow of daily, from the four cor- ners, map, 18, 103 movement at Broad and Market Streets, map, 18, 101 observations and statistics made from April, 1912, 2, 9 Pedestrian, Graphical, Map report made Nov. 6, 1912, 18, 134 segregation to be studied, 6, 8 Trolley, Graphical, Map Vehicular, Graphical, Map Treasurer of the Commission, duties of, 1, 7 Trolley changes, attitude of the City Plan Commission, 18, 108 congestion, study of conditions, 18, 104 delays, public loss by, 18, 102 extensions proposed by Public Service, map, 18, 114 lines, location of main, map, 18, XXX lines, 3 maps operation at Broad and Bridge Streets, see Report of Harland Bartholomew operation at Broad and Market Streets, see Report of F. Van Z. Lane Passenger Counts, 8 Charts poles arrangement and location should be considered, 18, 143 re-routing plan, 18, 104 staticstics of use of, 18, 100 system, re-routing, Map traffic, tabulated summary of all lines, diagrams, 18, 109 transportation problem, 18, 100 transportation report, June 19, 1913, 18, 139 transportation, report of City Plan experts, 18, 106 transportation of Newark, re- ports by E. P. Goodrich and Harland Bartholomew, 12, not printed; principal divi- sions are listed below: Recommendations regarding franchises Map of Newark and environs Introduction Chapter 1. Analysis of present conditions Location of Newark Growth of the Metropolitan area Population of Metropolitan Newark Time Zone Map Pare Zone Map Statistical chart of population Assessed valuation table Building permits Postal receipts Causes of congestion Population per ward Daily traffic, tables Flow of daily traffic, map Congested district, map Chapter 2 * Traffic and service Re-routing considerations Line studies, with charts Stops Headway Track and car construction Loading Rush hour travel Transfer passengers Car mile distribution Local and suburban traffic Express service Subways Line Studies, arranged alpha- betically Bergen line Bloomfleld line Broad Street line Central line Clifton line Clinton Avenue line INDEX 163 Trolley transportation, Line studies Elizabeth line Hackensack line Kearny line Kinney line Main line Mt. Prospect line Mulberry line Orange line Paterson line Plank Road line Roseville line South Orange line Springfield line Turnpike line Chapter 3. Plans for immediate improvement Re-routing Public Service Terminal Franchise Grants Chapter 4. Plans for ultimate relief of congestion Tuberculosis and dark rooms, halls, etc., 5, 8 Two-family houses, advantages of, 5, 62 Two-family houses, Location, Map Typhoid fever and congestion of population, 5, 48 Typhoid Fever, Location, Map United States authorities, need of advice from and co-operation with, 1, 11 bay and river channel work, 18, 87 Geological Survey, 6 Maps United States, Map and Canada, Map Utilities Board Inspector on Public Service terminal plan, 18, 110 Vallsburg section, suggested street changes, 18, 32; Map, 18, 33 development discussed, 18, 37 Vehicular conditions at Broad and Market Streets, and Broad and Bridge Streets, report by G. B. Ford and B. P. Goodrich, 7, not printed; principal subdivisions are here given Broad and Market Street inter- section Broad and Bridge Street inter- section Suggestion for the relief of traffic congestion, immediate and future at Broad and Bridge Streets, by Harland Bartholomew Analysis of the Market Street trolley operation, by F. Van Z. Lane Vent shaft construction law should be changed, 5, 32 Vice-President of the Commission, duties of, 1, 7 Wages of Newark's workers, 18, xxv "Warren Street Traffic, Chart Washington Avenue Traffic, Chart Washington Street, proposed change at Market Street, 2, 22; 18, 10; map, 18, 11 Traffic, 4 Charts Widening, Map Washington, D. C, street construc- tion, 18, 63 Water-closets in yards, 5, 12 forbidden in Boston and Cam- bridge, 5, 12 should be provided each family, 5, 36 should be properly ventilated, 5, 40 Waterfront Development, Map development should be consid- ered, 18, 142 report to be made, 6, 8 Water cost to consumers, 18, xxv Water hydrants in yards, 5, 14 Water supply, general connection with municipal, 5, 14 in tenements, for each apart- ment, 5, 37 source of, map, 18, xx Watering troughs should be consid- ered, 18, 143 Waverly Avenue, see Prince Street William Street, change of grade at High Street proposed, 2, 22 Traffic, Chart Windows of toilet compartments, size should be prescribed, 5, 34 Wooden three-deckers in Newark, 5, 61 Woodland Grove, 2 Maps Yard limits prescribed, 5, 30 Zone system described, 5, 59 and factories, 5, 64 In German cities, 5, 60 in its application to Newark, 5, 62 of city planning, 18, 64 3! !vj