CORNELL UNIVERSITY LIBRARY GIFT OF Urban America, Inc. FINE ARTS M Cornell University Library The original of this book is in the Cornell University Library. There are no known copyright restrictions in the United States on the use of the text. http://www.archive.org/details/cu31924024416681 [REPORT OF Suggested Plan of Procedure for City Plan Commission City of Jersey City, New Jersey By E. P. GOODRICH GEO.'B. FORD AS OF NOVEMBER 30th, 1912 ISSUED MAY 1st, 1913 nag REPORT OF SUGGESTED PLAN OF PROCEDURE FOR CITY PLAN COMMISSION, CITY OF JERSEY CITY, N. J. BY E. P. GOODRICH— GEO. B. FORD, AS OF NOVEMBER 30, 1912. Issued May 1, 1913. I. INTRODUCTION. Appointment of Expert Advisors (1) : On September 23, 1912, the City Plan Commission of the City of Jersey City retained us to study the problems of city planning with reference to Jersey City and to report to them on the best methods of procedure with regard to the develop- ment of the city along practical city planning lines. The text of the agreement in our letter of September 19 is as follows : We will consider the following items: * * * "(J) Street traffic — vehicular and pedestrian; (2) transit lines and possibilities of re-scheduling and re- routing; (3) grading and surf acing of streets ; (4) width of roadways and sidewalks; (5) widening of present streets and cutting through of new streets; (6) use of the water front; (7) factory development of certain districts; (8) food; (9) water supply; (10) sewage and garbage disposal; (11) housing in all its aspects; (12) treatment of conges- tion and unsanitary conditions; (13) methods of laying out new districts so as to give the best future housing develop- ment of the city; (14) resultant effects on real estate values and tax rates; (15) laws pertaining to housing; (16) rec- reation in connection with parks, playgrounds, streets, schools, social centers, especially with regard to the various classes and nationalities in the community; (17) develop- ment of parks and park systems, connecting boulevards; (18) planting on the various streets of the city; (19) group- ing of public buildings; (20) embellishing bridges, quais, monuments, fountains, statuary; (21) placing of shelters and street signs, street lighting, trolley and telegraph poles, public comfort stations, etc.; (22) laws relating to city SUGGESTED PLAN OF PROCEDURE FOR planning; (23) restriction, smoke abatement, bill-board regu- lation; (24) method of paying for public improvements, including excess condemnation, unearned increment, assess- ing of abutters, municipal ownership, etc.; (25) conducting of surveys in line with these methods of securing the co-oper- ation of local, public and private organizations; (26) how to follow up this work and how to get results;" * * * During the preparation of our report we have found it advantageous to re-group these several items to some extent. The re-arrangement herein followed is given in the "table of contents," in which each heading has been numbered and lettered, with the page indicated on which the subject matter is to be found. For convenience of reference between our letter of appointment and this report, the following schedule may be found convenient, since it gives the items mentioned in the letter in the order there followed with the corresponding number and letter of the heading under which that topic is discussed in this report. Report Heading Items per letter of agreement. No. in Table of Contents Street traffic — vehicular, and pedestrian (1) II A Transit lines and possibilities of re-scheduling and re-routing (2) Ill A The grading and surfacing of streets (3) II B The width of roadways and sidewalks (4) II A Widening of present streets and cutting through of ' new streets (5) II A The use of the water front (6) IV B The factory development of certain districts (7) V Food (8) VI Water supply (9) VII A Sewage and garbage disposal (10) VII B CITY PLAN COMMISSION, JERSEY CITY, N. J. 5 Report Heading No. in Table . of Contents Housing m all its aspects (11) VIII The treatment of congestion and unsanitary condi- tions (12) VIII A The methods of laying out new districts so as to give the best future housing development of the citv (13) VIIIB The resultant effects on real estate values and tax rates (14) VIII B Laws pertaining to housing (15) XII B Recreation in connection with parks, playgrounds, streets, schools, social centers, especially with regard to the various classes and nationalities in the community (16) IX A The development of parks and park systems, connect- ing boulevards (17) X Planting on the various streets of the city (18) X The grouping of public buildings (19) XI A EmbeUishing bridges, quais, monuments, fountains, statuary (20) XI B The placing of shelters and street signs, street lighting, trolley and telegraph poles, public comfort sta- tions, etc. (21) XI C Laws relating to city planning (22) XII Restriction, smoke abatement, bill-board regulation (23) XII C Method of paying for public improvements, including excess condemnation, unearned increment, assess- ment of abutters, municipal ownership, etc. (24) . XIII The conducting of surveys in line with these methods of securing the co-operation of local, public and private organizations (25) XIV B How to follow up this work and how to get results (26) XIV C Method of Work (2) : Realizing that no two cities are alike and that the problems of any one or any part of any one differ from those in other places, we knew that the first thing that we must do was to become perfectly familiar with every square foot of the city. We realized from our experience, too, that the city could not be seen from an automobile or from a wagon. The only way of covering it was to walk. We plotted the routes which we followed on 6 SUGGESTED PLAN OF PROCEDURE FOR these trips, a total of sixty-four miles, and the map furnished will show roughly how we covered the city. As we thus went about we kept in mind constantly the above list of subjects taken from our letter of September 19, and whenever anything that we saw suggested possibilities of improvement along any of these lines we dictated a memorandum to Mr. McElfresh, who accom- panied us on all of these trips. These items are collected in an addenda memoranda. They are not complete because wherever we found the same trouble constantly recurring we omitted noting a repetition of it after the first few instances. Further, we noted many items as deserving of commendation, as we believe fully that everything that is worth while should be preserved and that where there is a happy solution of some important problem some- where in the city, the value of this should be brought to the atten- tion of the community at large. When we felt that we had become thoroughly acquainted with Jersey City, we proceeded to separate our memoranda under the various main headings of this report. We then met and read over the memoranda with regard to each subject and made up our general recommendations from them. Our Point of View (8) : , We believe that most of the city planning so far undertaken in America has miscarried and failed of accomplishment because it was not done logically or scientifically. We are absolutely convinced that the first consideration is the economic one; the second, the social one, and the third, the aesthetic — not the reverse order as has usually been followed. We believe that the first attention in laying out a city planning scheme should be given to that which will make the city as a city a better place to work in and a better place to live in. A city should be made efficient in the same way the manufacturer studies for efficiency in his private plant. Streets, transit lines, everything, should be studied with a view to convenience, comfort, speed and economy. The city should study ways and methods of so designing its blocks, lots, streets and water front as to save time and money to the manu- facturer or business man and so as to increase the speed, comfort and safety with which the citizen can go from his house to his place of work or recreation. CITY PLAN COMMISSION, JERSEY CITY, N. J. 7 It is of the greatest importance that the city should consider all phases of the questions of housing and recreation, to do what it can within bounds of reasonable economy to make the city a better place to live in and to play in. Furthermore, the city has everything to gain by making itself attractive. Not only does a good-looking city attract busi- ness from the outside, but it has a marked moral effect on the whole citizen body, not only in making them keep their private grounds looking better, but in creating through a pride of their city, a better citizenship and sense of responsibility for the care of the city. > We believe that cities have as much individuality, as much personality, as human beings, and that that individuality must be preserved at any cost. A city, like a person, should make the best use of that which it has. And so, we would make no recom- mendations which would tend, in any way, to stereotype Jersey City. On entering on this work we found that a large measure of material had already been collected and mapped or tabulated by the City Plan Commission. Much of this we found of great use and none of it is work wasted. Much of it, however, is capable of further development along particular lines. It is these more specific suggestions, together with a correla- tion and systematizing of the whole subject that we would present in this report. Recommendations (4) : We would recommend in general : a. "A residence map" of Jersey City should be made at a large scale, with one dot to every five or ten people. A distinction should be made between those living in tenements and those living in one or two family houses. b. "A place of work map" should be made of Jersey City at a large scale, with one dot for every five or ten workers. Factories, stores and office buildings should be dis- tinguished from one another. Such counts should be made as are necessary to fill out data already available. 8 SUGGESTED PLAN OF PROCEDURE FOR Any scientific planning with regard to streets, blocks, transit, transportation, water front improvement, housing or recreation is impossible without an exact knowledge of just how people are distributed both in the places where they live and the places where they work. Such maps will show at a glance the necessity, for example, of car lines in certain districts which are not, at present, so served. c. Maps of the surrounding country should be procured to show the relation of Jersey City to its surroundings. d. A map should be prepared showing levels through- out the city with at least five-foot contours. e. Copies of all material published by the city or by any semi-public organization should be collected and studied by the Commission, so as to profit by all past experience. f. Make a collection of all maps of different dates of Jersey City. g. Make a complete map showing by different colors the growth from period to period. II. STREETS. II. A. Widening — Extension — Encroachments. Community Growth (1) : Jersey City having grown from a pre-revolutionary town, at which period streets were provided of a width sufficient for the then-existing needs in most instances, modern life requires readjustments principally because of modern traffic conditions. Street railroad tracks have been standardized as to gauge, but street cars have been growing almost from year to year in width and length. The same rate of growth has been followed of late in the size of vehicles, both horse drawn and motor driven, so that to-day your streets are subject to loads as high as twenty tons carried on four wheels (sometimes on six), drawn by three horses, or driven by powerful gasoline engines. These vehicles occupy sometimes as much as nine feet of the width of the street, and since their speed cannot be high they are great traffic obstructors. Types of Street Users (2) : A proper study is necessary of present vehicle types before a determination can be reached as to proper widths of roadways. CITY PLAN COMMISSION, JERSEY CITY, N. J. 9 Various types of vehicles have been evolved for pleasure riding, ■with high speed, special elastic tires, and relatively narrow bodies compared with heavy freight vehicles. The drivers of such pleasure vehicles dislike the delays due to the slowness of heavy traffic and such traffic can profitably be segregated and provided with specially paved streets of the through thorough- fare type from which the heavy vehicles may be excluded. Because of the higher speed and narrower width of these vehicles, roadways to accommodate them need not be as wide as where traffic is slower and heavier. With the increase in population and the incidental vehicular congestion, sidewalk areas have become similarly congested and where in connection with proposed increased widths of roadways it is found that the sidewalks must be restricted, but still require widths proportionate to heavy pedestrian usage, the necessary extra width may often be obtained through the removal of illegal projections in the form of steps, bay windows, show win- dows, yards, areas, etc., which extend beyond the building line into the sidewalk area. In some instances in other cities legal difficulties have been involved where the street was an easement street, and where usage has developed, and certain ordinances or laws tacitly acknowledged the existence of stoop or step lines. Almost invariably unless ordinances were early passed restrict- ing such encroachments, the tendency has been to creep out further and further beyond the building line, so that structures have been erected which actually occupy and draw rent from the occupancy of street spaces. Ideal Steeet System (3) : The ideal street system embodies fundamentally the idea of the segregation of traffic, that is to say, the many thorough- fares leading from the center of the town out to the outlying centers, should be in groups of three, one for the street cars, or other rapid transit use, one devoted primarily to and paved espe- cially for heavy trucking, and the third correspondingly treated for automobile traffic. As this can rarely be obtained in ideal form the nearer the approximation that can be made to it through the granting of compromise, the better the ultimate result. 10 SUGGESTED PLAN OF PROCEDURE FOE Three types of street occupancy have been mentioned, viz. : street cars, heavy trucking and pleasure vehicles. The separation of these types and their accommodation on separate thorough- fares wherever it is tried has been found to benefit the community to a marked degree. In other municipalities where the roadway widths have been widened so as to make it possible for heavy vehicles to keep clear of railroad tracks, the average speed maintained by the street cars has been measurably im- proved, giving the people quicker transit and greater comfort during car rides due to the elimination of the sudden and rapid stops incident to the management of the cars where heavy truck- ing is apt to interfere. The ideal arrangement would be the laying out of main arteries in triple lines either in a single wide thoroughfare, or preferably in three parallel thoroughfares ; one primarily for the use of street cars, another of the boulevard type almost exclu- sively for the use of pleasure vehicles, and a third provided with a proper paving surface primarily for the accommodation of heavy traffic. These thoroughfares should be of the primary type, through thoroughfares connecting important centers within the municipality and running most nearly in a straight line to the main centers of neighboring communities. Traffic Observations (4) : In order to determine accurately the size of vehicles, the routes they now prefer, and the reasons therefor, the amount of traffic on existing streets, and the probable amounts which would be carried by improved streets, either widened, straightened or extended, numerous traffic observations should be made. These should include street cars, vehicles of all kinds, and pedestrians. Not alone the numbers in each instance should be noted, but the average speed at which each type moves should be ascertained, and its weight. Street Widths (5) : The widths of streets and their roadways and sidewalks should be adapted absolutely to the traffic which they are called upon to bear. The actual widths of the various features of any given street should be exactly determined in multiples of units CITY PLAN COMMISSION, JERSEY CITY, N. J. 11 of width of the several users according to the intensity of the various past and probable uses of the street. In manufacturing districts wide streets and narrow or no sidewalks are demanded. In shopping districts, wide sidewalks and comparatively wide roadways are needed. In residential districts of the better class, narrow sidewalks and broad planting strips and comparatively narrow roadways are most desirable. The same is true in the lower class residential streets, except that the whole street should be much narrower. In tenement districts, a greater number of not too wide streets with not too wide blocks between them is the best. Street Types (6) : Jersey City is already undoubtedly in the lead among many of her neighbors in the provision which she had made, either by accident or design, for special automobile streets, and in the relatively large number of streets upon which street cars run only in a single direction. These types should be increased in number ; special types of paving laid to accommodate the various types of traffic; extensions of certain streets made so as to pro- vide quicker transit and more direct means of connection. The economic value of these improvements can only be determined after ascertaining the amount and type of the present traffic together with an estimate of the saving which would be effected to the community at large by the improvement contemplated. The ideal street layout is one where any vehicle or pedestrian can go from one spot to another spot, or a truck can go from the railway yard or the warehouse to the factory or store with the minimum loss of time and energy, and where the route from any one point to any other point is obvious and direct. In the case of a new district, the difficulty in determining on such a plan is that of knowing just what the character of the future development of that region and the regions beyond is going to be, but scientific study of past and present tendencies can be made of great help toward such determination. Street Widening and Extension, Encroachments (7) : The chief difficulty with widening streets or cutting them through in the already built up portions of the city, is that such improvements are often prohibitive in cost. 12 SUGGESTED PLAN OF PEOCEDXTBE FOR Fortunately, the degree of this prohibitiveness can be worked out on a scientific basis. If, from traffic counts, it can be shown that the amount of money saved to the owners of trucks by making use of the improvement instead of the former waste of going in a devious path from point to point, will in a comparatively short time pay for the cost of the improvement, then the improvement is cer- tainly worth serious consideration. It is applying to the city those same principles which the manufacturer has applied to his own individual plant when he has asked the efficiency expert to show him wherein he can run his plant more efficiently for the same or less cost. Loss Through Street Congestion and Delay (8) : At many street junctions and along many streets in Jersey City we find a serious congestion of traffic. Trucks, automobiles, street cars, pedestrians are in the aggregate forced to lose thousands of hours a day on this account. This is sheer waste due to too narrow streets, too narrow a space between curbs, too narrow sidewalks, too roundabout ways of getting from one point to another, too steep grades, too much interference of street cars with trucking or vice versa and too many encroachments on the streets. In almost every case these undesirable features can be remedied by scientific city planning. There are many places in the city where a little widening or a little straightening, costing only a small amount, would double the efficiency of the street. In the case of many streets, the removing of encroachments and the widening of the roadway would, at very small expense, vastly increase their usableness. In the downtown districts especially, the approaches for trucks to the piers, freight yards and factories are anything but commodious. The traffic communications between the northern and south- ern ends of the city are particularly poor, there being practically but one through automobile road and one through trucking route in the whole width of the city. These are often greatly over- taxed. CITY PLAN COMMISSION, JEESEY CITY, N. J. 13 t The conditions at the intersection of Bergen Avenue and Montgomery Street should be made the subject of a special ex- amination. In view of these conditions, there follow a number of special recommendations : Recommendations (9) : a. Make traffic counts at all critcal points in the city. It is desirable to make separate counts for pedestrians, light vehicles, heavy vehicles, rubber tires, street cars, people in street cars. b. Tabulate and plot these results so that they are readily usable. c. Prepare maps of all congested sections of the town showing traffic flow on the streets and also showing width of roadway and width of sidewalks. Also note encroachments. d. Make studies in congested regions of possible street widenings or extension, of cutting through new streets and of removal of pole's and of encroachments with the idea of relieving this congestion. e. Make large scale maps showing in detail the cost of all land and improvements affected by proposed widenings and extensions. f . Study the flow of people from places of residence to places of work and play. g. Study the routes by which goods are handled be- tween the railroad freight yards and the water front, and the factories, warehouses or stores, and the routes between one transportation terminal and another. It is only by noting in detail what these tendencies are that any general suggestions can be made with regard to improving condi- tions affecting them. h. On all congested streets, study in detail the relative movement on sidewalks and roadways with a view to chang- ing the relative proportionate width of the two. Study the possibility of removing encroachments and the removing of poles in connection with the above. i. Study in detail the determination of block and lot units and the widths and locations of streets in as yet un- developed areas. This should be done with a view to avoid- ing in the yet undeveloped areas the costly mistakes of the past. 14 SUGGESTED FLAN OF PROCEDURE FOR j. Investigate ownership of street stub ends, particu- larly at the water front, with a view to extending certain important ones. k. On a large map of the Bluff and surrounding prop- erty study traffic- thoroughfares between upper and lower levels with approaches to same. Make traffic counts and consider width, grade and paving of roadways. 1. Make survey of all car line streets showing distance of rail to curb in each case together with sidewalks adjoining. m. Study in detail whole problem of north and south thoroughfares for transit, trucking and driving. n. Ascertain whether or no owners can be required to remove obstructions outside of building lines. o. Study traffic necessities of a street connection with the Central Railroad of New Jersey along the line of Wash- ington Street. p. Make map showing conditions of sidewalks and curbs, with widths of streets and roadways commencing with those most in need of improvement. The addenda contains, among other things, mention of many specific points needing special investigation. While all these recommendations must be completejy car- ried out in order to reach the best solution, there are certain ones which are more urgent than others. The following order of urgency may therefore be suggested : p, a, b, c, n, h, 1, d, e, f , g, k, m, o, j, i. II. STREETS. II. B. Surfacing — Grading — Draining. Pavements (1) : The pavements of Jersey City may be summed up by the statement that, in proportion to size, there is hardly a city in the country where they are worse. There is very little really good or suitable pavement in the city. A great deal of it is not only unscientifically specified and laid, but it is kept in wretched repair and it is a decided blot upon the good name of the city. CITY PLAN COMMISSION, JERSEY CITY, N. J. 15 It is a fact that there is hardly anything which scares a prospective manufacturer or business man away from a city like wretched paving, and it is unquestionably true that Jersey City has lost under all this, probably millions of dollars worth of good* taxable valuations through her penny-wise, pound-foolish policy in regard to paving. Conditions Determining Type (2) : The ideal street surfacing is that in which the proportion of cost of laying to cost of maintenance gives the most satis- factory result for the kind of traffic which it has to bear. On a steep grade, non-slipping qualities are most in demand. In a tenement district, cleanliness should be the first con- sideration. In manufacturing and warehouse districts, durability and tractive qualities are most needed. On the principal business streets, durability, quietness and dust-proofness are the main considerations. About hospitals, schools, courthouses, etc., quietness should be secured at all costs. In a single-house, residential district, cheapness, good looks and dustlessness are the important features. Automobiles demand smoothness and non-skidding qualities. Heavy trucking places good tractive qualities and non- slipperiness first. Light trucking demands smoothness and non-slipperiness. Paving Program (3) : The character of pavement to be used on any given street should be determined only after a careful investigation of the present and probable use of the street. The lack of plan on the part of the city with regard to the choice of kind of pavement and location of new sections as laid within a given year, means that there is an enormous waste and lack of efficiency. The treatment of the sidewalks with sketchy stone block pavements, and with the poorest kind of curbs, not only gives 16 SUGGESTED PLAN OF PEOCEDUEE FOE the city the appearance of a back-woods country town, but is a distinct menace to life and limb. A regular program should be established for the pavement to be laid during each of the next ten years, this program being devised after a study of existing and prospective conditions with the several points above outlined in mind. In addition to these several items, the matter of economics should be carefully con- sidered. First cost should not be the sole consideration in paving streets ; the items of maintenance of surface, cost of making sub- surface installations and repairs, cost of maintenance of the original surface after such repairs and, of even more interest to the community at large, the effect upon vehicles and merchandise, to say nothing of riders and those living adjacent to the street, through excessive wear and tear, noise and other nuisance where rough pavements are installed, where the surfaces are not main- tained so that depressions occur and are not removed, with the resulting possibility of breakdown to vehicles and ruining of horses and merchandise transported. As has been stated, the pavements of Jersey City are bad. This is largely due to the extended use of trap for paving blocks, with the resultant rough and unsightly surface, in most instances. Studies in other cities have disclosed the fact that this type of pavement is really more costly to the community than other types which may involve originally higher first costs. Steeet Geades (4) : Not alone should the street line be considered, but its grade as well. The latter is important both because of the tractive effort necessary on the part of horses drawing heavy loads, but also because arrangements should be provided for a proper flow of the water which falls upon the streets so that it is carried off at sufficient and properly located points without damming and the formation of puddles which will soon become unsanitary, to say nothing of their annoying effect because of vehicles splashing through them or children throwing the muddy water upon vehicles and their occupants. Street surfaces should not be too flat or too steep. The sub-surface means of carrying off the water should be carefully studied, together with the design of catch basin heads and the other street structures which are involved. CITY PLAN COMMISSION, JERSEY CITY, N. J. 17 I £ The evolution even in such items has been considerable in the past few years, modern municipal engineering having evolved types of gutter construction and drainage openings over which traffic can pass almost without noticing the difference in sup- porting material. Jersey City could improve her conditions in this line very materially over the greater portion of her area. Curbs and Walks (5) : The aesthetic side of street pavement construction should be pushed and an improvement secured in type of curb, its width and alignment, the uniformity of unbroken grades, the construc- tion of curb corners on uniform curves of proper radius, the con- struction of cement sidewalks in place of the ragged, irregular, random widths of blue stone now laid, the maintenance of proper street crowns, many of those now existing being exaggerated even to the point of danger during wet and frosty weather, caus- ing the skidding of automobiles or sliding of horses and heavily loaded vehicles. On streets where there is not likely to be backing of heavy vehicles against the curbs or grinding of wheels along them, as is likely to take place on steep grades, concrete curbs may be employed, if properly constructed under suitable specifications and rigid inspection. These outlines and edgings for the thoroughfares make sanitary and highly satisfactory structures. On heavy traffic streets, however, granite curbs of widths above six inches, properly set in concrete, are much better in appear- ance and usefulness. With regard to the recommended pro- cedure to be followed, the following is submitted : Recommendations (6) : a. Make pavement and road surface map at a large scale for whole city. b. Make sidewalk paving or surface map for whole city. In regard to these two it would be desirable in a number of typical instances to note on such maps the present condition of these roadways and sidewalks. c. Indicate on pavement map the per cent, of incline of all grades over one and one-half per cent. 18 SUGGESTED PLAN OF PROCEDURE FOR d. Make survey of types of curbs and gutters used and relative condition of same. In connection with this show the location and condition of catch basins. The comparison of these maps and charts with the traffic count maps and the residence maps will show at a glance the desirability of change in type of pavement, sidewalk, curb or drainage. e. Make special study of the type of pavements used about schools, hospitals, libraries, courts, etc., with a view to the necessity of using noiseless pavement in such cases. f. Make a series of maps showing street paving for each five-year period for fifty years back, different cross- hatching for each period. g. Investigate ordinances or official action with regard to street crowns and sidewalk slopes. h. Investigate laws or ordinances as to maintaining or repairing sidewalks. i. Make special studies of costs to traffic of rough pave- ments in the matter of wear and tear, speed, breakdowns, etc. j. Investigate ordinances with regard to back fill and pavement restoration. k. Note use of wood block between tracks and rails and two feet outside of same where the remainder of the street is asphalt, and get photograph showing poor condition of joint between types of pavement. 1. Make a schedule of the money spent on paving per yard for the past ten years. m. Prepare photographs of good pavement on unused streets and of poor pavement on streets wherever trucking now exists. n. Make a tentative suggestive program of the order in which streets should be paved and re-paved during the next ten years. o. Make maps showing the location of all sub-structures under the principal streets and intersections of the city with a view to determining on the best plan for a uniform method and placing of these sub-structures of different sorts throughout the city. The order here given may be considered the order of urgency, except that items f , k and 1 might be allowed to follow o. CITY PLAN COMMISSION, JERSEY CITY, N. J. 19 III. TRANSPORTATION OF PEOPLE. III. A. Street Transit— Re-routing — Re-scheduling. Street Cab System (1) : The street transit in Jersey City is, in general, good. Inves- tigation will show, however, that there are many points at which it can be improved. Some of the present routes could be changed, some new ones could be added or present ones extended, a num- ber of cars could be re-routed through the congested districts of the city, all to the great advantage of all parties. Furthermore, the scheduling of cars could similarly be improved upon. The rails and roadbed are often not the best in proportion to the traffic they have to bear and in consideration of the use of the streets by other vehicles. The ideal street car system is one where a person can go from the place where he lives to the place where he works, to the train, to the hotel, to the place of recreation, or visit his friend, or between any two of them, with the minimum walk, by the most direct street car service and with the minimum changing of cars. A careful consideration of the facts with regard to distribution of residence and distribution of work, and the applying of these findings to the routing and scheduling of the street transit, may go a long way toward increasing its efficiency and usefulness. Service Rendered (2) : The cursory examination thus far made, reveals the fact that the street car company operating in Jersey City is exceptionally blessed because the community is so laid out and the population so distributed that it can be served with a considerable amount of satisfaction with a relatively small track mileage per thousand inhabitants and that the average ride is shorter than in many other cities. For these very reasons, questions arise with relation to the service which is to be expected from the transportation company, and with regard to a definition of its reasonableness. If the company does not need to carry its patrons as far as do other transportation corporations in other cities, it may be considered that the Jersey City corporation should provide for the same amount of money spent elsewhere, a somewhat better service through number of cars passing a given point per hour, 20 SUGGESTED PLAN OF PROCEDURE FOR or by other means. Thus will be provided for the patrons a possible quid pro quo for money spent, which they otherwise might exact in greater length of ride. Zone Affected (3) : The street car problem is a very large one. It is so involved with that of the neighboring communities that your commission could well spend some effort in securing co-operation among all of the municipalities involved, looking to the placing in the hands of a single properly paid set of investigators the examination of the problem and its ultimate solution as far as the present day conditions are involved. The difficulties encountered in studying Jersey City independently of Bayonne or Hoboken and the north Hudson towns, for example, leave the question more or less open, it being possible for the railroad corporation to contend with a certain amount of justice that their problem is larger than the one studied by any one single community, because they pro- vide transportation for larger numbers of people than belong to your single municipality, and that you can therefore not be in a position to judge of the ultimate solution of the problem. Were a single investigator to be given power to study the whole problem in such manner as to include the requirements of each of the communities involved, the railroad company would not be in its present advantageous intrenchments, and any contentions for improvements could be maintained with much better result than otherwise. Trolley Traffic Statistics (4) : Not alone should counts be made of the number of cars which pass given points from minute to minute through the full twenty- four hours, but the number of riders, both seated and standing, should be ascertained, the points at which they transfer from one line to another, with the number taking advantage of such trans- fer, and the average length of haul on each line, definitely deter- mined. By studying riding diagrams so secured, in connection with route maps and population statistics properly plotted, definite scientific reasoning can be adduced for improvements in surface street car extensions, changes of route and schedule, etc. These several matters should be studied both with relation to the convenience of the traveling public, the income of the cor- CITY PLAN COMMISSION, JERSEY CITY, N. J. 21 porations, and general civic conditions, with particular reference to the diminishing of real estate values because of diversion of traffic, improvement in other districts where better conditions are made to exist, etc. The work along these lines already carried out for different civic officials and bodies, by Mr. F. Van Z. Lane, traffic expert, and by Mr. Charles H. Higgins, consulting engineer, should be made the basis upon which to build the work done by the City Plan Commission. Special examinations have been made of results of their work, which have shown them to be efficient and highly satisfactory to the extent to which they have been carried thus far. Statistics should be secured showing the centers near which people board the cars and the corresponding centers to which they desire to move. Population maps showing legal residences at which people are supposed to sleep give what may be called the "night population," while other maps which show the numbers of people in schools, factories, mercantile houses, etc., give what may be called the "day population," between the centers of which two maps the people move. Franchises (5) : In studying the general street car matter, consideration must be given to the present franchises and to those which must be secured by the transportation corporations for extensions and other changes of route. In this connection, special consideration should be given to what has come to be known as the inde- terminate type of franchise, and so far as the City Plan Com- mission deems it wise to go, that type of franchise should be advocated before the proper legislative bodies. In connection with street use, it should be noted that from the standpoint of other traffic in the streets, the less the impeding by the street cars of other traffic the more continuous and the more effective the flow through the streets and vice versa. One- way traffic on certain streets is often necessary to accomplish this, and the number of such streets should be increased. Numerous minor details should also be investigated, such as the rail section used, etc. A type of rail which keeps narrow tires from getting caught is a decided advantage. 22 SUGGESTED PLAN OF PROCEDURE FOR In order to secure the information above described, the fol- lowing procedure is outlined : Recommendations (6) : a. Plot the traffic counts of transit service on a large scale map. b. Plot the complete routes for each car line with figures on each denoting the total number of cars per day and total patronage per day. c. Plot similarly, on each of these routes, the number of cars during the densest hour of the day. Also plot patronage of line during that heavy hour. d. Plot locations and sizes of car barns. e. Plot movement of people at transfer points during the most crowded time of the day. f. Make a special study of types of rail used on all streets throughout the city — this with a view to improving the crossings. g. Study in detail the possibility and the desirability of a central north and south through rapid transit line along the base of the bluff or elsewhere, together with a map show- ing values of all property affected by this. h. Study cost of operating motor busses in Jersey City. i. Look up history of elevated road on Central A^venue. j. Study possibilities of more one-way street car lines, particularly in the congested districts. Make traffic counts to show need and street diagrams to show feasibility. k. Secure from the railroad companies the transfers for one typical day, and tabulate the number transferring from each, over each other line, at each transfer point. 1. Ascertain actual number of riders per car at various points in sufficient numbers to determine where majority enter and leave, and make riding diagrams. m. Make maps showing street car routing by lines now actually running, each in different color. n. Examine agreement with regard to placing wires under ground to see if this cannot be extended. o. Examine possibility of running traffic in one direc- tion on those streets where single street car lines now exist. p. Ascertain possibility of attaching trolley span wires to buildings. The order in which these recommendations could most profitably be carried out would be as follows : m, a, b, c, 1, k, e, i, j, d, f, g, h, o, n, p. CITY PLAN COMMISSION, JERSEY CITY, N. J. 23 III. TRANSPORTATION OF PEOPLE. III. B. Railways — Stations. Railway Stations (1) : The steam railway passenger stations in the city are almost impossible of approach from the land side. The secondary rail- way and the tube stations have, in almost no case, approaches in proportion to the use of the station, nor are they designed so as to facilitate this use. The ideal passenger system is one where the approaches to the stations present the minimum of obstacles and where the stations are so distributed as to be within easy reach of all. Neither of these things is to be found in Jersey City. Grade Crossings (2) : There are a number of grade crossings in the city which are a relic of barbarism, particularly in such a large city, and should be eliminated at once. It is obvious that the ideal city has eliminated all grade crossings. In general, the railways with their ugliness and smokiness have a very bad effect on the lower part of the city. Some scheme could be studied out to do away with this difficulty. The main lines of the railway where they go across the city should be made as attractive as possible, that is to say, they should be so screened or beautified as to prevent their being considered as eye-sores. Ferries (3) : ' The ferry service in many cases is not such as to serve either the passengers or the vehicles. Special studies could properly be made with regard to the present schedules, and even as to the design of the boats, looking first to the possibility of using the whole of the lower deck for vehicles, the passengers being pro- vided with cabins on the upper deck. Again, it is believed that the boat schedules could be re-arranged so as to provide better facilities during certain hours, a better headway during non-rush hours, and actually benefit thereby both the riders and the railway companies through more economical operation. 24 SUGGESTED PLAN OF PROCEDURE FOR Studies to bring out the several points above mentioned may be carried out as follows: Recommendations (4) : a. Plot property ownership of the different railroads in detail on large scale map of the city. b. Make traffic counts of the use of the different rail- way and subway stations, both at through and at local sta- tions, with a further study of where people come from and go to who use the stations. This should be done with a view to a consideration of the re-location of certain stations or the improvement of or the cutting through of new ap- proaches to these stations. c. Passenger transportation over rapid transit routes and main railroad lines should similarly be determined to see whether or not the railroads are supplying the proper number of stops, whether the city is co-operating with the railroad companies in providing means of access to the sta- tions, and whether the street car system is so laid out that the people can move with facility between the homes or places of business and the rapid transit stations. d. Make traffic counts at all grade crossings, with gen- eral map showing locations, and study the grades and abutting property on either side of such crossings, plotting each in detail on a map with a view to eliminating* such crossings. e. The ferry service for vehicles and persons should be investigated to ascertain whether or not the present service meets the requirements of the times, and whether improved service will not actually bring increased traffic. IV. TRANSPORTATION OF GOODS. IV. A. Railways — Terminals — Yards. Freight Stations (1) : Railway freight stations are similarly difficult of approach and cause the waste of considerable time on the part of all trucks coming to them. A great deal of freight, particularly food supplies (thanks to these poor freight yard approaches), goes through a very wasteful process of coming through Jersey City, being carried over to distributing houses in New York, and there being loaded on to trucks and being brought back to Jersey City. CITY PLAN COMMISSION, JERSEY CITY, N. J. 25 The ideal freight terminal is one where the truckman can approach the terminal with the minimum loss of time and over the most easily tractive of pavements. Railway Yards (2) : A number of railway yards are anything but intensively used. If these yards were planned for more efficient use certain land on each railroad water front could become available to the city for municipal dock development. The ideal freight railway system where a number of roads enter the city as they do in Jersey City, is along the line of the recently proposed freight clearing yard schemes, where the freight cars brought in on the different lines may be reassorted and sent to one point on any one of the other lines. The dirtiness, the noise and the smokiness of such a yard should be relegated to the borders of the city, if possible, so located that the prevailing breezes will blow the smoke away from the city, if it is impossible to electrify the whole system. Recommendations (3) : a. Locate and define the various freight terminals showing means of truck ingress and egress. b. Study location and show on map the routes to and points of delivery of building materials and other bulky freight and study how the development of the canal basin would alter distances of travel. c. Study relative costs of "b". d. "Freight transportation" maps should be provided showing locations of sources of freight like railroad yards and stations, boat landings; while the other termini consist- ing of large warehouses, factories, mercantile establishments and other similar points, should be noted. Points at which building materials are brought into the city, at which food products arrive, and over which other staples are handled, should be similarly tabulated and plotted. e. Study also, possibilities of use of canal basin at points where bulk freight could be unloaded from trains and from there lightered for delivery in Manhattan or elsewhere about New York Harbor. f. Examine franchises to ascertain if streets have been properly closed where railroad yards at present exist, so as to say whether or not the city actually holds the fee to cer- 26 SUGGESTED PLAN OF PROCEDURE FOR tain streets now occupied by the railroads. If the city does still hold fee, these streets can be used again where needed or some adjustment arranged. IV. TRANSPORTATION OF GOODS. IV. B. Water — Canals — Water Front Development. Water Front (1) : The water front of Jersey City on the Hudson River side is practically all in the hands of the large railways. On the Hacken- sack River front and the Newark Bay river front, it is prac- tically all undeveloped, with the exception of a small strip covered by factories. On the Hudson River side the water has a good depth and on the west side it could be easily dredged to a prac- tical depth for barges and lighters. Jutting pretty well into the city, between the old city and the peninsula used by the Central Railroad of New Jersey for its terminal, exists a waterway called the Morris Canal Basin. The Morris Canal has been practically abandoned, as far as Jersey City is concerned, for some years past, but the legal abandonment is still under discussion. The uses to which this canal basin might be put are of considerable importance to the city, especially as it holds title to certain areas. The city ownership of water frontage includes the following parcels : a. The Morgan Street dock, located on the Hudson River, is now practically completed, at a cost of $60,000. It is the intention of the authorities to use this dock as a public landing place. It is 620 feet long and 50 feet wide, with slips averaging about 45 feet in width on each side. The dock is to be unshedded. The city owns all riparian rights. b. The South Cove Grant is located adjacent to the Morris Canal Basin. It will probably be developed as soon as an adjustment can be reached with the railroad. It includes 1,100 feet of water front and 19% acres of land. All riparian rights are owned by the city. The method of development will probably be worked out in connection with the railroad companies. c. The Howell Street dock on the Hackerisack River is located just north of Newark Avenue. Adjacent to it CITY PLAN COMMISSION, JEESEY CITY, N. J. 27 are 4>y 2 acres of land with 620 feet of water front. It is understood to be the intention of the authorities to develop this site in the very near future. d. The municipality also owns a tract on Newark Bay with a frontage of 300 feet, running through to the Morris Canal, but no riparian rights are included. e. Sixty feet on the Hackensack River at the foot of Clendenny Avenue is within the jurisdiction of the city. f. Sixty feet on the Hackensack River at the foot of Duncan Avenue is within the jurisdiction of the city. g. Sixty feet on the Hackensack River at the foot of Clermont Avenue is within the jurisdiction of the city. h. The municipality also owns 4^ acres of meadow land in Kearney, located just north of the Turnpike bridge. This includes 450 feet of frontage on the Hackensack River, but does not include riparian rights. No development of this tract is understood to be contemplated. Canal (2) : The Morris and Essex Canal, above mentioned, encircles almost completely the southern part of the city, cutting off cer- tain districts like Communipaw almost entirely from other por- tions and serving at many points for hardly more than an open sewer. It is useless and a decided menace to health, and a special effort should be made to reach an adjustment in regard to its abandonment as a continuous waterway, turning it over in some portions for boating in summer and skating in winter, or for other park use, while other stretches should be entirely filled. Municipal Ownership or Water Feont (3) : Municipal ownership of water frontage is growing through- out the world. Almost every city in Germany and France, Hol- land and Belgium, which is located either on the ocean or on a navigable waterway at the present time is taking steps to acquire for future commercial and industrial uses large areas of water front lands. Similar steps are being taken in this country along somewhat similar lines, except that the industrial phase is only commencing to receive proper attention. There is no question that it is most desirable that the city should own a certain portion of its water front, the more the better, because even if it cannot use it for public docks, it can 28 SUGGESTED PLAN OF PROCEDURE FOR lease and at least control its development. The city which does not do this is at the mercy of those who own the water front. Where a city is in the position of Jersey City, a clear policy of water front development with regard to the development of modern piers, slips, pier sheds, warehouses, rail connections, factories, housing, etc., would go a long way toward improving the city from a business and a social point of view. Most municipalities, especially those which believe that they will be affected by the Panama Canal, are taking great account of future conditions. This is particularly true of the cities of the Pacific Coast, and can profitably be followed by those on the Atlantic. In most such municipalities, special harbor com- missions have been appointed and given the power to regulate the general type, and, in most instances, even the physical design of structures designed to be erected even by private corporations or individuals for water front purposes. The laws on this subject with regard to Jersey City should be investigated, and, if neces- sary, new powers acquired, for the present Harbor Commission, so that a progressive improvement can be brought about of the whole water front area, whether owned privately or municipally. Certain tracts should be acquired by the city and used exclusively for the benefit of her people for the landing of building materials and miscellaneous small cargoes, so distributed as to make hauls as short as possible, each unit equipped with mechanical appliances most suitable to handle the merchandise which will pass over it to the neighboring industries or other developments in that portion of the city. Connecting Waterway Between New York and Newark Bays (4) : When the Morris Canal was constructed, its builders took advantage of a natural ravine to carry the waterway through the long peninsula which separates Upper New York Bay from Newark Bay. That ravine also holds a strategical position as the site of a possible connecting canal to connect the bays directly, such canal to be used for lighters and barges, and even possibly for ships of the largest size. Special studies could very profitably be made of this whole subject, including traffic statistics, surveys and estimates of cost and revenue. city plan commission, jersey city, n. j. 29 Co-Operation With Harbor Commission (5) : It is understood that the policy and development of the water frontage of Jersey City is in the hands of the Harbor Com- mission, appointed by the Mayor. The City Plan Commission can be of material assistance to the Harbor Commission in work- ing out proper plans, especially with their relation to the general street system of the city, the location of terminals, of factories, etc., and the use of water frontage for amusement purposes, for the population at large. In this connection, too, either separately, or better, jointly with the Harbor Commission, the subject of an elevated marginal street (over the railroad yards along the Hudson River) should be given a considerable amount of study. It is probably questionable whether a marginal railroad would be either possible or of any service, but the construction of a street close to the waterfront might be found to serve the pur- poses of commerce with good effect, and certainly could be made of value for recreational purposes, if designed with that end con- stantly in view. The present water frontage of Jersey City is anything but inviting, but with the wonderful skyline of Man- hattan across the Hudson River, it would seem well that an effort be made to transform to some extent the existing conditions, fol- lowing in this regard, as far as may be, the examples set by Ant- werp, Dusseldorf, and other continental cities. In carrying out the studies above outlined, the following points should be considered: Recommendations (6) : a. Make detail maps at large scale of the whole water front of Jersey City on both east and west sides. Show in detail on this map the character of occupancy, the intensive- ness of use, the ownership and the assessed valuation of the property now. Show also the present depth of water for some distance from the shore. Indicate character of ground and grades, as to whether land is filled or not. b. Determine rights of upland owners with regard to adjoining lands under water. c. Study in detail with large scale maps showing charac- ter of land and ownership of approaches, various places along the west or east shores, even well up the Hackensack River, with a view to municipal development of docks. In 30 SUGGESTED PLAN OF PBOCEDUBE FOE this connection show possibilities of use of land directly behind such water frontage for freight railroads, for manu- facturing and other commercial purposes. d. Study in detail the whole question of the abandon- ment or the use of the Morris and Essex Canal. In gen- eral, we would recommend its absolute abandonment except immediately behind the canal basin at Communipaw, and with the exception also of the strip on the boundary line between Jersey City and Bayonne, and perhaps a strip for boating purposes parallel with Newark Bay. e. Make a systematic survey of railroad yards to ascer- tain whether or not they can be more intensively used, thereby making it possible for the railroads to surrender certain spaces along the water front for general city use. f. Examine condition of all marshes and swamp land along the water front with the idea of treating same for extermination of the mosquito. g. Special studies should be made of the development of the lands which now belong to the city in the vicinity of the so-called "Canal Basin," together with their extension and proper improvement with properly dredged water areas, bulkheads and sheds, with proper street approaches, pavements, etc. h. Similar studies should be made of the possibility of development adjacent to the Hackensack River and Newark Bay, such studies to include the advisability of the munici- pality acquiring the lands and holding them, if necessary, for some years to come so as to maintain control of the type of development, and eventually to secure the full benefit from the unearned increment, which otherwise would be lost to the city at large. In this condition a special study should be made for an ideal industrial community located along this vacant water front. i. Study present points of delivery of building materials and how the development of the canal basin would alter dis- tances of travel, with corresponding costs. j. Investigate the ownership of street stub ends, par- ticularly at the water front. k. Study direct possibilities for use of canal basin as unloading point for lightered freight, delivered there from Manhattan and other points in New York Harbor. 1. Tabulate data with regard to ownership of canal basin, past and prospective. CITY PLAN COMMISSION, JERSEY CITY, N. J. 31 m. Study the necessity for water front street and if it is possible to construct same as an overhead structure. n. Ascertain the tonnage shipped over string pieces of city pier, giving weights, destination in the city and amount handled per day, amount of delay, etc. o. Study ownership of foot of Twelfth Street on the Hudson River. The order of importance is approximately as follows: a, b, c, d, e, g, i, k, h, j, o, 1, m, n, f . V. FACTORIES— WAREHOUSES. Rank as Factory City (1) : Of the fifty municipalities of the United States known as industrial cities, Jersey City ranks twenty-eighth in average number of wage-earners, seventeenth in value of products, and twenty-first in the value added through the processes of manu- facture. This shows her to be rather above the average as an industrial community. The increases in these several items during the period from 1904 to 1909 run as follows: 25 per cent, increase in wage earners, 70 per cent, increase in value of products, and 46 per cent, increase in value added by manufac- ture. These increases are above the average, showing that Jersey City is growing as a factory center. With the dense population now existing upon Manhattan Island, and the high values of real estate making it uneconomical to locate factories and warehouses on that island, Jersey City will doubtless tend to increase rapidly along these lines. Certain sections, particularly of the old city, at present show a tendency toward transformation from residence to industrial use. Correspondingly, Jersey City is likely to become the warehouse feeding Manhattan, investigation having dis- closed the facts that certain warehouses are now used as temporary storehouses for commodities destined for Manhattan, the railroads making use of those warehouses as stopping points while the freight is still "in transit." This arrangement provides Jersey City with an exceedingly lucrative business, without involving in any manner the freight rates to the metropolis. Jersey City could well afford to exploit this particular line. 32 suggested plan of procedure foe Factory Districts (2) : A number of factories are located not only in the congested part of the city near the freight terminals, but some are now locating near the outlying districts, particularly along the Hackensack River and Newark Bay. They are also spreading at random through the residential districts. Close to the water front between the Pennsylvania freight and passenger yards there is a considerable industrial develop- ment which extends to other railroad yards and back to about Grove Street. Throughout some of this district tenement con- ditions are bad, streets need widening and re-paving, wires should be removed underground and sidewalks repaired. Immediately behind this section is apparently the best residential portion of old Jersey City, with some interesting front yards, the best examples of churches, a park and a few well-paved streets. As one approaches a railroad track or yard there is always a tendency to depression of type of improvement and reversion to an indus- trial district. This condition exists particularly for several blocks adjacent to the connecting railroad in Jersey City. The factories are, in general, low, poorly built and poorly lighted and ventilated and quite unscientific in their design*. Segregation of Industries (3) : Manufactories should be segregated as far as possible so that they will not spoil residential districts or interfere with the best business tracts. They should be located so that they will secure the best of rail and trucking approach. As it is extremely difficult to move factories out of special districts by legislation, it is desirable to induce them to come to specially set-apart districts by offering advantages in the way of good rail and water front connections, wide, well-paved streets, and block and lot units designed especially for manufacturing use. The recommended procedure in studying this subject should be about as follows : Recommendations (4) : a. Make map at a large scale showing the property and area and size covered by all factories and show on these loca- tions one dot for every five or ten workers in such factories. CITY PLAN COMMISSION, JERSEY CITY, N. J. 88 b. Make a map showing location and size of factories built during each of last ten years, so as to show direction and tendencies of growth of manufacturing in Jersey City. c. Plot in detail, at a large scale, possible property for factory use along the base of the bluff with a view to re-arranging the present streets so as to improve vastly this district for manufacturing purposes. d. Make maps at a large scale of the Hackensack River and Newark Bay water fronts, including all land as yet undeveloped or only partially developed, with a view to re-designing block units and widths and types of streets, so as to make certain sections of this land particularly adapt- able for manufacturing. e. Consider the passing of legislation which will pre- vent the construction of buildings to be used for manufac- turing in the heart of good, residential districts. f . Those sections of the city which are now eminently residential should have ordinances passed and Board of Health regulations issued prohibiting the construction of factories in such areas, as being public nuisances. g. Make maps showing location of and numbers of users of schools, office buildings, mercantile establishments, so as to get location of day population. This also should be made to include location of warehouses, lumber yards, freight stations and other mercantile centers. h. Consider in this connection how the city can offer inducements to industries by way of reduction of taxation or provision to special track connections, special improvements in paving, changing of lines of streets, so as to make them provide better depths of blocks such as are often required for special manufactures. VI. FOOD SUPPLY— MARKETS. Food Routes (1) : A major part of the food supply ultimately destined for Jersey City arrives either by rail or by truck, in many instances the latter bringing back to Jersey City produce and food supplies which had previously passed through the city on its way to the wholesale markets in Manhattan. A few exceptions occur with regard to cold storage products, wholesale groceries and some other items, but it is almost invariably the case that a double haul is involved in all Jersey City food supplies, with the attendant 34 SUGGESTED PLAN OF PROCEDURE FOB extra cost to the citizens. It was actually discovered that produce which was being sold near the southern end of the city had been conveyed to that point from the wholesale market in Manhattan, to which point it had been taken through Jersey City from the farms beyond Newark. It is a well known statistical fact that the cost of living in Jersey City is relatively higher than in New York, and the causes are obvious. Markets (2) : There are no public wholesale or retail markets. There is no method or system in the distribution of food stuffs to the various parts of the city. The system of milk supply is complicated and costly. Because of the number of middle and lower class residents in the city, it is most desirable to reduce the cost of living in Jersey City and to that end the market problems and the handling of milk should receive the most careful consideration. Recent investigations in New York and many cities in Europe and America have proved conclusively that the day of the municipal retail market in large cities has passed, but that the founding of municipal wholesale auction markets is of the greatest use in reducing the cost of hiving. Anything which can be done to eliminate the enormous waste which now occurs through the transportation of much of the food stuff through Jersey City over to Manhattan and back again before.it is distributed in Jersey City will materially reduce the cost of foods. Jersey City might even go further and provide such ample wholesale market facilities as to draw from Manhattan. Such an action would be eminently along the line of the highest economics, because then the Manhattan retailer might be provided with facilities whereby he could make use of long water hauls, greatly reducing the damage to produce because of conveyance over rough pavements, and by means of diverging lines from a point further back along the route over which the produce must travel toward the greater city a real saving in time could be effected. Should Jersey City secure such a market to care for the railway sources, it might well be possible that she could divert CITY PLAN COMMISSION JERSEY CITY, N. J. 35 to her water front the coastwise lines which are the great com- petitors of the railroads in the carrying of food stuffs. A study of these problems leads to the following suggestions : Recommendations (3) : a. Make map showing the location of all points at which food supplies come into the city. Collect data which will show what proportion comes by truck, by what routes it comes into the city and where it comes from. Do this both for August and September and for February and March. b. Determine the proportion of the total food supply which comes into the various freight yards, and study methods of handling it, and street approaches to the same. Find what proportion of food stuff is actually retrucked back from Manhattan and determine the extra waste and cost added to the retail price of food by such trucking. c. Consider in detail the question of the advisability of having a general city retail market or a city wholesale mar- ket. Study location of either of these, the desirability of secondary retail markets in various sections of the city and study in detail the location and layout of a wholesale market, particularly in connection with the incoming food stuffs into Jersey City. d. Study similarly the question of market supply and distribution in various parts of the city. VII. WATER SUPPLY— SANITATION. VII. A. Water Supply. Water System (1) : The water supply of Jersey City ranks, in general, among the better ones in the United States. The Boonton Dam was for some time rather historical in water supply circles, and the treat- ment plant has always been cited as a good example of such work. Again, the cleaning of pipes in the city and the extension of mains, together with the substitution of cast iron for cement pipe, has placed the underground work on a fairly substantial basis. Many of the hydrants are antiquated, however. Water Shed Pollution (2) : It is understood from several sources that for a number of years the pollution on the water shed has been becoming more 36 SUGGESTED PLAN OF PROCEDURE FOR serious, and that an eminently equitable proposition was put for- ward some time since for the sharing of cost between Jersey City and the interested towns on the water shed for an intercepting sewer and sewage disposal plant in connection with the sewering of the several communities. The information secured with regard to late records of bacteria shows that this matter is again acute and the municipality should take immediate steps to carry out some scheme for the amelioration of this condition. An auxiliary main should also be installed across the Hack- ensack River to obviate possibilities of trouble from a cutting off of the supply, should an accident happen at that crossing. Water Waste (3) : Some water waste was discovered in the survey of the city, and an examination of the main supply line where it crosses the Hackensack River showed the possibility of danger at that point which information received from officials tended to confirm. Aside from the cost involved to the Water Department, the matter of water waste is of interest to the community at large because of the damage which leaking water may produce upon the pavements, and because the community must supply m the sewers which carry off the drainage. While the supply is apparently adequate at the present moment and the pressure is sufficient for ordinary purposes, still it is believed that there should be installed some additional mains, and also a separate high-pressure fire system at least throughout the whole down town district. Studies looking to the solution of these problems may be outlined as follows: Recommendations (4) : a. Study present water supply system and make com- parative study with other cities, both with regard to costs, service and excellence of water, and safety in case of drought. b. Make a special investigation of water shed pollution and its elimination. c. Make study of the inspection of water mains, and see what can be done to make same more thorough. d. Systematically investigate water waste. e. Study fire hydrant efficiency. CITY PLAN COMMISSION, JERSEY CITY, N. J. 87 VIL WATER SUPPLY— SANITATION. VII. B. Sewage — Garbage Disposal. Seweb System (1) : The Jersey City sewage system is reasonably complete despite the existence of hundreds of privies throughout the city, but it is not large enough in many instances, its outfalls are most improperly located and the condition of many of the main lines should not be tolerated for a moment in any city. Examination of the sewers through manholes showed bad conditions in many of the lower portions of the city. In one instance the sewer was practically a cesspool, and in other cases they were practically filled with sand and earth. Disposal Woeks (2) : The whole Jersey City drainage system should be carefully investigated both as to present condition, the size, gradient and amount of sediment contained; the outlets should be correspond- ingly examined as to contaminating conditions in the vicinity, whether or not they form a nuisance, and as to the proper dis- position of the effluent. Whether or no a separation should be made in the system carrying sanitary sewerage and surface water should be given a careful study. If the combined system is main- tained, how best to dispose of the dry weather and storm flows must be worked out. Probably the best location for sewerage dis- posal works will be upon the meadow land adjacent to the Hack- ensack River or Newark Bay, but then a problem arises as to the possibility of tunneling the ridge and carrying the sewerage from the easterly slope back through the city to such a disposal plant,, and whether this is a better economic solution than some other which might be made to deal with each outlet separately by the installation of screens and a settling tank at convenient points near the outfall under street areas or railroad yards. Garbage (3) : Some evidence was found that garbage is collected at improper hours and in some localities nowhere nearly often enough. On a few small streets and alleys if it had been collected once a month the people deemed themselves lucky. 38 SUGGESTED PLAN OF PROCEDTTBE FOE i A great deal of it is burned in open lots in crowded sections — anjutterly crude method of handling it. At other points it is used for fill. For the moment perhaps this disposition will remain satisfactory but it cannot long continue. Special studies should be made with regard to certain districts, of the possibility of separation of grease and its sale at a large profit by the munic- ipality. The remainder of the garbage should be incinerated and use made of the heat thus produced for the generation of elec- tricity for sale or for street lighting purposes, stored during hours of non use in storage batteries. The sewage and garbage disposal studies could properly take the following course : - Recommendations (4) : a. Make a complete sewage map of the whole city show- ing, too, the exact location of all outfall sewers. Study in detail condition of all outfalls and trunk lines. We believe that many of these latter are a criminal menace to health, owing to their neglected condition and that they should be immediately cared for. b. Study relative size and grade of sewers in various streets of the city to see if they are large enough to carry present and probable flow. c. Consider relative advantages of several locations for sewage disposal plant, particularly in northwestern section of city, and make detailed plans for location and design of same. d. Ascertain amount and location of complaint from backed-up water in cellars and blockage to sewers along streets. e. Systematically inspect whole sewerage system. f. Make similar study with regard to garbage disposal plant. g. Plot on map the present places where garbage is disposed of and study effect of same. Study comparative costs and advantages to Jersey City of different systems of garbage disposal. CITY PLAN COMMISSION, JEESEY CITY, N. J. 39 VII. WATER SUPPLY— SANITATION. VII. C. Street Cleaning. Steeet Cleaning (1) : The methods employed of cleaning streets in Jersey City are not as efficient as in other municipalities. This is partially due to the poor condition of the pavements and partially to the street cleaning methods employed. Street cleaning is most unsystematically carried out and appears to be done on the "hurrah boy" principle of swooping down on a neighborhood with a gang of men and cleaning it up with the firm belief that they wont need to come back there again for a month. The system of garbage collection and street cleaning should be put on a scientific basis, proportionate to demand. A special study should be made of the adoption of some vacuum process where the pavements are particularly rough, since such vacuum cleaner will produce more sanitary results than the old-fashioned sweeping process which leaves a great deal of refuse in the joints between the paving blocks. The disposal of the street sweepings should be considered in conjunction with the garbage disposal plant already discussed under the last section. Efficiency Basis foe Steeet Cleaning Depaetment (2) : This general subject is so tied up with type of pavement surface that in considering the latter subject the economics of street cleaning should always be included. It is believed that the City Plan Commission could expend some of its energies in studying and later advocating a unit basis for measuring the efficiency of the department in terms of yardage cleaned, tonnage of material removed and a comparison between sections with regard to cleanliness. In discussing the general topic, the order of procedure should be as follows : Recommendations (3) : a. Study system and methods of street cleaning in Jersey City to see present costs and various possibilities of improvement. 40 SUGGESTED PLAN OF PROCEDURE FOR b. Make comparative study of various methods of street refuse disposal and consider the installation of a city plant in connection with the sewage disposal and garbage disposal plant, in a suitable section of the city. c. Make study of the methods in other municipalities, especially the Borough of Richmond, in New York City, in which places unit methods of making appropriations are in vogue. VIII. HOUSING. VIII. A. Old Districts — Tenements — Sanitation. House Types (1) : The population of Jersey City was 267,779 by the 1910 United States Census. In general, the people live in one and two family frame houses on a plot of land about 100 feet deep by from 25 to 50 feet frontage. Throughout the city, however, there are a great many three and six family three story frame tenements and their number is rapidly increasing. In the down- town, congested sections there are areas built up solidly with five and six story brick tenements. Notwithstanding the New Jersey tenement law, conditions in these tenements are. most unhealthful and most unsafe. Rear tenements exist in many places. Congestion (2) : The brick tenements are built with too small courts; they are most unsanitary; there are thousands of completely dark rooms and many yard privies. The wooden tenements through the city are uniformly built too close together, so that there is great danger from fire and the side rooms of such tenements are often dark and unhealthful. In few has adequate court space been left, so that they contain many dark rooms. Sanitary conditions are very bad in many of them. The one and two family houses are uniformly built too close together, with corresponding conflagration menace, and yard privies abound. From an architectural standpoint, too, a vast improvement could be made. city plan commission, jersey city, n. j. 41 Procedure (3): First we must know the housing conditions as they now exist. To this end we recommend certain surveys and the prep- aration of maps to show the results obtained. These maps are not only of the greatest aid in determining upon methods for relieving housing troubles, but they show at a glance the regions which need better traffic or transit or recrea- tion facilities. For the legal standpoint, see recommendations under XII. Laws, XII. B. Housing, p. 55. From a sanitary standpoint there are some districts that demand immediate attention. Recommendations (4) : a. Make a map at a large scale of the whole city show- ing location of every house and tenement, and distinguishing thereon the different story heights and whether the building be of wood or brick exterior. b. Make a map of the whole city showing by different colors the location of frame tenements built in each of the last ten years. c. Do the same for brick tenements. d. Do the same for two family houses. e. Do the same for one family houses. f . Make an intensive housing survey of the most con- gested blocks in different parts of the city to the end of knowing exactly what the housing needs of the community are and also so as to know the habits and preferences of the people of the city with regard to housing. Special standard- ized cards should be used in this work. To convince people of the necessity of action to secure hous- ing improvements, we recommend: g. Make a map at the same scale with one dot for each case of tuberculosis within the last five years. h. Make a similar map with one dot for each case of typhoid fever during the last five years. From an architectural standpoint, we recommend: i. Make a number of photographs of different types of houses and tenements throughout the city with the idea of showing by contrast with the best in other cities the possibili- ties of improvement. 42 SUGGESTED PLAN OF PEOCEDUBE FOE j. Make an immediate investigation of unsanitary con- ditions of houses along the canal, especially in the older part of the city. As to order of urgency, we would suggest that you first undertake No. j, as it is of vital importance. Then No. f, so as to become acquainted with the problem. Then Nos. b, c, d and e; then No. a. Then study the legal side; then Nos. g and h, and lastly No. i. VIII. HOUSING. VIII. B. New Districts — Subdivision — Dwellings. Model Housing Teacts (1) : There are various sections in the older parts of the city that are most unsanitary and uneconomically developed or entirely undeveloped. They are often in the centers of large blocks and reached only by blind alleys. In other localities, they consist of whole blocks of poor land entirely surrounded by built-up sec- tions. It is for the best interest of the whole community that these fester spots be wiped out. We are strongly of the opinion that the as yet undeveloped areas in the congested parts of the city should be studied for a model housing scheme, and that other outlying districts be made the subject of study for proper future development. A most careful study should be made of ways and means of housing most of the population of the city in single or two family houses, not over ten or twelve houses to the acre, with plenty of sunlight and air and good surroundings — all within a price which the occupant can afford to pay. This involves the problem of the location of places of work, of transit facilities and street con- gestion. Recommendations (2) : a. Make an intensive study of the whole region between Brunswick Street and Cornelison Avenue, with the idea of developing it as a model housing area. b. Study for a model housing development territory between the Boulevard, St. Pauls Avenue, Summit Avenue and Newark Avenue. CITY PLAN COMMISSION, JERSEY CITY, N. J. 43 c. Study for a model housing area the district bounded by Monticefio, Storms and Summit Avenues, and Mont- gomery Street. d. Study housing plans along the lines of the English garden suburbs for the as yet unbuilt-upon areas around the outskirts of the city, particularly on the west side, Green- ville section. There are many streets in these parts of the city which now exist on the map but which are as yet unopened, the lines of which could probably be changed to the great advantage of the city from a housing standpoint. IX. RECREATION. IX. A. Playgrounds — School Yards — Park Use — Pier Use. Playgrounds (1): Play space for the children and the youth of the city is quite inadequate and very poorly distributed. The present play- grounds are of three sorts — a few playgrounds run by the Shade Tree Commission, the school playgrounds run by the School Commissioners, and the county park playgrounds run by the Hudson County Park Commission. Of the latter there is only one, which is very well adapted to its purpose of an open play field. Of the general playgrounds, even with the new thirty-acre tract in the center of the city, they are quite insufficient for the demand. Further, they are not properly developed for the most intensive use and the further fact of their being shut down early in the fall, decidedly cripples their effectiveness during a full half of the year. The school playgrounds, in many cases, do not exist, and where they do exist are rarely large enough. Furthermore, in practically no case are they properly developed for the best intensive use. Steeet Play and Ceime (2) : The result is that throughout the city the children and young people play in the streets and in back lots. This is, at best, most unsanitary and dangerous. Experience everywhere shows that it leads to crime. The city has practically no water front playground and yet it has about twenty miles of water front. 44 SUGGESTED PLAN OF PROCEDURE FOR All of those who have investigated deeply the subject of recreation are convinced that the child and the youth in order to have the best all-round development must have a place to play in away from the streets and back yards, where he can be under the supervision and direction of a good play leader. It is further- more recognized and can be easily proved that children will only go a short distance to a playground; in other words, the play- ground must be brought to the children. This means the dis- tribution of play places in size and location according to the density and character of the population. Furthermore, certain large, level, outlying regions are necessary for use as play fields where games like baseball or football, etc., may be played by the larger boys. Playground Equipment (3) : Each of the playgrounds, whether they be connected with the schools or separate, should be, in general, planned according to modern, accepted standards with the proper amount and choice of apparatus and other recreational features. These latter include swimming tanks, wading pools, sand beds, shelter houses, field houses, toilets, etc. • Recommendations (4) : We therefore recommend, in general: a. On a large scale map show the location and area of all public play spaces, designating under whose supervision they are, whether they have leaders or not, and what months out of the year they are open. This should show also the local racial division lines. b. In consideration of the present density and its prob- able growth, and also of local racial divisions, determine on a map what would be the ideal location, distribution and relative sizes of playgrounds and field play spaces in the city. c. Consider in connection with the above, the property values of such lands and search for lots or plots near the ideal locations which would answer the purpose almost as well. d. Determine which of these locations are the most urgent and prepare detailed plans of the development of these with a view of having the city buy and develop these plots. CITY PLAN COMMISSION, JEBSEY CITY, N. J. 45 With regard to existing facilities for play, we recommend more specifically: e. Make studies for plans of the present playgrounds to the end of increasing their efficiency. f . Make studies for the increase and scientific develop- ment of present school yards for recreational purposes. g. Study the development of school gardens in connec- tion with the school yards. h. Study recreational use in connection with present and proposed parks. i. Make a special study of the land about the new high school building from a recreational standpoint. There is a great need of water front recreational facilities. We recommend in particular: j. Study the feasibility and arrangement of a water side swimming and boating park on Newark Bay. From an administrative standpoint, the experience of other cities is proving that unified or co-operative management of pub- lic recreation is a decided advantage. We recommend : k. Study ways and means of developing and drawing all recreational facilities in the city under one head or one department, so as to have a uniform policy throughout, and the minimum of duplication. In order to impress upon the general public the importance and the urgency of the recreational problem, we recommend: 1. Make a juvenile delinquency map to show graphically the relation of crime to density of population and to lack of play space. m. Make a street accident map to show the danger of children playing in traffic streets. n. Take photographs of groups of children at play in the streets, particularly in the neighborhood of playgrounds or school yards and of children at play in the latter at the same time, to show graphically the contrast and the needs. o. Make intensive studies of the regions about certain playgrounds of the city to show on maps location of all com- mercialized amusements in the neighborhood, thereby show- ing the competition the playgrounds raise. p. Make maps showing the location of the domiciles of the children found playing in any given time in a given playground. 46 SUGGESTED PLAN OF PROCEDURE FOR These latter will show graphically the small radius of effectiveness of the average playground. As to the order of urgency of these recommendations, we would suggest the following: First, in order to become really acquainted with the problem, undertake Nos. o and p. Then study a little Nos. e and f . Then, with this experience, start Nos. a, b, c and d. Then try Nos. h, i, g and j. Then Nos. 1, m, n, and finally consider No. k. IX. RECREATION. IX. B. Commercialized Amusements — Social Centers. Theatres., Dance Halls (1) : In order to have a complete understanding of the problem of public recreation, it is necessary to study the whole problem of "Leisure Time." On undertaking this, we very quickly dis- cover that the motion picture shows, the vaudevilles, the theatres and the dance halls are a most important factor. It is obvious that these commercialized amusements are run purely for the profit of the owner. Practically no consideration is given by him as to what is best for the community in a social or moral way. It is common knowledge that their effects are often very harmful. It is the duty of the city to its citizens to offset these tendencies either by legal control and censorship or by offering the people something better in their place. Recommendations (2) : We would therefore recommend the following: a. Plot on map of city the location and character of all commercialized amusements in the city. b. Make a complete census of the use of all commer- cialized amusements. We would then recommend : c. Study the laws of other cities with regard to the regulation of commercialized amusements and compare with those of Jersey City, to the end of improving the latter. Lastly, we would recommend: d. Study what other cities are doing in social center work in the schools and playgrounds, and consider its applicability in Jersey City. CITY PLAN COMMISSION, JEBSEY CITY, N. J. 47 As to the order of urgency, we recommend first No. b, and then No. c; then No. d, and lastly No. a. For more detailed suggestions, see Addenda under "Recrea- tion" IX, pp. 43-46. X. PARKS, ETC. X. A. Parks — Boulevards — Street Planting. Divided Jurisdiction (1) : Jersey City has one large park which is controlled by the Hudson County Park Commission and eight or ten small parks, mostly near the center of the city, controlled by the Shade Tree Commission. It has one boulevard, running the length of the city, from north to south, under control of the Boulevard Com- mission. The Shade Tree Commission has charge of the care and planting of trees and shrubs and grass, along the streets and in the small parks. There are, too, a number of cemeteries within the city limits. There exists no water front park except at one end of the big county park, as yet undeveloped, fronting on the Hackensack River. Paeks (2) : The area of these parks, in proportion to the size and popu- lation of the city, is far below the best standards in the United States. The distribution of these parks bears little relation to the distribution of the residence population. The one boulevard connects only two of these parks. Its design and maintenance is inadequate. The Hudson County Park on the west side, considering the natural conditions and length of time that it has been in use, is worthy of much commendation from the standpoints both of beauty of design and recreational use. The other parks are capable of great improvement along both of these lines. The ideal for a park development in a city like Jersey City is to have a certain number of large parks distributed about the outskirts of the city and a series of small parks distributed accord- ing to the population, with tree and grass lined boulevards con- necting the parks, particularly the large parks, one with another. 48 SUGGESTED PLAN OF PROCEDURE FOR These parks should be so designed as not only to provide green spots but to be really objects of beauty and delight. They should further be so designed that they could be used in part or in whole in a recreational way by young and old. The small triangles formed at intersections of diagonal streets need and can receive great improvement, after careful study, for park or other treatment. Water Front Parks (3) : It is most desirable, where a city has a large water front, that some part of it at least should be developed as a great play place for the people. Chicago is taking nearly all of its water front for this purpose. New York has the Riverside Drive, Shore Road, Ft. Washington Park and others. Planting (4) : The boulevards and the residential streets of every city are much more attractive if they are planted with trees and grass strips. With a good systematic policy of tree planting a city can vastly increase the charm of its residential districts. The street planting appears to be without system as to choice of trees and their distribution, their distance apart or the amount of open space left about their roots. In the majority of cases there is great room for improvement. Many of the good old trees of the city are dying because of lack of care and protection. Recommendations (5) : We therefore recommend: a. Make a map of the city showing the location of all parks and boulevards. b. With reference to the resident population maps, in consideration of the growth and extension of housing areas, determine on sites and sizes for parks, secure data with regard to value of property which the city would have to take in order to develop these parks and search for available sites now unoccupied in the neighborhood of these ideal localities, together with cost of same, with the idea of deter- mining on a definite park development policy. c. Consider designs of all existing parks and study methods of improving same. CITY PLAN COMMISSION, JERSEY CITY, N. J. 49 d. Determine best locations for water front parks and secure data with regard to value of such property and make plans for the best recreational and architectural development of such parks. e. Make a map, at large scale, of the whole bluff from Fairmount Avenue north to the west Hoboken line. Note on this map all property along the bluff at present unoc- cupied, determine ownership of same and secure figures as to the cost of such property, together with the value of abutting property. f . Make a map of this same district showing the possi- bilities of its development as a bluff side park, taking into account the beautification of railway approaches and via- ducts and the re-studying and the incorporation of the various roads connecting the upper and lower levels into such a plan. g. Consider, in connection with this, the incorporation of the suggested feature of a north and south rapid transit line running along the face of the bluff. h. Make studies for the development of the waste land along the canal between Jersey City and Bayonne, at pres- ent full of charming old trees, as a park and recreation place, securing data as to cost of land and ownership of such. i. Study in various parts of the city the hiding of the railways by embankments, shrubbery and lines of trees on either side, as has been done in Hamburg and in Boston. j. Study park treatment of old reservoir sites, securing data as to cost of same. k. Study the landscape setting of various public build- ings, such as City Hall, the High School and the Court House. 1. Make a survey of all trees in the city, showing kind, condition, air space about the roots, distance apart, noting in particular all trees which are dying through lack of care or protection. m. Study the residential areas of the city and denote those streets which need planting and determine character of such. n. Study in detail the various street junctions of the city which could be improved by small parks, make plans for same and secure figures as to cost. As to order of urgency, we would suggest, first, No. a; then No. c; then No. b; then Nos. e, f and g; then Nos. 1, m and n; then No. d; and then Nos. h, i, j and k. 50 SUGGESTED PLAN OF PROCEDURE FOR XI. ARCHITECTURE. XI. A. Public Buildings — Groupings. Architecturally Poor (1) : Architecturally, Jersey City has little to be proud of. The public library, the new post office, some of the recent schools, one or two of the warehouses, the edifices in connection with West Side Park, the Court House, one or two apartment houses, a few private houses, etc., represent the better architecture of the com- munity. Public Buildings (2) : No public building has adequate setting. The Court House comes nearest to this, but that could be improved by a proper grouping of other municipal buildings on adjoining property or otherwise. The buildings in West Side Park are well set. Public buildings can for the same cost be far more beautiful than they now are. The same is true of private buildings. Civic buildings could be grouped in various instances to the great advantage of the appearance of the city and the usefulness of the buildings themselves. All important buildings are vastly improved by a good architectural and landscape architectural setting. Such setting, if properly designed, costs comparatively little, but may often add greatly to the appearance and effective- ness of the given building. Civic Sub-Centers (3) : A number of public buildings already exist in the several natural sub-divisions of the city which might easily serve as the nucleus of civic sub-centers. As to a main civic center about the present City Hall, it is a great question whether such is the best thing to do or not. In any case, the subject will bear considerable study. The Post Office as a decided addition to the architecture of the city demands a better setting and surroundings. Gates to the City (4) : Most of the people who enter or leave Jersey City do so by the railroads, subways or ferries. Their stations are the real gates to the city. A stranger's feeling with regard to a town is CITY PLAN COMMISSION, JERSEY CITY, N. J. 51 greatly influenced by his first impression. His remembrance of it is colored by his last impression. The same is true, uncon- sciously, to a certain degree, with the commuter. He is affected by his environment. And so it is of the greatest importance that these gateways be not only well located and well planned, but that they also be attractive and satisfying to the eye. The great Pennsylvania ferry station must of necessity be transformed sooner or later, and an opportunity will doubtless then arise to provide a magnificent portal to the city from Man- hattan. Similarly, the main arteries of automobile travel between Jersey City and her neighbors on the west, north and south should be given proper study to ascertain how they could be made more attractive by the improving of the architecture of the structures along them, as well as by parking, planting and local embellish- ment. Recommendations (5) : a. Make a map of the city, locating all public and semi- public buildings and take photographs of the approaches to and the surroundings of each of these. b. Make plans for the setting of the more important of these buildings. c. Make plans showing possible grouping of secondary public buildings in various sub-centers of the city, such as the corner of Montgomery Street and Bergen Avenue and in the center of the Greenville and Communipaw districts. d. Make a special study of the setting and surroundings of the following buildings : A. The Post Office, B. The City Hall, C. The Court House, D. The High Schools, E. The Hospital. e. Make studies of all railway and subway stations and of all ferry houses to see if they give the maximum con- venience, both in themselves and in their access and approaches. 52 SUGGESTED PLAN OF PBOCEDUEE FOE f. Study the architectural character of these buildings to see if they can, and if so, how they can be made more attractive. XI. ARCHITECTURE. XI. B. Civic Decorations — Statues, Fountains, Bridges, Etc. Jersey City has very little in the way of civic decoration. Such as there is is capable of improvement. The result is a sordidness which proves quite depressing. How can we expect the next generation to appreciate the finer things in life if we deprive them of art in their daily surroundings. The duty is obvious. Public spirited citizens and civic bodies should be influenced to contribute fountains, statues and other similar works of civic art. We therefore recommend: a. Plot on map of the city and photograph all existing decoration. b. Make studies for the improvement of these. c. Consider locations for and designs of further civic decoration. This applies also to where the principal roads and trolley lines enter within the city limits, over the bridges on the viaducts, etc., so we suggest: d. Special studies should be made of the city gates to make them architecturally worthy entrances to the city. The same also applies to the many little triangles at the junc- tions of principal roads, especially in the downtown district; thus we would suggest: e. Make special studies of the small triangles and wedges at the junctions of principal streets to make the most of them practically and aesthetically. XI. ARCHITECTURE. XI. C. Street Poles — Lighting — Signs — Kiosks — Comfort Sta- tions. The street vistas make the city now appear like a country village. Care and uniformity in design would give the city vastly more dignity. CITY PLAN COMMISSION, JERSEY CITY, N. J. 53 Everywhere the streets are cluttered up with poles and wires of various sorts which give a very scrappy appearance to the city. Even where the telegraph and telephone poles have been removed the trolley poles are quite unpleasant. The public service corporations should be required to put far more than one mile of wires underground per year. At that rate the city will never catch up until several hundred years hence. In cities where adequate and beautiful lighting has been installed on principal streets, it has been found to be a decided boon to the whole community. The lack of control over street signs gives a most tawdry appearance to the streets. In a city the size of Jersey City, street shelters and public comfort stations are a necessity. We recommend therefore: a. Take photographs of the street architecture of the principal thoroughfares and consider schemes for inducing property owners to improve the appearance of their facades. b. Study methods of removing all poles from principal thoroughfares of the city, the possibility of underground tunnels and the possibility of attaching trolley cross wires directly to abutting buildings on either side of the street. c. Make studies for improvement of the lighting sys- tem throughout the city and in particular for the better lighting, and even for a brilliant lighting of the principal business streets. d. Take photographs of all viaducts and approaches, study possibilities of eliminating some of these and make designs for the improvement of such as must exist. e. Make studies for drinking fountains, U. S. Weather Bureau, kiosk and clock at intersection of Jersey and Newark Avenues. f. Study methods of bettering street advertising. See "Laws XII.," pp. 54-56. g. Study the use and design of street shelters and public comfort stations in other cities and consider sites for their use in Jersey City. As to order of urgency, we would suggest, first, Nos. b, c and d C; then No. f C; then Nbs. c and f A; then Nos. c B and 54 SUGGESTED PLAN OF PROCEDURE FOK g C; then Nos. a, b and c B; then Nos. a, b, c and d A; then, finally, Nos. a and e C. XII. LAWS. XII. A. City Planning — Administration. Present Laws Antiquated (1) : It is evident to one traveling about Jersey City that the city authorities are decidedly hampered in the exercise of their duties by laws and ordinances which were passed to meet conditions far different from those existing at present. Furthermore, in order to efficiently exercise their functions, the city authorities should have powers along many lines beyond those which they now have. In far too many cases the individual can prevent the city from doing that which is most obviously to the general public good. Individual vs. Community Liberty (2) : Despite the fact that the American sentiment demands that the liberty of the individual citizens should be preserved, it is obvious that when the greatest good of the greatest number calls imperatively for the waiving of rights on the part of the individ- ual, this so-called liberty may amount to license. We are far too prone to make this individual liberty a fetish here in America to the extent of inconveniencing thousands of people daily rather than interfere with these individual rights. Within the past few decades the social conscience has grown so enormously that this cry for individual liberty has come to be recognized as a sign of old-foginess. What every city needs to-day is a thorough, conscientious overhauling of all her laws where this principle comes in. Until such is done, and done intelligently, cities will continue to be backward and inefficient. Recommendations (3) : We therefore recommend: a. Plot on a map all streets which are owned in fee by the municipality and those which are easement streets, show- ing character of the latter. CITY PLAN COMMISSION, JERSEY CITY, N. J. 55 b. Study methods in use in different cities, whereby streets may be laid down, extended or widened, and the individual can be forced to conform to these lines. c. Study the laws regulating encroachments on the streets or parks and propose ordinances to force the removal of encroachments for certain principal streets. d. Ascertain whether or no under New Jersey laws and Jersey City ordinances, owners can be forced to maintain and repair sidewalks. e. Investigate ordinances with regard to storage of building materials on the pavement and propose new ordinances which will restrict the present absurd usurping of the whole roadway by an abutting builder. With regard to the relations of the city to the public service companies, we recommend: f. Ascertain whether authorities can force removal of unused tracks in the streets, and if not, institute legislation to effect same. g. Investigate franchises of all trackage and see how legislation can be changed in order to give the city more advantage. h. Investigate whether the city can condemn property for a road across, over or under railway tracks and under what conditions, and see if legislation can be obtained to improve these conditions from the city's standpoint. From the administrative standpoint, we would suggest the following: i. Investigate in Jersey City and compare with other cities, the relationship between the different departments that have to do with city planning matters, with a view to increasing efficiency and avoiding the waste now due to overlapping and duplication. XII. LAWS. XII. B. Housing — Sanitary and Building Laws. The housing problem in Jersey City is most serious. The Tenement Law, while admirable at the time it was passed, is, in light of recent experience, capable of much improvement. As the Tenement Law deals only with habitations for three families or over, the great majority of dwellings are reached only 56 SUGGESTED PLAN OF PBOCEDUBE FOE by the building and sanitary codes. From a constructional stand- point they are reasonably good, from a sanitary standpoint they are only fair, and from a social standpoint they are decidedly bad. We therefore recommend: a. Make a thorough revision of present building, sani- tary and tenement laws in so far as they affect Jersey City housing, and propose new legislation. b. Consider the practicability of regulating the height of buildings, particularly along the main streets of the city. c. Study present fire limits and the advisability of extending same. XII. LAWS. XII. C. Billboards — Smoke Abatement. There seems to be no billboard regulation whatever in Jersey City and each advertiser follows his own sweet will regardless of the fact that he is presenting eye-sores everywhere throughout the city, and spoiling the beauty of the streets. The smoke problem is a very critical one in your city, par- ticularly in the downtown district near the railway yards. The smoke of Jersey City is not only a menace to the city itself, but the prevailing winds in summer blow it across lower Manhattan so that it hangs like a pall over the city. But New York does not retaliate, for despite the fact that it has many times as many factories it sends no smoke over Jersey City. Along these lines we recommend: a. Investigate limits to which advertising signs may be hung out over streets, the height to which they may be built, the character of their construction — all with a view to pro- posing legislation to further restrain them. b. Consider legislation to prevent the placing of adver- tising signs on the boulevards and about the parks. c. Make a special smoke survey during different hours of the day with proper photographic observations of both factories and railroad locomotives. d. Examine laws for smoke prevention with regard to factories and the ordinances in regard to the use of hard coal on locomotives. Propose legislation to restrict these as has been done, for example, in New York City. CITY PLAN CQMMISSlbN, JERSEY CITY, N. J. 57 e. Consider the practicability of districting the city so that the factories will not be allowed to locate in residence districts. As to order of urgency, we would suggest, first, Nos. a, b and cA; then Nos. a, b and cB; then Nos. f, g and hA; then Nos. c, d and e C; then Nos. d and e A; then Nos. a and b C; then No. i A. XIII. FINANCING. XIII. A. Methods of Paying for Improvements. Lack of Efficiency (1) : Jersey City gives very strongly the impression that nowhere nearly as much money is spent there on public improvements, aside from schools, as in most cities of its size, and yet the tax rate is comparatively high and assessed valuations correspond. This leads one to believe that there is a lack of efficiency in the handling of city funds and that the method of paying for improvements is not good. No city that is alive and progressive can afford to be penny wise, pound foolish. Everything that is worth while is worth paying for, provided the amount that is paid can be justified on economic and social grounds. Different cities in America and in Europe have different methods of paying for improvements. Experience is proving, here, that certain methods are the best for a certain type of com- munity. There are ways of paying for improvements which do not bring too heavy a burden on the tax payer. Assessments (2) : The financing of all improvements is one of the most trouble- some problems involved in city betterment work. Each type of problem in general requires a different method of financing. With regard to pavements, for example, it is understood that at the present time a large part of the cost of repaving is paid by the adjoining property owner, who consequently has much to say with regard to the type of pavement which is to be installed in front of his premises. This latter item has evidently proved an embarrassment in Jersey City, as it has done similarly in other communities, because of the existence of short stretches of several 58 SUGGESTED PLAN OE PEOCEDTTEE FOE kinds of pavement in what should be a consistent continuous thoroughfare with a single type of pavement throughout its full length. Were a consistent paving program to be devised (such, for example, as was lately laid out for the City of Cambridge, Mass., by a special board of engineers) which should include the whole city, and were the cost to be generally assessed in a yearly tax levy, it is believed that the general conditions would be greatly improved. The matter of betterments to sewers which benefit a clearly defined district, can best be carried by direct assessment. Benefits derived from street openings or widenings should, in general, be distributed over areas of benefit proportionate to the benefit derived, such areas being made to include zones of differ- ent sizes from the immediate frontage of the improvement through varying areas, the largest one perhaps to include the whole city. Assessment Zones (3) : An act providing for assessment in zones such as that above described, and the collection of assessments in partial yearly payments is to be found in the Gerhart Bill lately passed in New York, with special reference to New York City. Special rules have been suggested from time to time for the opening of new streets, the latest, and probably the best, being that suggested by Nelson P. Lewis, before the Third National City Planning Con- ference, held at Boston last year. In connection with street widenings, a change in the constitution of the State may be neces- sary in order to provide means for a progressive setting back of structures as fast as they are rebuilt, due to natural causes, the city acquiring the real estate thus set free at the time when the improvement is made to the adjoining property. This is the condition found in the State of Pennsylvania at the present time and throughout England, the Liverpool Act being specially commended for study. Recommendations (4) We would therefore recommend : a. Make tables showing percentage of tax rates, the tax per capita, the relation of assessed values to real values for several years past. CITY PLAN COMMISSION JERSEY CITY, N. J. 59 b. Make tables showing in detail the budgets of the different departments in Jersey City, particularly those which have something to do with city planning matters, and compare them with the proportions and the amounts of other active and successful cities in America. c. Secure all data with regard to methods of paying for improvements now operative in Jersey City and investigate what other methods are usable under the present State laws. d. Make a financial statement of assessing betterments on abutters according to New York City principles in typical improvements in Jersey City, and study practicability of same. e. Do the same for excess condemnation and compare with above. These two are suggested with a view to the formulating of legislation even to the extent of amending the present constitu- tion so that the more desirable of these methods may be used. f . Investigate how the city may secure a revenue from bridges or pipes over streets. g. Study in how far abutters may be required to pay for the relaying and repairing of sidewalks. h. Study in how far public service corporations may be required to pay for the paving of streets. i. Ascertain methods of financing repaving with a view to suggesting a schedule of repaving. j. Study different systems of taxation, including Sommer's system, with a view to application in Jersey City. k. Study possibilities of municipal ownership of public utilities of various sorts, in particular revenue returning utilities such as docks, street lighting, etc., in view of the experience in other cities. 1. Study possibilities of use of unearned increment tax in Jersey City. m. Study sources of possible additional revenue for Jersey City, as has been done of late for New York City. As to order of urgency, we would suggest, first, No. c; then Nos. i, g and h; then Nos. a and b; then No. f ; then No. j ; and then Nos. d, e, k, 1 and m. 60 SUGGESTED PLAN OF PROCEDURE FOE XIV. CONCLUSIONS. XIV. A. Summary. In the foregoing report we have presented practically all of the phases of city planning; we have discussed the facts as they exist in Jersey City. We have presented the general possibilities of improvement and we have suggested, under each main head- ing, a program with order of urgency, for the study of these con- ditions. In general, we believe from our experience that the best way to conduct these studies is to organize a regular office force of several draughtsmen and investigators to take up these various problems according to the recommended order of urgency. These imply, too, the buying of draughting tables, the large scale insur- ance maps and such other materials as are necessary. The conduct of these investigations and counts implies the use of standardized tabulation forms as these admit of a great saving of time and money. But as no two problems are alike the carrying out of the work demands close supervision by men who have had experience along these lines. These experts must keep in mind constantly whether the particular thing that is being done is or is not worth relatively the amount of money .which is being spent upon it. They must apply efficiency principles to their own work, as well as to the city's development. XIV. CONCLUSIONS. XIV. B. Precedence. Matters of Public Interest (1) : In order to carry out the work most effectively it is necessary to determine first upon an order of urgency. A city plan com- mission is going to gain public support just in proportion as it pays attention first to those things which most vitally interest the public, and so the principle which determines the making of an order of urgency must be based upon this effect. In the first place, there are certain vital matters which affect public well-being which should be attacked before any- thing else. They refer particularly to sanitation. a. Unquestionably the first matter which should be undertaken is a complete investigation of and publishing of findings with regard to the sewerage disposal systems of Jersey City. ' CITY PLAN COMMISSION, JERSEY CITY, N. J. 61 b. The next most important thing is to clean up several areas which are particularly unsanitary. We refer to those along the canal back of Grand Street and to other areas in the older parts of the town. c. Study the possibility of and the elimination of possi- ble pollution in the watershed. d. The improvement of the garbage collection and dis- posal is the next most important matter. e. The matter of the system and method of street clean- ing should also be considered right away. These five items should be considered before any other matters. When it comes to the general plan of work, it is obvious that all of the things suggested are impossible of realization at once. However, in considering plans for the development of a city, it is absolutely essential that all phases should be considered together, otherwise certain important ones will not receive their due share of attention. Furthermore, by considering all phases at the same time they can be correlated, combined and made to play into one another in a way which is of mutual advantage to all. When we consider the various phases of life and activity in a city, we find that in general they may be resolved into those which have to do with the work or the play or the home-life of the citizens. The primary function of the city plan is to make this life as convenient, as safe and as enjoyable as possible. That being the case, it is obvious that the most important function of city planning is to provide the best means of communication between the place where a person lives and the place where he works, or between the place where he lives and the place where he recreates and then the improving of the places where he lives, works and recreates should be taken up in this order. The decorative features of the city, The City Beautiful, as so called, while important psychologically, in so far as it reacts on the individual to his own good and to enhance his enjoyment of his city, is not so vitally important as the previously mentioned features and therefore should be considered later. As to the methods of paying for improvements and the laws under which they can be put into effect, this should be considered along with their respective phases. 62 SUGGESTED PLAN OF PROCEDURE FOR We would therefore suggest after the five above mentioned items of immediate importance, the following order of urgency: Order or Urgency (2) : f . Day population and night population maps. g. Traffic and transit counts, h. Transit maps. i. Studies for street extension, widening and cutting through. j. Street surfaces. k. Re-routing, re-scheduling and extending street transit facilities. 1. Handling of freight and food supplies. m. Housing maps and surveys. n. Consideration of housing improvements. o. Recreation maps and surveys. p. Consideration of recreation extension and improve- ment. q. Development of the water front. r. Factory and warehouse improvement. s. Parks and boulevards. t. Street planting. m u. Architectural settings and street fixtures. v. Financing. w. Legislation. The two latter instead of being left to the end should be con- sidered along with the various other items. However, instead of finishing any one before going on to the next, we would suggest that after one was well under way, a start should be made on the next, and so on, so that eventually all would be under consideration at the same time. Of course, the amount that was done under any one or two of these heads would depend entirely on the amount of appropriation at the dis- posal of the commission. XIV. CONCLUSIONS. XIV. C. How to Get Results. None of the things above suggested should be carried out by the city unless they can be justified on the grounds of their CITY PLAN COMMISSION, JEHSEY CITY, N. J. 63 being good business or necessary for social well-being. City Fathers have a right to demand that every scheme which is pre- sented to them shall justify itself as a business or social proposi- tion, considered in the same general way that the business man would consider propositions with regard to his own affairs. Whatever is done must be done with this principle firmly in mind and it is the only way to get results. Once these investigations and studies have been made they should be given broad publicity. We feel very decidedly that the only way in which such publicity will really secure the attention of the people is by concentration on specific subjects of imme- diate interest. The experience of other cities has shown that general and abstract propaganda of city planning ideas does not move a community. Even after hammering away for years, the community is still apathetic and indifferent. It is only when the big, pertinent problems with regard to which every one is familiar are attacked with practical and bold constructive suggestions for their improvement that the mass of the public really wakes up, and so we are convinced that in the case of Jersey City the only way to really arouse the people is to present in a telling manner business-like common sense schemes for the solution of the most pressing problems. As to the best means of bringing these ideas to the people, all of the following should be employed: a. Brisk articles, not too long, should be released weekly to the newspapers and longer ones with illustrations should be prepared for certain Sunday issues. b. Lantern slides should be prepared from plans and photographs and should be presented with a short, crisp talk before all sorts of organizations, societies and clubs. c. Exhibitions of plans, photographs and tables should be constantly on view, with changes every month or of tener, in some place where the citizens can see them easily. A guide should be on hand to explain these exhibitions and a printed catalogue should be circulated in connection with them. d. Short booklets or folders should be issued periodically with reproductions of a few photographs or plans in each explaining in popular language some urgent phase of the work and these should be distributed broadcast. 64 SUGGESTED PLAN OF PROCEDURE FOE e. The members of the City Plan Commission should be ready at any time to appear before any organization and defend or explain their actions. f. Every public welfare organization in the city should be induced in every way to co-operate even to the extent of paying part of the cost of investigations along particular lines and they should be assigned specific tasks within their scope, in line with the work of the City Plan Commission. It is of the greatest importance in all this work that the members of the City Plan Commission keep their main object in view and preserve a sense of proportion; otherwise, they will fritter away their effectiveness on relatively unimportant details. Thus only can the City Plan Commission make good and secure the confidence and respect of the community. Respectfully submitted. As of November 30, 1912. To City Plan Commission, City of Jersey City, N. J. Issued May 1, 1918. * E. P. GOODRICH is Consulting Engineer of the Borough oi Manhattan and the Board of Esti- mate; is Graduate of the University of Michigan with advanced degree; was Civil Engineer in the U. S. Navy; was Chief Engineer of the Bush Terminal in Brooklyn; is Expert to the Harbor Commission of Los Angeles, California; City Plan Expert for the City Plan Commission of Newark, N. J.; Member of the American Society of Civil Engineers; American and International Societies of Testing Materials; National Association of Cement Users; Executive Committee of the National City Planning Conference. t GEORGE B. FORD is a member of the firm of Geo. B. Post & Sons, Architects, N. Y.; Columbia University Lecturer on City Planning; an A.B. Harvard College; M.S. Massachusetts Institute of Technology; Architecte Diplome par le Gouvernement Francais; Associate of American Institute of Architects ; Treasurer and member of Executive Committee of N. T. Chapter A.I.A. ; Secretary, Joint Board which is drawing up new Building Code for N. Y. City; Member of Executive Committee of National City Planning Conference; was U. S. Delegate to IX. International Housing Congress in Vienna in 1910; is Expert to City Plan Commission of Newark, N. J. ; Author of many articles on City Planning, Housing etc., Expert in charge to the N. Y. City Commission on Regulation of Height, Size, and Arrangement of Buildings. TABLE OF CONTENTS TO REPORT. PAGE. I. Introduction. 1. Appointment of Expert Advisors 3 2. Method of Work 5 3. Our Point of View 6 4. Recommendations 7 II. Streets. II. A. Widening — Extension — Encroachments. 1. Community Growth 8 2. Types of Street Users 8 3. Ideal Street System 9 4. Traffic Observations 10 5. Street Widths 10 6. Street Types 11 7. Street Widening and Extension 11 8. Loss Through Street Congestion and Delay. . 12 9. Recommendations 13 II. B. Surfacing — Grading — Draining. 1. Pavements 14 2. Conditions Determining Type 15 3. Paving Program 15 4. Street Grades 16 5. Curbs and Walks 17 6. Recommendations 17 III. Transportation of People. III. A. Street Transit — Re-routing — Re-scheduling. 1. Street Car System 19 2. Service Rendered 19 3. Zone Affected 20 4. Trolley Traffic Statistics 20 5. Franchises 21 6. Recommendations 22 III. B. Railways — Stations. 1. Railway Stations 23 2. Grade Crossings 23 a TABLE OF CONTENTS PAGE. 3. Ferries 23 4. Recommendations 24 IV. Transportation of Goods. IV. A. Railways — Terminals — Yards. 1. Freight Stations 24 2. Railway Yards 25 3. Recommendations 25 IV. B. Water — Canals — Water Front Development. 1. Water Front 26 2. Canal 27 3. Municipal Ownership of Water Front 27 4. Connecting Waterway Between New York and Newark Bays 28 5. Co-operation with Harbor Commission 29 6. Recommendations 29 V. Factories — Warehouses. 1. Rank as Factory City 31 2. Factory Districts 32 3. Segregation of Industries 32 4. Recommendations , 32 VI. Food Supply — Markets. 1. Food Routes 33 2. Markets 34 3. Recommendations 35 VII. Water Supply — Sanitation. VII. A. Water Supply. 1. Water System 35 2. Water Shed Pollution 35 3. Water Waste 36 4. Recommendations 36 VII. B. Sewage — Garbage Disposal. 1. Sewer System 37 2. Disposal Works 37 3. Garbage 37 4. Recommendations 3g b TABLE OF CONTENTS PAGE. VII. C. Street Cleaning. 1. Street Cleaning 39 2. Efficiency Basis for Street Cleaning Dept 39 3. Recommendations 39 VIII. Housing. VIII. A. Old Districts — Tenements — Sanitation. 1. House Types 40 2. Congestion 40 3. Procedure 41 4. Recommendations 41 VIII. B. New Districts — Subdivision — Dwellings. 1. Model Housing Tracts 42 2. Recommendations 42 IX. Recusation. IX. A. Playgrounds — School Yards — Park . Use — Pier Use. 1. Playgrounds 43 2. Street Play and Crime 43 3. Playground Equipment 44 4. Recommendations 44 IX. B. Commercialized Amusements — Social Centers. 1. Theatres, Dance Halls 46 2. Recommendations 46 X. Parks — Boulevards — Street Planting. 1. Divided Jurisdiction 47 2. Parks 47 3. Water Front Parks 48 4. Planting 48 5. Recommendations 48 XI. Architecture. XI. A. Public Buildings — Groupings. 1. Architecturally Poor 50 2. Public Buildings 50 3. Civic Sub-centers 50 4. Gates to the City 50 5. Recommendations 51 c TABLE OF CONTENTS PAGE. XI. B. Civic Decorations — Statues — Fountains — Bridges, Etc 52 XI. C. Street Poles — Lighting — Signs — Kiosks — Comfort Stations 52 XII. Laws. XII. A. City Planning — Administration. 1. Present Laws Antiquated 54 2. Individual vs. Community Liberty 54 3. Recommendations 54 XII. B. Housing — Sanitary — Building Laws 55 XII. C. Bill-boards — Smoke Abatement 56 XIII. Financing. XIII. A. Methods of Paying for Improvements. 1. Lack of Efficiency 57 2. Assessments 57 3. Assessment Zones 58 4. Recommendations 58 XIV. Conclusions. XIV. A. Summary 60 XIV. B. Precedence r . . 60 1. Matters of Public Interest 60 2. Order of Urgency 62 XIV. C. How to Get Results 62 Alphabetical Index 65 ALPHABETICAL INDEX TO REPORT. PARAGRAPH. PAGE. Abatement of Smoke Laws XII. C. 56 Administration Laws XII. A. 54 Advertising Signs XI. C. 52 Antiquated Laws XII. A. 1 54 Appointment of Experts I. 1 3 Architecturally Poor is Jersey City XI. A. 1 50 Architecture XI. 50 Assessments XIII. 2 57 Assessment Zones XIII. 3 58 Bill-board Laws XII. C. 56 Boulevards, Parks, Street Planting X. 47 Bridges XL B. 52 Building Laws XII. B. 55 Canal IV. B. 2 27 Canals IV. B. 26 Car System on Streets ' III. A. 1 19 City Planning Laws XII. A. 54 Civic Decoration XL B. 52 Civic Sub-centers XL A. 3 50 Comfort Stations XL C. 52 Commercialized Amusements and Social Centers IX. B. 46 Community Growth II. A. 1 8 Community vs. Individual Liberty XII. A. 2 54 Conclusions XIV. 62 Congestion and Delay on Streets, Loss from II. A. 8 12 Congestion of Population VIII. A. 2 40 Connecting Waterways between New York and Newark Bays IV. B. 4 28 Co-operation with Harbor Commission. . IV- B. 5 29 Crime and Street Play IX. A. 2 43 Curbs and Walks II. B. 5 17 Dance Halls, Theatres IX. B. 1 46 Delay and Congestion on Streets, Loss from II. A. 8 12 Disposal Works for Sewer System VI. B. 2 39 Districts, Factory V. 2. 32 a ALPHABETICAL INDEX PARAGRAPH. PAGE. Drainage of Streets II. B. 14 Dwellings VIII. B. 42 Efficiency Basis for Street Cleaning De- partment VII. C. 2 39 Efficiency, Lack of, in Making Improve- ments XIII. 1 57 Encroachments on Streets II. A. 8 Equipment for Playgrounds IX. A. 3 44 Experts, Appointment of I. 1 3 Methods of Work of I. 2 5 Point of View of I. 3 6 Extension and Widening of Streets .... II. A. 8 Factories and Warehouses V- 31 Factory City, Rank of Jersey City as ... V. 1 31 Factory Districts V. 2 32 Ferries III. B. 3 23 Financing — Paying for Improvements . . XIII. 57 Food Routes : VI. 1 33 Food Supply — Markets VI. 33 Fountains XI. B. 52 Franchises, Street Car III. A. 5 . 21 Freight Stations IV. A. 1 24 Garbage VI. B. 3 37 Garbage Disposal and Sewage VI. B. 37 Gates to the City XI. A. 4 50 Grade Crossings III. B. 2 23 Grades of Streets II. B. 4 16 Grading, Surfacing and Draining Streets II. B. 14 Grouping of Public Buildings XI. A. 50 Growth of Community II. A. 1 8 Harbor Commission, Co-operation with. . IV. B. 5 29 House Types VIII. A. 1 40 Housing VIII. 40 Housing Laws XII. B. 55 Ideal Street System II. A. 3 9 Improvements, Methods of Paying for . . XIII. 57 Individual vs. Community Liberty XII. A. 2 54 Industries, Segregation of V. 3 82 b ALPHABETICAL INDEX PARAGRAPH. PAGE. Jurisdiction, Divided, Regarding Parks. X. 1 47 Kiosks XI. C. 52 Land Subdivision in New Districts VIII. B. 42 Laws XII. 54 Laws, Antiquated XII. A. 1 54 Lighting XL C. 52 Loss through Street Congestion and Delay II. A. 8 12 Markets . . . , VI. 2 34 Markets — Food Supply VI. 33 Matters of Public Interest XIV. B. 1 60 Method of Work of Experts I. 2 5 Model Housing Tracts VIII. B. 1 42 Municipal Ownership of Water Front. . IV. B. 3 27 New Districts — Subdivision Dwellings . . VIII. B. 42 New York and Newark Bays, Waterway Connecting IV. B. 4 28 Old Districts — Tenements — Sanitation . . VIII. A. 40 Order of Urgency XIV. B. 2 62 Parks X. 2 47 Parks, Boulevards, Street Planting X. 47 Parks, Water Front X. 3 48 Park Use of Playgrounds IX. B. 43 Pavements II. B. 1 14 Pavements, Conditions Determining Type II. B. 2 15 Paving Program II. B. 3 15 Paying for Improvement XIII. 57 People, Transportation of III. 19 Pier Use for Playgrounds IX. A. 43 Planting X. 4 48 Playground Equipment IX. A. 3 44 Playgrounds IX. A. 43 Play in Streets and Crime IX. A. 2 48 Point of View of Experts I. 3 6 Pollution of Water Shed VI. A. 2 35 Procedure for Housing Study VIII. A. 2 41 Procedure, General, Recommended XIV- B. 60 Program of Paving II. B. 3 15 Public Buildings XL A. 2 50 Public Buildings and Grouping XL A. 50 Public Interest, Matters of XIV- B. 1 60 ALPHABETICAL INDEX PARAGRAPH. PAGE. Railways — Stations III. B. 23 Railway Stations III. B. 1 23 Railway Terminals and Yards IV. A. 24 Railway Yards IV. A. 2 25 Rank of Jersey City as Factory City .... V. 1 31 Recommendations — Architecture, Public Buildings and Grouping XI. A. 5 51 Recommendations — Canals and Water Front IV. B. 6 29 Recommendations — Factories and Ware- houses V- 4 32 Recommendations — Financing, Paying! for Improvements XIII. 4 58 Recommendations — Food Supply Mar- kets VI. 3 35 Recommendations — General I. 4 7 Recommendations — Housing, New Dis- tricts—Dwellings VIII. B. 2 42 Recommendations — Housing, Old Dis- tricts — Tenements VIII. A. 4 41 Recommendations — Laws Regarding City Planning XII. A. 3 # 54 Recommendations — Parks, Boulevards, Street Planting X. 5 48 Recommendations — Railway Stations .. . III. B. 4 24 Recommendations — Railway Terminals and Yards IV. A. 3 25 Recommendations — Recreation Commer- cialized IX. B. 2 46 Recommendations — Recreation, Play- grounds IX. A. 4 44 Recommendations — Sewage and Garbage Disposal VII. B. 4 38 Recommendations — Street Car Systems. III. A. 6 22 Recommendations — Street Cleaning .... VII. C. 3 39 Recommendations — Streets, Surfacing, Grading, Drainage II. B. 6 17 Recommendations — Street Transit III. A. 6 22 Recommendations — Streets, Widening and Extensions, Encroachments. ... II. A. 9 13 d ALPHABETICAL, INDEX PABAGRAPH. PAGE. Recommendations — Water Supply VII. A. 4 36 Recreation IX. 43 Re-routing and Re-scheduling of Transit . III. A. 19 Re-scheduling and Re-routing of Transit . III. A. 19 Results, How to Get XIV. C. 62 Sanitary Laws XII. B. 55 Sanitation and Water Supply VII. 35 Sanitation, Old Districts, Tenements .... VIII. A. 40 School Yard Playgrounds IX. A. 43 Segregation of Industries V- 3 32 Service Reduced by Street Cars III. A. 2 19 Sewage and Garbage Disposal VI. B. 37 Sewer System VI. B. 1 37 Signs XI. C. 52 Smoke Abatement Laws XII. C. 56 Social Centers and Commercialized Amusements IX. B. 46 Statues XI. B. 52 Stations of Railways III. B. 23 Stations of Railways III. B. 1 23 Street Car Franchises III. A. 5 21 Street Car System III. A. 1 19 Street Cleaning VII. C. 39 Street Cleaning VII. C. 1 39 Street Cleaning Department, Efficiency Basis for VII. C. 2 39 Street Grades II. B. 4 16 Street Planting X. 47 Street Play and Crime IX. A. 2 43 Street Poles XI. C. 52 Streets II. 8 Streets, Surfacing, Grading and Draining II. B. 14 Street System, Ideal II. A. 3 9 Streets, Widening and Extension, En- croachments II. A. 8 Streets, Widening and Extension, En- croachments II. A. 7 11 Street Transit, Re-routing and Re- scheduling III. A. 19 Street Types II. A. 6 11 ALPHABETICAL INDEX PARAGRAPH. PAGE. Street Users, Types of II. A. 2 8 Street Widths II. A. 5 10 Subdivision of Land in New Districts .. . VIII. B. 42 Summary of Report XIV. A. 60 Surfacing, Grading and Draining Streets VI. B. 14 Tenements — Old Districts — Sanitation. . VIII. A. 40 Terminals of Railways IV. A. 24 Theatres, Dance Halls IX. B. 1 46 Traffic Observations II. A. 4 10 Traffic Statistics on Trolleys III. A. 4 20 Transit, Street III. A. 19 Transportation of Goods IV. 24 Transportation of People III. 19 Trolley Traffic Statistics III. A. 4 20 Type of Pavement, Conditions Determin- ing II. B. 2 15 Types of Houses VIII. A. 1 40 Types of Streets. II. A. 6 11 Types of Street Users II. A. 2 8 Urgency, Order of XIV. B. 2 62 Users of Streets, Types II. A. 2 8 Walks and Curbs II. B. 5 • 17 Water — Canals, Water Front Develop- ment IV. B. 26 Water Front IV. B. 1 26 Water Front Development IV. B. 26 Water Front, Municipal Ownership of . . IV. B. 3 27 Waterfront Parks X. 3 48 Water Supply VII. 35 Water Supply and Sanitation VII. A. 35 Water System VII. A. 1 35 Water Waste VII. A. 3 36 Waterway Connecting New York and Newark Bays IV. B. 3a 28 Widening and Extension of Streets II. A. 8 Widening and Extension of Streets II. A. 7 n Widths of Streets II. A. 5 10 Yards of Railways IV. A. 2 25 Zone Affected by Street Cars III. A. 3 20 Zones of Amusement XIII. 3 58 f A/06 10 cW I NAC 6827 0m jl6G65 S,,y """» Re Wniiiiiii™ , i8l?i»?ii«!iiP lan °' procedure fo 3 1924 024 416 681