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 LIBRARY 
 
 ANNEX 
 
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CORNELL 
 
 UNIVERSITY 
 
 LIBRARY 
 
 GIFT OF 
 
 Regional Plan 
 Association 
 
 FINE ARTS 
 
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 Cornell University Library 
 NAC 6827 .D48B47 1921 
 
 Preliminary Plan of SSSTSSf,. ,{,- 
 
 3 1924 024 414 900 «« 
 
 PRELIMINARY 
 PLAN of DETROIT 
 
 \/ EDWARD H. BENNETT t , « n H ' 
 
 ARCHITECT 
 
 Together with sketch plans for 
 
 a new bridge to Belle Isle 
 
 by Cass Gilbert, Architect 
 
 Barclay, Parsons & 
 
 Klapp, Engineers 
 
 DETROIT 
 CITY PLAj^ AND IMPROVEMENT COMMISSION 
 
 19 15 
 
 Re-Printed April 1921 by City Plan Commission 
 
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Preliminary Plan of Detroit 
 
 By Edward H. Bennett, Architect 
 
 THE object and end of a city plan 
 is to develop or to create unity, 
 coherence and convenience; to 
 bring about organic entity in the city; 
 to relate each part to all other parts ; to 
 make every locality fit for purposes 
 of living, working or providing rec- 
 reation. At the outset we are con- 
 fronted by the difference between the 
 work of the engineer or the architect 
 and that of the city-planner. The en- 
 gineer and the architect get a specific 
 piece of work that is to be done within 
 a given time. The city planner's work 
 depends for its execution upon con- 
 vincing the people that it is the best 
 thing for them to do. All plans depend 
 for execution not upon authority of 
 the author, but upon their reasonable- 
 ness. If they seem to be reasonable, 
 they are almost certain to be exe- 
 cuted. One cannot think of an in- 
 stance of a great plan that did not 
 sooner or later get executed. But if 
 the city planner expects to see the 
 realization of his dreams, or if realiza- 
 tion is counted on as a part of his 
 present compensation, then he is of all 
 men most miserable, because he rarely 
 ever sees the end of his beginnings. 
 
 Paris is of all cities in the world 
 the best organized. What may be 
 called the back-bone of Paris is the 
 great axis which begins at the Louvre 
 and extends through the Place de la 
 Concorde and the Gardens of Tuil- 
 leries to the Arc de Triomphe. The 
 round-point formed at the Arc de Tri- 
 omphe becomes the center of depar- 
 ture for avenues leading in all direc- 
 tions. 
 
 Paris does not feel that she is yet 
 complete, although she is the most 
 completely articulated city in the 
 world. Paris is now undertaking to 
 spend one hundred fifty million dol- 
 lars in making those necessary exten- 
 sions of streets and avenues which, 
 when completed, will insure a greater 
 
 circulation auong her various cen- 
 ters, and especially will increase the 
 convenience in getting from one part 
 of the city to another. 
 
 Now that brings us to the subject 
 fundamental in all city-planning. The 
 popular idea is to buy ornaments, like 
 statues and fountains, and set them 
 up in the city. That is the average 
 person's conception of city-planning. 
 A city plan should aim at the con- 
 venience of the people in the city. 
 Where good results are obtained, they 
 come not from a deliberate search for 
 beauty, but because there is beauty in 
 good order and convenience. 
 
 The plans of Paris, as developed by 
 Napoleon III, were drawn by the 
 architects employed by Louis XIV. 
 two centuries previous. The Arc de 
 Triomphe, or rather the place where 
 the arch now stands, was then out in 
 the fields. The whole plan of the city 
 of Paris beyond the then existing 
 walls had to be developed. And it 
 was the plan of greater Paris that fell 
 into the hands of Peter Charles L'En- 
 fant when he designed the city of 
 Washington. The Paris plans were 
 made use of in Washington long be- 
 fore they were used in Paris. 
 
 London, on the other hand, never 
 fully realized the great plan that was 
 made for it by Sir Christopher Wrenn 
 after the great fire of 1666; and Lon- 
 don has paid and will pay the penalty, 
 and with a great price. In order to 
 overcome congestion in London a 
 new thoroughfare is planned to ex- 
 tend from the Marble Arch to the 
 City. It will cost no less than one 
 hundred twenty-five million dollars 
 for the land-damages necessary to 
 create that thoroughfare. The King's 
 Way, a similar but much shorter 
 thoroughfare, was completed a few 
 years ago. It appeared to be an engi- 
 neer's problem and engineers took a 
 
ruler, placed it on the map and drew a 
 line on either side of it. That was the 
 method of creating the King's Way. 
 No attention was paid to the historic 
 value of the buildings within the area 
 of that new thoroughfare. But a line 
 for the proposed new connection has 
 been worked out by Mr. Waterhouse, 
 an architect who is endeavoring to 
 preserve all the historic buildings along 
 the highway, as is done in the improve- 
 ment of cities in Germany. Work was 
 going on in about two hundred German 
 cities before war came; and in that 
 country they have departed from the 
 French idea of straight avenues and 
 have taken a roundabout way rather 
 than sacrifice fine old buildings. Ger- 
 many has been forced to city-planning 
 because of her rapid commercial de- 
 velopment. Germany has been grow- 
 ing so rapidly and along such extensive 
 lines that the cities have been com- 
 pelled to break through narrow streets 
 that have retarded traffic. As usual 
 they have gone to work systematically 
 and have developed a very high type 
 of city-planning. 
 
 In 1791, L'Enfant prepared a plan 
 of the City of Washington. The plan 
 developed very slowly. It was muti- 
 lated in many ways; public squares 
 were given up to private occupation, 
 and in many cases the streets were 
 blocked; but in spite of all that, the 
 plan persisted as the best city plan 
 known, and so it is to this day. In 
 1901, two architects, a landscape ar- 
 chitect, and a sculptor were called in 
 to suggest ways to carry to a legiti- 
 mate conclusion the additions that 
 had been made to park areas during 
 the past century. As a result we are 
 to have in the capital of the United 
 States a very highly organized city, 
 one part of which is related to every 
 other part. For example, the new 
 Union Station is related to the Capital 
 by location, but is subordinated to it 
 architecturally, although both are 
 monumental buildings about equal in 
 size. The Capitol grounds have been 
 enlarged extensively to form a con- 
 nection with the Station Plaza, thus 
 relating the Capitol group to the 
 Union Station group. 
 
 The main axis of Washington is 
 the great Mall, which begins at the 
 
 Capitol and extends through the 
 Washington Monument grounds to 
 the new Lincoln Memorial; the cross- 
 axis begins with the White House 
 and extends through the Washington 
 Monument garden to the Potomac. 
 Congress has provided for a driveway 
 connecting Potomac and Rock Creek 
 parks, and also for the improvement 
 of the valley of the Anicostia river, 
 thus surrounding the city w^th parks. 
 The valley of the Anicostia river is 
 being developed into a great water 
 park. It will be a park the reverse of 
 Belle Isle, a place of islands set in 
 lakes, instead of lakes set in an island. 
 
 Another city that is striving for 
 good order and proper development 
 is Chicago. An interesting plan was 
 prepared by Mr. D. H. Burnham and 
 Mr. Bennett for Chicago — perhaps 
 the most elaborate plan that was ever 
 prepared for a city. Chicago has de- 
 termined that it shall be the finest 
 commercial city in the world; and is 
 going ahead with a great deal of 
 vigor to realize the great dreams of 
 the architects. It is proposed to de- 
 velop a main axis by cutting Con- 
 gress street through to the west side 
 and to create a civic center on Hal- 
 sted street. The lake-front is devel- 
 oped by a series of lagoons along the 
 entire water-front of 26 miles, sub- 
 stantially the same treatment being 
 given to both South and North Sides. 
 It was expected that the great Field 
 Museum would be constructed in 
 Grant Park, but Montgomery Ward 
 succeeded through the courts in keep- 
 ing buildings from that park; so that 
 the Museum will be built on Twelfth 
 street, with a lake frontage. The Illi- 
 nois Central and Michigan Central 
 Station will face on Twelfth street, 
 and eventually other railroads will 
 draw back to that thoroughfare. Grant 
 Park will be framed by two great rec- 
 reation piers extending out into the 
 lake. A drive beginning at the lake 
 north of the city and making an outer 
 circuit and returning to the point of 
 beginning means a boulevard of about 
 one hundred miles, a good day's run 
 for automobile travel. 
 
 We come now to our own city of 
 Detroit. The history of the plan of 
 Detroit is widely misunderstood It 
 is commonly told that L'Enfant after 
 
having finished his work at Washing- 
 ton, laid out Detroit and then stopped 
 a few months in Buffalo to give the 
 people there some ideas in regard to 
 planning their town. As a matter of 
 fact, Detroit was burned in 1805, and 
 while it was still a small heap of 
 ruins, Judge Augustus B. Woodward 
 arrived from Washington, where he 
 was the first, if not the leading, law- 
 yer; and where he purchased a goodly 
 portion of the capital city by giving 
 his note for the purchase price. He 
 was appointed by Thomas Jefferson 
 a judge in Michigan Territory. Hav- 
 ing closed his Washington deals by 
 simply re-deeding the property, he 
 came here eager to put his ideas into 
 practice. He brought with him the 
 maps of Washington; and laid out 
 Detroit, so far as he could, according 
 to the ideas L'Enfant used in Wash- 
 ington. As a result, we have Wood- 
 ward avenue a great main axis, and 
 Jefferson a good cross-axis. He gave 
 us the Campus Martius, Grand Cir- 
 cus Park, and on his plan the lower 
 part of the city was dotted with little 
 parks, few of which have been kept. 
 It is most unfortunate that we have 
 not developed the city entirely ac- 
 cording to the Woodward plan. It is 
 more than unfortunate that as the 
 city extended itself, the same ideas 
 and the same street lines could not be 
 maintained; and that small parks have 
 not been provided in the section north 
 of Adams avenue. If this had been 
 done, Detroit would have been a very 
 much more handsome and convenient 
 city. 
 
 Perhaps no other city excepting 
 Washington has as convenient diag- 
 onals as we have in Michigan, Gratiot, 
 Fort and Grand River. Mr. Bennett 
 has planned to provide additional 
 diagonals, so as to accommodate the 
 southeasterly and southwesterly traf- 
 fic in the city. One diagonal that he 
 proposes extends from the Michigan 
 Central station to the new Center of 
 Arts and Letters, the land for which 
 center has already been secured. An- 
 other diagonal extends from the cen- 
 ter of Arts and Letters to Belle Isle 
 bridge. It is unnecessary here to 
 argue the possibility of creating these 
 diagonals. In time they must come, 
 no matter what the expense, if De- 
 troit continues to grow commercially. 
 
 The order in which these improve- 
 ments should be carried out is based 
 on traffic studies, on the congestion 
 as it exists today and on the records of 
 the growth of population in various 
 sections of the city, which studies 
 show where the necessity is greatest 
 for additional arrangements for the 
 traffic. Many thoroughfares can be 
 opened by a little cutting and a lit- 
 tle widening at various points. One 
 of the greatest things, however, to in- 
 crease the service on a street and to 
 provide for the amount of traffic that 
 it will bear is continuously good pav- 
 ing and continuous good fighting. 
 These two advantages will quickly 
 divert traffic to such streets. Drivers 
 of vehicles seek the best pavements 
 and also the attractive streets. There 
 is something in human nature that 
 leads a driver to select the attractive 
 street. 
 
 The next boulevard to be created 
 should follow Connor's Creek, prob- 
 ably to the Seven-mile Road, extend 
 across Woodward avenue and then 
 work south to and down the valley of 
 the River Rouge. A map of the prop- 
 erty required is now being prepared. 
 Mr. Bennett had placed a forest park 
 in the region where the zoological 
 park, which has recently been ac- 
 quired, is located. Over 200 acres of 
 land have been purchased for this 
 zoological park, and much credit 
 should be given to Mr. Follett, who 
 has worked hard and successfully on 
 the project; also to Mr. Denby, the 
 president of the Park Association, 
 and to the Detroit citizens who have 
 contributed liberally of their money 
 and of their time to further this excel- 
 lent undertaking. Through their ef- 
 forts we shall achieve a real zoologi- 
 cal park for Detroit. The tendency 
 has been to crowd all park features on 
 Belle Isle. We have wanted to have 
 everything spread out before us there 
 and also to be carried to each particu- 
 lar spot. The study now is not to put 
 things on Belle Isle, but to get the 
 bric-a-brac off Belle Isle; and to keep 
 the island as a quiet and restful refuge 
 from the crowded, noisy city. 
 
 One important object of Mr. Ben- 
 nett's studies was to discover a means 
 of diverting traffic from Woodward 
 avenue to side streets in order to re- 
 
lieve the congestion from which that 
 avenue now suffers. His idea is that 
 traffic, instead of passing through the 
 center of the city, shall be diverted to 
 thoroughfares on either side of Wood- 
 ward avenue and so reach its destina- 
 tion in the eastern or the western 
 sections. Certainly that is a problem 
 pressing more and more heavily. 
 
 The development of the river front 
 at the foot of Woodward avenue is 
 indicated on Mr. Bennett's plans. The 
 river front is one of the most serious 
 problems that the City Plan and Im- 
 provement Commission is working 
 upon. It is serious because of the at- 
 titude of the people who occupy the 
 river front now. They fear that if 
 the water front should be developed 
 as proposed, it would be the refuge of 
 idle people and loafers. The Michi- 
 gan Central is about to rebuild its 
 docks, and the Detroit & Cleveland 
 is about to build a big warehouse at 
 the foot of Third street. There is no 
 reason why a waterfront board-walk 
 treatment should not begin at Ran- 
 dolph street and extend down to and 
 along the Michigan Central docks 
 without interfering with the traffic. 
 If the desire on the part of the citizens 
 is sufficiently strong, they can easily 
 bring about the improvement. This 
 is the time to take up the matter, be- 
 cause just as soon as business starts 
 up again, the Michigan Central will 
 rebuild its docks and the Detroit & 
 Cleveland will build their new office 
 building. An examination of the river 
 front from Woodward to say Fourth 
 street will show that the project is 
 entirely feasible. 
 
 The people of Detroit are more in- 
 terested in the improvement of the 
 river and lake front than in anything 
 else. It is entirely feasible to start at 
 Waterworks Park to develop a boule- 
 vard to the east by throwing up the 
 land in the shallow water that ex- 
 tends for one thousand feet from the 
 shore, leaving an inner lagoon for 
 pleasure boats, accessible from the 
 main channel of the river by frequent 
 bridged openings. It is not feasible to 
 do anything else, because it is mani- 
 fest that the growth of the city will 
 cause the submerged land to be util- 
 ized to the channel bank, so that any 
 boulevard built on the shore line to- 
 
 day would be an interior boule/urd m 
 ten years. The thing to do is to take 
 advantage of the harbor line and to 
 make a boulevard two. hundred feet 
 wide, in the shallow water. 
 
 It has been suggested that the new 
 intercepting sewer, which must be built 
 before long, should be placed along the 
 boulevard line and that on the top of 
 the sewer we should have the boulevard 
 development. That is entirely possi- 
 ble, and perhaps when the engineers 
 have studied the problem they will see 
 that it would be the most economical 
 way to handle the combined require- 
 ments of boulevard and intercepting 
 sewer. 
 
 The City Plan Commission recently 
 visited Mr. Gray's subdivision be- 
 yond the new Edison plant, near Con- 
 nors Creek. This subdivision is be- 
 ing made with water for streets — a 
 sort of little Venice. Mr. Gray said 
 that if a boulevard were started at 
 Owen Park or at Gladwin Park (the 
 waterworks), he would be ready to 
 devote the necessary space to the 
 boulevard. Of course he would, be- 
 cause he is an enlightened man and it 
 would be for his advantage. It is for 
 the advantage of all water-front own- 
 ers to further an improvement which 
 opens their lands by bringing people 
 to them. Enlightened self-interest ac- 
 complishes results. 
 
 While developing the physical side 
 of the city one needs necessarily to 
 pay attention to the soul of the city. 
 A study of the school areas has been 
 made with a view of locating play- 
 grounds. Not only playgrounds, but 
 also social centers, where men and 
 women and children can gather. In 
 Chicago the people of a neighborhood 
 get together for lectures, dances and 
 exhibitions, the only limitation is that 
 religion and politics shall not be talked. 
 It is wonderful what changes such 
 playgrounds make in a community. 
 We need well developed social centers 
 for Detroit. They make for good 
 citizenship. If the factories for which 
 we strive with all the force of the 
 Board ol Commerce are to have strong 
 men and women working in them we 
 must preserve the health of the child- 
 ren today. We do not realize perhaps 
 how very necessary it is to have some 
 
place where the children can have 
 their natural play. 
 
 The largest conception that Mr. 
 Bennett evolved during his study of 
 Detroit was the idea of making the 
 entire Detroit River, from the head of 
 Lake St. Clair to Lake Erie, one great 
 park. It was his idea that all of the 
 islands in the river should be devel- 
 oped in a park-like fashion. That is 
 not beyond the possibilities. Our 
 friends who are developing the town 
 Ojibway are trying to make a per- 
 fectly sanitary and well-planned town 
 for men to live and work in. The engi- 
 neers have said that when the plans 
 were finished they would be pleased 
 to co-operate with us in any way they 
 could. Construction work will begin 
 in the Spring and you will see rising 
 opposite the Great Lakes Engineer- 
 ing Works, a new town that shall in- 
 clude all those features which enlight- 
 ened self-interest can suggest for an 
 industrial community. 
 
 With the development of Isle Aux 
 Peches the Ferry Company will add 
 another to its attractive island parks. 
 This development is of very great ad- 
 vantage to the City of Detroit. 
 
 The river islands which have been 
 developed as parks by the vessel lines 
 are one of the greatest attractions of 
 Detroit. They are just so many parks 
 the expense of which is being met by 
 the people who use them; so that the 
 more we can encourage the boat com- 
 panies to develop the islands in the 
 river the more we as taxpayers shall 
 save. 
 
 The most elaborate development of 
 a water front has been made at Buda- 
 pest, where for two and a half miles 
 along either side of the Danube are 
 stone quays, with walks and gardens 
 on the upper level and below the com- 
 mercial boats tying up and discharg- 
 ing their cargoes. The river current 
 is about twice that of the Detroit 
 River, and the river itself is about 
 two-thirds as wide. This develop- 
 ment of stone quays was done as a 
 part of the deliberate purpose of mak- 
 ing Budapest a city absolutely inde- 
 pendent of Vienna, industrially, intel- 
 lectually, socially and commercially. 
 There are no slums in Budapest. One 
 
 who visits both cities finds it very dif- 
 ficult to choose between them because 
 it is very difficult to say in which city 
 you can have the more enjoyment. 
 
 Detroit is an enjoyable city to fav- 
 ored classes. The man with the auto- 
 mobile, the member of clubs, is well 
 provided for. The great public needs 
 more attention. 
 
 Detroit has the Michigan Central 
 Station problem. Washington treated 
 its station problem with a great plaza, 
 semi-circular in form. The Columbus 
 statue stands in the center, with gush- 
 ing fountains on either side. Washing- 
 ton people are very proud of their 
 plaza and they realize that it was very 
 wise to create it, although it cost 
 them considerable money. 
 
 Mr. Bennett's suggestion is for the 
 development of a plaza in front of the 
 Michigan Central Depot and an ave- 
 nue 200 feet wide leading from Michi- 
 gan avenue down to the station. The 
 Council has ordered the condemna- 
 tion of lands so as to make a park in 
 front of the station. The plan pro- 
 posed by the City Plan and Improve- 
 ment Commission would cost about 
 $160,000 for land, of which amount 
 $60,000 would be contributed by the 
 Michigan Central. The plan of the 
 city council involves the expenditure 
 of upwards of $600,000, all of which 
 must be raised by taxation. The rail- 
 road people do not want a park in 
 front of their station. The business 
 property beyond the Michigan Cen- 
 tral certainly should not want a park 
 at that point because it will depreciate 
 the value of property for a consider- 
 able distance beyond it. Detroit 
 should not throw away a half million 
 dollars for something that is not neces- 
 sary. We need that money for play- 
 grounds in other parts of the city. 
 
 Fourteen years ago some public- 
 spirited citizens had a dinner in De- 
 troit, and there made a plan for the 
 improvement of Belle Isle, which plan 
 involved the expenditure of a million 
 dollars. The idea was that citizens 
 would contribute $500,000 and the 
 city would contribute the other $500,- 
 000. But Mayor Maybury main- 
 tained that we had public-spirited 
 citizens in this town who would 
 
raise a million. The city, he said, 
 should be called on for nothing. 
 So the great and beautiful project 
 for the Peristyle came to nothing. 
 One day all Detroit read in the papers 
 that James Scott, a familiar figure on 
 our streets, had left his entire fortune 
 amounting to upwards of $400,000 for a 
 fountain on Belle Isle, with the con- 
 dition that his statue should be made 
 a part of the design. Detroit accepted 
 the bequest and it became necessary 
 then to secure plans for the fountain. 
 Cass Gilbert won the competition for 
 
 the selection of an architect to design 
 the fountain. The program of com- 
 petition called for the construction of 
 a basin by filling in the middle ground 
 at the foot of the island. The foun- 
 tain, if constructed as planned, will be 
 one of the wonders of the world. It 
 will be, for years to come, Detroit's 
 great feature of attraction. The pos- 
 sibilities for pleasure to citizen and 
 visitor are very great. Moreover, the 
 work will be permanent and thor- 
 ough — a work of art in every sense. 
 
 June 1915 DETROIT CITY PLAN AND IMPROVEMENT COMMISSION 
 
Detroit City Plan and Improve- 
 ment Commission 
 
 CHARLES MOORE, PRESIDENT 
 *MAX BROOCK, VICE PRESIDENT 
 T. GLENN PHILLIPS, SECRETARY 
 CHARLES D. AARON, M. D. 
 FRANK E. PILCHER, M. D. 
 WALTER E. CAMPBELL 
 JOHN BORNMAN 
 FREDERICK T. BARCROFT 
 HERMAN DARMSTAETTER 
 
 THE COMMISSIONER OF PARKS AND BOULEVARDS 
 THE COMMISSIONER OF PUBLIC WORKS 
 THE CITY ENGINEER 
 
 *D1ED, APRIL IS, 1915 
 

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 Plate V. 
 
 Suggestions for the Relief of Congestion on Woodward Avenue. 
 

 
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 Plate VII. 
 
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 Plate IX. 
 
 Suggestion for a Civic Center at the Grand Cirrus. 
 

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 Plate \. 
 
 Suggested Treatment for the Intersection of Woodward Avenue and Grand Boulevard 
 
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Plate XII. 
 
 Study for Approach to the Michigan Central Station. 
 
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 Plate XIII. 
 
 Study for Approach to the Michigan Central Station. 
 

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Plan- Will. 
 
 Kvislinj; and Proposed Parks. 
 
Plate MX. 
 
 Suburban llijzliuays and Proposed Connections. 
 
Plate XX. Existing and Proposed Railways and a Freight (Hearing ^ aid. 
 

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