J UiJUUUUIIi JS6@SfflffiffiB0QD ]fnHWB0t]DnDnn Hi u [ZZIDD □ CDC rrtr=v.n? ■'*'■" !'t r—^ t 1 aaar ^ JOUA, CAUfOHNIA Srpnrt to IfjP ilagnr a«b ditg dnunril of the Olitg nf Buvmpavt, inma on City planning for iawnpnrt H, J. I.KMiVI, PRINTKR DAVENPORT, IOWA CITY OF DAVEiNPORT— 191G Mayor John Berwald City Clerk Hugo Moeller Aldermen At Large Wm. H. Gosch At Large Christ. D. Kuehl First Ward Julius Jehring Second Ward Wm. Moeller Third Ward Arthur Meyer Fourth Ward John Knostman Fifth Ward B. M. Raben Sixth Ward Chas. L. Lindhohu CITY OF DAVENPORT— 1918 Mayor CM. Littleton City Clerk Hugo Moeller Aldermen At Large John G. Wolters At Large E. R. McAdam First Ward George J. Peck Second Ward Walter Bracher Third Ward Hugo P. Eckmann Foui'th Ward Chris G. Dehrens Fifth Ward George White Sixth Ward A. E. Hallow Board of Public Works John W. Crowley Roscoe E. Sawistowsky John Heeney F. W. Friedholdt, Clerk CONTENTS. PAGE. City Officers 1916-1918 2 City Planning for Davenport 7 Population 8 Streets 12 Street Standards 16 Proposed Street Plan in the New Territory 18 Diagonal Streets 24 Traffic Way up Goose Hollow 24 Cost and Method of Procedure 26 Size of Lots 28 Limiting the Percentage of Lot to be Built Upon 32 Building Lines 32 Districting or Zoning 38 Subdivision of Land 40 Hickory Grove Road 44 Kirkwood Boulevard 44 Miller Avenue 50 Apportionment of Assessments for Street Openings 50 Excess Condemnation 54 Finance TS Transportation 60 The Grouping of Public Buildings 62 Bathing Beach 64 Another Bridge Needed 66 Parks and Playgrounds GG Appendix 73 ILLUSTRATIONS AND DRAWINGS. PAGE. Map Showing Growth of the City of Davenport 9 Population Curve and Tables 11 Original Plan of Washington, D. C 13 Recommended Street Widths 15 Old and New Street Plan Philadelphia 17 Map of the Older Part of London 19 Hillcrest Avenue, McClellan Heights 21 McClellan Boulevard 21 Radial Highways Leading into Davenport 23 Traffic Way from Eighth and Harrison to Division and Locust Streets 25 Unsightly Conditions Existing Where Houses are Faced on Alleys. 27 Map Showing Houses Located on an Alley 29 Plats Showing Percentage of Areas Built Upon 31 The Development of a 50 ft. Street Through the Establishment of Building Lines 33 The Development of a 60 ft. Street Through the Establishment of Building Lines 35 Recommendations for the Establishing of Building Lines on Streets of Various Widths 37 Map Showing Present Building Distribution 37 Residential Property Values Destroyed by the Disregard of the Natural Building Lines 39 Map of Portion of New York Showing Building Restrictions 41 Argument for Locating Sewer, Water and Gas Mains in Alleys. . . 43 Plan for Extension of Kirkwood Blvd., Brady to Harrison Streets. . 45 Views of Kirkwood and McClellan Boulevards 47 Street Section Kirkwood Blvd. and Proposed New Bridge 49 Plan for the Extension of Kirkwood Blvd. from Christie street to Jersey Ridge Road 51 Plan for Opening of Miller Ave. from High St. to Campbell Ave. . 53 Diagrams Showing Indebtedness of Cities in Iowa 59 Main Lines of Communication 61 Plan for Playgrounds and Bathing Beach on River Front 63 Wading Pool, Vander Veer Park 65 Map Showing Portion Unused by Parks and Playgrounds 67 Sunken Garden Fejervary Park 69 Plan for Park at Tenth and Sylvan Avenue 71 General City Plan Map Back THE NECESSITY OF CITY PLANNING. Good planning for cities and closely built towns and villages is not primarily a matter of aesthetics, but of econ- omics. The main object is to prevent or remedy the phys- ical and moral evils and losses which accompany congestion of population. To effect this object, it is necessary to pre- vent the corruption of the air the people breathe night and day, of the water they drink, and of the foods they eat; and to this end well-ventilated dwellings, shops and fac- tories, a pure and abundant water supply and a safe sewage disposal, and rapid ti'ansportation and prompt delivery foi foods are all indispensable. There must also be pi'ovided rapid transportation for passengers and all sorts of goods into and out of the city, else the population will not be spread over a sufficient area, and the industries v\-hich support the people will not be carried on advantageously. The laying out of most American cities has been casual and thoughtless of future needs. The common rectangular lay-out, without any well-considered diagonals, causes a great daily waste of human and animal labor and of fuel; while high buildings, narrow streets and lack of open spaces make it impossible to keep the cities well aired and v/ell sunned. To improve, or reform, the lay-out of most American cities is, therefore, a great public need, not only for beauty's sake, but for the sake of the health, efficiency and happi- ness of their people. — Charles W. Eliot. 6 CITY PLANNING FOR DAVENPORT Davenport, Iowa, Feb, 9, 1918. TO THE HONORABLE, THE MAYOR AND TIIE MEIVI- ' BERS OF THE CITY COUNCIL. Gentlemen : — On every hand we see the utmost effort at increased efficiency, the conservation of food, money, re- sources, time and labor. We are told that every saving we make in national resources and supplies will hasten the end of the war. It is, then, at a very opportune time that we take up City Planning in Davenport. "City Planning is City Conservation." Its chief func- tion is to see that there shall not be waste in the manner and the order in which our city shall develop, and those principles of orderly planning which will secure the maxi- mum of efficiency with a minimum expenditure of energy and the minimum of waste, are precisely the principles which at this time, of all times, we need to observe and put into action. On February 21, 1917, your Honorable Body passed the following resolution : "Resolved, By the City Council of the City of Daven- port, that the City Engineer prepare a Comprehensive Plan for the orderly development and extension of the street system of the City of Davenport, containing suggestions for the correction of mistakes where the present plan is considered defective, and recommendations for controlling the platting and development of tracts within and con- tiguous to the City Limits, minimum size of lots, limitation of number of houses to the acre, and establish building lines, residential, retail and manufacturing districts, and containing other matters pertinent to such plan, same to be submitted to the City Council for approval and adoption. "Resolved, That the City Engineer be authorized to hire any extra help that may be necessary in compiling this plan." As a result of my study, I have the honor to submit tiie following conclusions, recommendations and suggestions. Respectfully submitted, ROSCOE E. SAWISTOWSKY, City Engineer. CITY PLANNING FOR DAVENPORT. A City seeking- to incorporate that which is most essen- tial to its efficient, sightly and orderly growth, should have a comprehensive plan, for the development and the laying: out of such streets, public places and parks, as will l>est serve the health, safety and convenience of the people. City planning regulates the use of land, so that all land owners may enjoy adequate sun, light, air and convenience of access. City Planning is constructive — it pays because it saves the costly process of correcting mistakes. City Planning is the application of business principles to ilie growth of our Cities. No one would undertake a business enterprise, even of minor importance, without a thorough study of the problem, and plans for meeting the conditions successfully as they arise. But the building of a City, our most important enterprise, has generally been conducted in a spasmodic fashion, without preparation for change, or ex- pansion. The development of one section has generally been carried on independently of its relation to the City as a whole. Davenport was founded in 1839 — 79 years ago, which, for an individual, would not be considered a great age. But because Davenport has outlived the allotted life of man, — "three score years and ten" — it does not follow that as a City, it is near its end. It is only just, beginning to grow. During that short space of time, since Antoine LeClaire founded the City of Davenport on the Iowa shore of the Mississippi river, directly across from Rock Island, then a town of several thousand people, its growth has been steady and sure. Today, with a population of over 50,000 people, we have as yet no serious traffic congestion, no slums to eradi- cate and no serious problems of sanitation, 96 9r of the pop- ulation Ijeing provided A\ith sewage facilities. What parks 8 CITY PLANNING FOR DAVENPORT we have are excellent, but we need more small parks and playgrounds, located so as to be of easy access to all our population. Parks should be placed within one-half mile of every residence. This interesting subject is taken up later under ''Parks." The congestion of traffic on the Government Bridge de- mands the attention of your honorable body. The three cities, Davenport, Rock Island and Moline, situated as they are, with a frontage of several miles on either side of the Mississippi River, virtually one community, and with only one means of communication, a narrow bridge allowing only one line of traffic each way, presents an economic prob- lem. One slow-moving, horse-drawn vehicle can hold up thirty or more faster vehicles, at a great loss of time and money. With the increased activities on the Arsenal, sev- eral thousand more men are employed there. The conges- tion of traffic caused by the flow of this large number of men and vehicles going to and from work, delays other in- ter-city traffic 10 to 20 minutes each way POPULATION. The population of the City of Davenport at the present time is estimated at 51,044 (see illustration on Page 7) dis- tributed in the several wards as follows: POPULATION AND AREA TABLE. Area Approximate Estimated No. of ai'd Acres Per Cent Population People Inhabited 1918 Per Acre 1 1207 50% 6809 6 2 957 85% 8990 9 3 800 75% 9017 11 4 561 95% 8178 15 5 799 85% ■ 9475 12 6 1300 60% 8575 7 Totals 5625 51044 9 CITY PLANNING FOF DAVENPORT 10 CITY PLANNING OF DAVENPORT It is not to be supposed that this wonderful growth will cease. On the contrary, all indications point to a further development which will far excel the record of the past. It is safe to assume that in twenty-five years our population v/ill double. Streets that are now ample to take care of the traffic of a City of 50,000, will be wholly inadequate to care for a City of 100,000. Many streets will have to be wid- ened. More parks and playgrounds will be needed. Also rapid transportation, to enable the workman to reach his home in the suburbs quickly, which will be twice as far from the central district as at present. These, and many other problems will have to be solved. Many plans for Cities have miscarried and failed of accomplishment because of their impracticability. The first consideration in City Planning should be the economic, and then the aesthetic; not the reverse, as has been the case in many elaborate plans prepared for other Cities, wholly impossible of accomplishment, from the econ- omic standpoint. The first thought 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 and live in. The blocks, lots, streets, parks and water-front should be so designed as to save time and money to the property owner and citizen; to in- crease the convenience, comfort, speed and economy with which they can go from their homes to their places of busi- ness or recreation. The present day demand is one essentially to do with time. We must get from one place to another quickly, and to do this our way must be free from the encumbrance of congestion and excessive grades. If our forefathers had only had the wisdom to provide a certain number of radials from the heart of the town to the City Limits, our problem for the readjustment of our street system would have been a comparatively easy one. But consider now what it would cost to wipe out blocks of the most valuable property in CITY P[.ANNIN(i OF DAVENPORT 11 -nl •POPULATIO/i- AMP • ADEtA- •WADO- ADtA'ACBtS' APPROXmATt Pta-cfrxT OCCUPIt-0- •POPULAIIO/' E-STlAlATtD- •JAM 1.1916- POPULATIOH PtC ».CDt- ACTUAL AOtA- P0PULATIOA< PtD. ACCE- 1 1207 840 1650 1660 1670 1680 1890 1900 I-^IO 1^)20 1930 Year — 1 ' \94 to •l/SCBE-ASE-IMPOPUL ATlOAi- 1 •DAVEtAIPODT- IOWA- • CITYPLAAA-DE-POQT- • DoSCOtt" 5aWISTOWSKY- 1 •AiOV. 1917- CITY- e/MGIMC-t-B.- ' II 1 — t „_..,, 1 12 CITY PLANNING FOR DAVENPORT order to provide these radials! So let us very seriously consider the costly lesson of the past, and be almost ex- travagantly liberal in providing for what we feel will in the future become important lines of travel. There can be no doubt of the statement that Washington, being our only city of importance that v.-as built upon a comprehensive plan, is the only one with an adequate system of thorough- fares. George Washington, as a surveyor and civil engin- eer, recognized the value of proper planning for the Na- tional Capital, when he employed Major L'Enfant, a young French engineer, to prepare a plan. It is acknowledged to be the most admirable design, with its system of diagonal avenues radiating from small parks. The narrow street needs little comment. They are just as necessary from an economic standpoint as broad sti'cets. We cannot all afford homics fronting on boulevards, nor can we all have places for earning a living on a wide business street. But, on the other hand, we must try to design or rearrange our neighborhoods, whether residential or com- mercial, so that the narrow street will not receive more traffic than it is able to care for. Davenport has everything to gain by making itself at- tractive. 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 in them, through a pride of their City, a better citizenship and sense of responsibility for the care of the City. STREETS. The City's streets present a problem of the first magni- tude. How few realize that it is more than a passage-way, more than a common street where the children play, or through which the milk wagon drives. Few realize that a street system might be so poorly constructed as to abso- CITY PLANNING FOR DAVENPORT 13 /I^^DDCCDD "J I i r-||— It—^ □OODDCZlCqpOCIZICSC-^p/) >-^ y^<^i-^U'i_i\_ji iii\ II JULJ I"'- I iuui_ii_jLji_ji/ ■SbCOM0AR.NSTBE:fc7S- t^E•SlP^nTlA^.•STaE•fcTS• .^. 2Z -t-^ »ft (^ITV-PLAMM\/iQ»2I^ pAVtMPOa'T" RECOMMLNDEl) STREET W IDTUS. 16 CITY PLANNING FOR DAVENPORT STREET STANDARDS. Streets vary greatly as to the percentage of the total population using them, and can be classed under three heads : 1. Main Traffic Streets are streets which carry great numbers daily and hourly, to and from centers of business. 2. Secondary Thoroughfares are the ordinary business streets. 3. Residential Streets, both major and minor. No hard and fixed rule can be established as to the proper width of any one of them. Recommended widths for Davenport are as follows: Main Thoroughfares or Trafficvvays. Double street car tracks 20 feet 4 lines of vehicles, 2 on each side of tracks, 9 feet each 36 12 lines of pedestrians, 6 on either sidewalk, 2 feet each 24 Total 80 " Secondary Thoroughfares. Single car track 8 feet 4 lines of vehicles, 2 on either side of track @ 8 ft. gj^cn ^^ 8 ft. sidewalks and 2 ft. grass space on each side. .20 Total 60 - Residential Streets. (Minor). 3 lines of vehicles @ 8 f t 24 feet 13 ft. boulevard on each side, including sidewalks . . 26 Total 50 '' CITY PLANNING FOR DAVENPORT 17 iiiiiii a=iiiiiiiiHifiiiiiiiiiu=a===srHiiysB iiiiHi iiiiiiui5aiii==siniii====^fl=:_ =1 »lullllllllll======S==Um nU ^.iiSlllllHIHHI!====IU53Si===2 ^ iaaill=_llllllll!IIIH==ll»'JSilllil ==H=_ -,_ _ iiiin=£imHiiii!iiiii!'i;niiiiHiimiiHi ji_ . ua. iijjjJiiiiiiiimiiiiiiiinriiiiiiiir!!iiiiiiiiiij_jjjjjjjJ^_,. bngj^-— iiiHiHiii'fii ■ . ..'■■,;e'JJ3^flu|2JJ3AJJ □D'SzG'""^" ,j_1335nmjJJ.J !U^=JtJ5=J^^ ^.J^-T^^^sf^^ — -■^'=iH-T— 1-1— mnnm i Jeaaa JnaDan[:)paDaaj^__ijii-'^!jj-j_'-'j,Hjjj»=H=l={=|u==|=!nH inKs^syna3aD:2'_jaG3i":j5J'j'jjjJJjaq3ga333333 JO, Jen. _j£nci iaaaaana7z]aanG:D:]q3iiqqqqqH->^^=H- t nnnngiGaGazi, * 3uuuLjdiaDB*£innaaaai iJ|j3JJIL^1HIIIIJil==S!IIIHimii:i|lllllllllliy^''^==IU=i=«sS5u«!.L , 'aoj jjjj ni iii=»i====HiK'iniii!iiiin'i<==E'u==Hi'ssi^ ij 'Qajuujjj^i^^LnsssssiiiEiiii.JssriSnsssssEiJSSi'a.';- 'Daj:ZID J_J J_J^;3rl=====SII!lllli?ll=<:j:iiiii5_mmiiiiiiH==iin>:-'!ii=i;==iBs uaaDgiJJ3_iiiiiis!2Hmiimiiiiii'!:;iiiiiiiii:''iiiii i]Radaa::'iiiiiiiMiHi!iiiiiii>r( TO tafcCT HOUSE'S OH on -TMt atAR OF- U03S l« lltSlPfrMTlAV. StCTlOM TO ACCOA-IPAMV QePOClT TO THt /^ANOa AMP THE- tlTN COUMCIL QobcoEr t. Samistowsk>< Citv tnotncca 30 CITY PLANNING FOR DAVENPORT Where the lots are too long, the tendency is to erect houses on the rear of the lot, fronting- on the alley. We have only a few instances of this practice in Davenport, but as the property value increases, the property owner is tempted to increase his revenues by building on the rear of his lot. This, no doubt, v/ill become a serious problem here, as it has elsewhere. The buildings in the rear tend toward congestion and improper building conditions. The only remedy is to make the lots shorter, so that the amount of money invested in land and improvements will be less. There should be lots available for the workingman who cannot afford to buy a large lot to l)uild his cottage on. Plat on Page 29 shows several houses built on the rear of the lots in the block between Cedar and Howell, 3d and 4th Streets. The building of a cheaper class of dwellings on the alleys causes an unsanitary condition of affairs that is not only prejudicial to the physical, but to the moral healtli of localities in which it exists. The shortening of lots will no doubt have a tendency to widen them without unduly increasing the cost of the land. More streets for frontage, combined with fewer and narrower cross, or connecting, streets, would enable the land owner to do this without a burden on the purchaser, and we would have districts that would more nearly retain their value. Under present conditions, where a block has been built up, we invariably find the same uninviting passages which have a depressing effect on property values, as they impel Lhe residents to abandon their undesirable houses and move out into newer sections. This causes great economic wa.ste, it reduces the income of the property owner, and reduces the City's revenue from taxation, and svc soon h;Tve, if not a slum, at Idst a most uninviting section that is always retrogressing-. CITY PLANNING FOR DAVENPORT 31 •TvpicAL ■ e>us\nfcss • pistcict- •f-Oun.TH ■ ST.- SeCOMO 5T TVPICAL DtSlDtnTIAL- BLOCK- •Al/-(SUIOaTM ST • pLAT^. •SHOWI/iG ACEtAS built- UPOAT ■ IMTHt-BLOCKS IMTHC- BUSl/ltSS • St-CTlOrt APP [}0»\M A-lt- LV-aS-^ 0»--TMt LOTIS- BO I LT upon-. CJHILErlrl-IMfc-- •at a VDfc-MCt-- OISTtt\CTOMV.^ABO0TZO<^\6'»UlL-T- UPOM.- 32 CITY PLANNINC; FOR DAVENPORT Limiting the Percentage of Lot to Be Built Upon. The l^est method of regulating the above conditions would be to limit the percentage of the lot the residences are to cover, as is done elsewhere. New York has pi'ovided that in the residential sections no building shall cover more than thirty per cent of the lot from a point eighteen feet above the curb. On the lower level it may cover fifty per cent of the land with its porches and extensions; above that, only thirty per cent. The houses on a typical residence l)lock in Davenport, where lots are 45x150, cover approximately only 20% of the lot area. In our business district the buildings occupy an average of 95 per cent of the lot area, as shown on Page 31. Building Lines. We need a law enacted giving Davenport power to es- tablish building lines on streets. There are several thor- oughfares of importance in Davenport of inadequate width to carry the inevitable increase in traffic that will come in the near future. While it is undesirable and impracticable to widen such streets at the present time, it is highly im- portant to prevent the existing open space adjacent to the street from being oljstructcd by new l)uildings. The establishment of set-bnck lines, or building lines, as it is more commonly known, secures a uniform set-back of buildings from street lines. That is, the owner must locate his building a certain number of feet back from the street line. lie may use this front of his lot for any pur- pose he may wish, but he cannot ))uild upon it. Some of the advantages of establishing a building, or set-back line, are: In a private residence section a uniform set-back from the street line increases the attractiveness of the section and adds to the health and comfort of the inhabitants. It CITY PLANNING FOR DAVENPORT 33 PWtLLI AHGHOUat • STAGt- j---2o'-;-j;-aH — 2■^■-- •APARTntMl MOUSE: STAG Er- j-'>-J...,o:l5-r. ..30.-- • BUS I/HE-S5 -STAGt • TM^ PtVtLGPE-A1tAiT•FDGAl• A 50 -f^T QtSIPtAICEr ■ STDfrE-T- TG A 90-f-~(BUS\A^l'S3 ■ 5TC C- tT• U)^THGUT■tXP^A^St•-T0THL -CITY- F-GD- STCE-tTWlD t/MI/MG■THDOUCH• -y^^p.^STABLISWI/^G•OF- DUILPI/^G•Ll^^E-■ 34 CITY PLANNING FOR DAVENPORT improves light and air conditions ; makes possible the front lawn with trees and shade; removes the dwelling further from the noise, fumes and dust of the street. Where residences are uniformly set back from the street without the establishment of a legally binding building line, each owner is at the mercy of his neighbors. A vol- untary building line of this kind is often worse than no building line at all. A single owner, by disregarding the building line may ruin the entire block. It is important that the building line be established by ordinance. This may not be the same on every street, its distance from the street line depending on the character of the neighborhood, the depth of the lots and class of buildings. A study should be made of the ultimate probable class of buildings in each block or district. Blocks which are destined to be used for business should have no building line restrictions. Other blocks which are now residential, and where it is desirable to preserve the present uniform set-back, or building line, should be so established by ordinance. Local residence streets having a building line can be permitted a narrower width than could otherwise be al- lowed. This reduces development expenses, not only in its economy of land, but more markedly in the decreased out- lay for paving. With a 10-foot set-back, a standard 60-foot street might be reduced to 40 feet. This might be adequate for streets under 800 feet in length if developed with single family houses. If, later, the single family houses were replaced by three or four-story apartments, the street could easily be widened to 60 feet to meet the increased traffic requirements caused by the more intensive housing. Th existence of the building line will permit the eco- nomical widening of traffic arteries whenever traffic needs require. It introduces a measure of adaptation and elastic- ity in ^iirect de,yigi] that io of immense importance in view CITY PLANNING FOR DAVENPORT 35 •PwfrLLI/HG HOU5tST^Gt- =^7.^ APADTMe-MT- HGUS t STAG t • IM TT o o BOSIAitrSS STAGt- 2JJ- THfcPtV EtL GP£-/^b/iT-PDOM- ■A- 60-F-T- C ErSlPErMCfc STQE-tT- •TGA-lOO-f-lBUSlyMtSS- 5TDeE-T- •W ITHGUTErXP t/MSE- TGTHErClTY- •P0a-3TD.E-E-T- WlDt/HlMG- THBGUGH- •THt-E-STABLlSHIMGO?-BUILPIHGLIHt- 36 CITY PLANNING FOR DAVENPORT of the almost prohibitive expense of widening a street once laid out and improved. The establishing of the building line now is the only practical method by which the widening of many traffic ar- teries can be secured in the future when greater width vvill assuredly be required. These arteries are now i-esidence streets. When, however, traffic has so increased that the street must be widened, it is more than likely that the street v;ill no longer be desirable for private residence pur- poses and the private dwellings will be replaced either by apartments or by business buildings. For example: It is recognized that the ultimate widen- ing of Brady Street will be a necessity, from Eighth Street to the city limits. Brady Street is 80 feet wide up to Eighth Street, narrowing from 70 feet wide at the north side of Eighth Street, to 47 feet at Pleasant Street. The time is coming when the increased traffic will necessitate a wider street, and if buildings are permitted to be erected on the present street line, the cost of widening the street at that time will be well nigh prohibitive. Steps should be taken now to insure for the future the widening, at the least ex- pense, ])y establishing a building line of at least 20 feet, be- yond which no new Ijuildings should be allowed to extend. The few buildings that are now l)uilt out to the street line, when they are replaced or reconstructed in the future, . would also be required to be set back to the established building line. In this way, the expense to the City would be at a minimum and the widening made possible, whereas, if valuable and expensive buildings are allowed to be built fliish with the present street lines it would be prohibitive and practically impossible to widen the street. If there was an objection to a wholesale establishing of a building line all over the City, the property owners on a street, wishing to protect themselves, could bring in a peti- tion asking for the establishing of a building line on their street, and in that way the City government would not l)c I r' CITY PLANNING FOR DAVENPORT ■v^' .'^i \ ^ , S»-20- -B--13- — -2.'\ -.- li-ir- - -20- .| ;• SO-f-T -StnttT- •- 20-BU1LD1AK3 Ll/~ie- 4L ,-*----23--->---15- ---<»- 15 -"«• e S- -^sSl. &_ ■f'-'^ -2S----i^— 1S--r^.- 1S--,*.--^s— -^ 5 •e>0-^T• STRttT- ■25'BOILDIAHG LIAit- 31 DtCOAIMErHDATlGH- F-GQ.- fc STABLI SH IMG GF DUlLPIA1GGI2SE-TE>ACK-LI/ME-S-GAiSTDE-L-T3 •Gt^VAD.I0U3-U!»PTU3- (^ITV-PLA/iAil/IG •^a-"' pAVtnPOCLJ^ 38 CITY PLANNING FOR DAVENPORT taking away what might l)e considered by some as their rights and privileges. The council should estaV)lish a building line on the more important thoroughfares, regardless of the sentiment of the property owners, where it is necessary for the future widening of the street when tlie traffic so demands, or when it is deemed necessary to preserve the attractiveness of a street for the good of the City as a whole. A proposed law to be passed by the State Legislature, authorizing the establishment of l)uilding lines, is shown in the appendix. DISTRICTING OR ZONING. The advantages derived from a reasonable districting of the City are many. Every citizen of Davenport would gam in health, comfort and convenience, and have the perman- ency of his home protected, and, if his business or factory is located here, he can be more sure of the value of his property, if, as it is legally possible, by securing enactment of proper laws by the State Legislature, the City were ]-ea- sonably divided up into lestricted building districts. Prop- erty values would be conserved, and the City's revenue from taxation would not decrease in certain areas, as has been the case here in Davnport, where the property values in a residential section have been destroyed by the intrusion of business establishments. "Generally speaking, a building is appropriately located when it is in a section surrounded by buildings of similar type and use. The maximum land values and the maximum rentals are obtained where this segregation and uniformity are most complete." Reasonable districting is essential to the proper development of Davenport, and for the protec- tion of the property owners and citizens who have a right to demand thai; adeciuate light, area and occupancy regu- lations be imposed throughout the City. CITY PLANNING FOR DAVENPORT 39 Property \alues destroyed by the projection of a building bevond the natural hui'ding line. Residential i)r(ii)citv \ alues dc^tioycd by the cir K-;;ard ottiie natural building line in a block. 40 CITY PLANNING FOR DAVENPORT Berkeley, California, has recently passed a Districting Ordinance, creating a basis of classification by means of which the City of Berkeley may be divided into districts within some of which it shall be lawful, and within others of which it shall be unlawful to erect, construct or main- tain certain buildings, or to carry on certain trades or call- ings. There are twenty-seven different classifications of buildings and industrial districts defined. The last General Assembly of Iowa enacted a law giving cities of the third class authority to establish a restricted residence distjict upon petition of 60 9r of the property owners residing in said district. Advantage of this Act was taken ni Davenport recerjtly, when an Oil Company was contemplating erecting an automobile filling station on one of our main residence streets. Upon advice, the prop- erty owners petitioned that their street be established as a restricted I'esidence district. This was done much to the consternation of the Oil Company, At any time, if the growth of the City should demarid it for business purposes, the district, upon petition of 60% of the property owners, can have the restiictions set aside. A copy of the Act will be found in the Appendix. The ap- pendix also contains a copy of the Laws of New York au- thorizing the districting and zoning of cities. Subdivision of Land. The subdivision of land into streets and building lots presents the greatest problem of the subdivider. Certain principles must be followed to obtain the most desiraiDlo lots for building sites. The lightest grades for traffic, as well as directness are the essentials governing the street lay-outs. Subdividers are united in preferring lots with east and west fronts, in preference to north and south fronts. CITY PLANNING FOR DAVENPORT 41 ^T^h-^^ffi^ nrfnrifr irl| MAP OF PORTION OF NFAV YORK Sliowing Building Restrictions. 42 CITY PLANNING FOR DAVENPORT The g'leater number of streets should lead toward the heart of the City and not crossways. This big mistake was made in laying out New York. The greater numl^er of streets were run east and ^^est, assuming that the greatest ti'aflic would be from liver to river, whei'eas the opposite has happened, most of the traffic being north and south. Another important piinciple that should govern a street lay-out in hilly topography, is to run streets wherever pos- sible, at right angles to the contours of the land and not parallel with the contours. A street run parallel with the contours along the side of tiie hill, gives poor building' sites, one side being \^ay up in the air, and the other side con- siderably lower than the street. The most appropriate lay-out for streets is where they run at right angles to tiie contours of the land. The lots on each side will be approx- imately the same elevation, in reference to the street, and with a little leveling they provide very desirable building sites, each house being a little higher than its neighbor, and separated bj' terraces, as they go up the hill. In planning the location for the streets in the unplatted territory to be annexed, the foregoing has been kept in mind. The great majority of the lots will have east and west fronts. The north and south streets, leading towards town, are planned to be more +'iequent, as they will ))e the line of maximum travel, and the east and west streets, being spaced farther apart, not to exceed 660 feet, or eight blocks to the mile. Where possible, the streets running nortli and south have been spaced 16 to the mile, which will give a block standard of 270 feet by 600 feet, which, with a 20 foot alley through the center longitudinally, will give a lot depth of 125 feet, a very desirable depth for a lot. Existing streets and rough topography w^ere also con- trolling points, to a considerable extent, in planning tiie proposed lay-out for the streets in this unplatted section. CITY PLANNING FOR DAVENPORT 43 ARGUnt/^Tf-Oy^'LOCATI/IG St-UtR^- CJATtR- AMD•G^5•A1/\lA1<5■\n•THt•^L\-t^<5■ ■lA15TtAD Of-\AtTHt-6TRttT^- THEr P\STArtCt F-OOM THE- RtAQ Of- THt AVE-Q^Gt HOUSfc TO THt CtMTE-D LIMfc- Of^ ALLfcV l« THt BIG /iAJOCITV OF CA3Er3 Btl/iG SHOCTfe-Q THAM TO THt CtHTfc-n HMEr OF STDttT. THt COST OFCOrlMErCTIOrt WOULD THE-OtFORtr Bt COAISID&B- ABU^ L t S 3 . KH^&^ 5eu)E-a-^ ^""-/ •stwm I ■^vtn^Gt LccATto noust ■0/1 A LOT IZO-f^T OtC P c > TV e/Hdi/itm's o^nct 44 CITY PLANNING FOR DAVENPORT Hickory Grove Road. This street should be widened to 100 feet and parked with a boulevard in the center, similar to Kirkwood Boule- vard, +jom Duck Creek to Locust Street, to connect with proposed Traltlc Way, running through Goose Hollow to 8th and Harrison Streets. Kirkwood Boulevard. Kirkwood Boulevard comes to an abrupt ending- at Brady Street. This should be extended straight through to con- nect with Sixteenth Street, west of Harrison Street. (See illustration on Page 45. If the City had the power of excess condemnation this project would be perfectly feasi})le as well as profital^le for the City of Davenport. Under our present statutes, the improvement would cost the City thousands of dollars, whereas if we had the proper laws, the City would have the power to obtain possession of all the property for one-half block either way, at the present value of the property. They could then proceed to make the improvement, move the houses around to front on the new boulevard, and sell them at a greatly enhanced value, due to the extension ot the boulevard. This w^ould then give a direct drive through what would be a high-class residential section, from Mar- quette Street to Fulton Avenue and Jersey Ridge Road, a distance of 21/^ miles. In the improvement of Kirkwood Boulevard, the oppor- tunity for obtaining one of the finest drives in this City is presented. Kirkwood Boulevard, as now laid out, extends from Bradj^ Street to Jersey Ridge Road, a distance of 8,0B0 feet, or 1 7-10 miles. Less than one-half of this street is im- proved. The portion from Bridge Avenue to Jersey Ridge Road, a distance of 4,600 feet, is unimproved. From Brady CITY PLANNINCJ FOR DAVENPORT 45 •J, 9 iS J.S -H«: Aavti«a l^ fi O. r^ H, U So lO' O o 7- O ^ O Q. y V) O rv tt S S 5 Kiivn NosiaavM 46 CITY PLANNING FOR DAVENPORT Street to Bridge Avenue, Kirkwood Boulevard is 100 feet wide from property line to property line. The parking- in the center of the street is 20 feet wide, with a strip of brick paving- 20 feet wide on either side, leaving a distance of 20 feet from curb line to property line. The sidewalks are located two feet from the property line, leaving- a wide boulevard for planting between the walk and curb. It is proposed that the same section (See illustration on Page 49), as now constructed, be extended through to Jersey Ridge Road. This will necessitate widening- Kirk- wood Boulevard, which is now platted, 80 feet wide from Bridge Avenue to Eastern Avenue, by acquiring- approxi- mately 10 feet on either side to make it a width of 100 feet. At all angles, curves of ample proportion should be used. It is understood that the property owners on both sides are willing to deed the City this 10-foot strip, or whatever is necessary on either side, to properly widen the boulevard to 100 feet. Parcels shaded should be ac- quired by the City as soon as possible, before costly im- provements are made, and before the land increases in value. To bring this street to g-rade ready for paving wiil require, approximately, 62,200 cubic yards of filling-. The estimated cost of paving Kirkwood Boulevard Is $59,166.30, to be either assessed according to our present method of distributing the cost over abutting property and non-abutting property not exceeding 300 feet, or by creat- ing- a special improvement district to cover an area extend- ing from Fulton Avenue to Locust Street. In Des Moines recently, the Courts upheld the action of the City in estab- lishing an assessment district for the opening of a new- boulevard similar to Kirkwood Boulevard. CITY PLANNING FOR DAVENPORT 47 fWK^ w li^ tfi^. J " ^'-"^ ' ri Wr^ r:^:^:i:^-'^ \'., - ' .' 1 tAik W'^'^- ■Wm:^:^-l '^* r#^ '. ■, ^ t ' ,' :-. .C >: ^'■' ' ~ 1 ^^-'-'■'i - ^ .M^ ^^i.'^'^StS ^'' --%ii ' ■ ' ■J'-'k m ^ ; ONE OF THE RESIDENCE STREETS — 1vIRK:\\(}OD BL\ D. BOULEVARD IN McCLEF.LAN Ill'-ICHTS 48 CITY PLANNING FOR DAVENPORT RECAPITULATION COST TO CITY. 62,200 cubic yards filling- @ 30c $18,660.00 Acquiring- property by condemnation between Christie St. and Jersey Ridge road 13,270.00 Cement sidewalk intersections 432.00 Total cost to City $32,362.00 Cost to Property Owners. Paving $59,166.30 Planting trees, etc 1,000.00 Sidewalks 4,800.00 Total cost to property owners 64,966.30 Total cost of impi'ovement 97,328.30 At present, the Chicago, Milwaukee & St. Paul Railroad crosses Kirkwood Boulevard with a wooden trestle 96 feet long. The proposed grade for Kirkwood Boulevard will al- low ample clearance below the present railroad grade, which will not need to be disturbed. Illustration on page 49 shows a suggested treatment of the proposed fifty foot girder spans as flat concrete arches. When the time comes, the City should require that the de- sign and length of spans should be essentially as shown on plan. A series of shorter spans would greatly obstruct the view aiound the curve which starts on the east side of the railroad. Illustration on page 47 shows the proposed location of Kirkwood Boulevard from Christie Street to Jersey Ridge Road and the properties to be condemned. The Assessor's assessed values of the properties abut- ting along the proposed improvement of Kirkwood Boule- vard show a total of $120,160 present assessed value, from Vv'hich the City receives taxes on fifty per cent, which would be, approximately, $1,200.00 per year taxes. A conserve- CITY PLANNING FOR DAXENI'ORT 44 ^z'Z'z'^ 1-, 2 0' CQ05S-StCT10r\ KICKWOOD B'L'V'P AS now consTRucTto fqom BRADV ST. "TO BQIDGt AVt. THIS SAnt SfcCTIOM TO Bt COMTIMUfcO TO JfrttSe^ DlPafcU'P PQoposE-0 new Bcipct ov^a KICIKWOOP B'L'VP To Bt BUILT B^ t«t C. M. 4 3T P. R.Q. SCALfrl'. 16' rtBzi.i^ie, 50 CITY PLANNING FOR DAVENPORT tive estimate of the enhanced value of these properties after improvement would mean an additional revenue to the City in taxes of not less than $6,000.00, and this per- tains only to the enhanced value of property aljutting, whereas such an improvement would enhance value of ail property, more or less, confined within the area from Fulton Avenue on the south, to Locust Street on the north; from Bridge Avenue on the west to Jersey Ridge Road on the east. It is reasonable to assume that within a period of not to exceed ten years, properties within said area would be improved and developed and would increase in value bO that the City should be receivmg in revenue $10,000 per year in taxes. As shown in report, the approximate cost to the City for improvement outlined is, approximately, $32,000, and by investment of this amount as shown by report, the City, by receiving the increased revenue derived from such im- provement would be reimbursed for same in a short period of years, as well as the l^eautifying and improving of a lai'ge area of territory. Miller Avenue. This street opening from High to Henry Streets is badly needed in this section, and since the property is not built up and only one small house in the road, tiie cost to the City would not be large at this time, whereas such might not be the case aftei- buildings are built along the land to be taken. Apportionment of Assessments for Street Openings. The proportion (»i' cost in any street widening or exten- sion, which should be borne by the City and by the prop- CITY PLANNING FOR DAVENPORT 51 52 CITY PLANNING FOR DAVENPORT erty owners, differs according to individual improvements. The following is from a paper by Nelson P. Lewis, chief en- gineer of the Board of Estimate and Apportionment of New York City. "We must determine to what extent the benefit will be strictly local, m what degree it will extend to a larger trib- utary^ area, and again, how much it will mean to the entire city or metropolitan district. In the case of residential stieets, the puipose of which is to give light, air and access to the developments located upon them, the benefit will be entirely local, and the entire cost can properly be imposed upon the abutting property. When a highway is given a more generous width in the expectation that it will be called upon to accommodate a certam amount of through traffic, the l:)enefit is more extended and the assessment in such a case may be prolonged to a line midway between it and the next street or more than residential width. The major part of the cost, however, should be confined to the abut- ting property, so that the cost to it should be somewhat more than that of the narro\\er streets. In the case of arterial thoroughfares, or in that of the first street to be opened through an undeveloped territory, the effect of which will be to give access to, and to stimulate the devel- opment of a large area, the district of benefit will be corres- pondingly enlarged. Again, in the case of thoroughfares of exceptional width, ^^'hich it is proposed to treat as boule- vards, the entire city or metropolitan district will be sub- stantially benefited and should bear a proportion of the expense. In fact, the State itself may derive an advantage \\hich would justify its assumption of a portion of the cost, but the disposition to recognize such an obligation on the part of the Commonwealth is exceedingly rare, even though a great city within its limits may, through its large taxable values, contribute the larger part of the State's revenues by which its rural liighway system is maintained. In the case of parko, thiu ^amc principle might be ap- CITY PLANNING FOR DAVENPORT 53 niGM 5T- PLAT- HI LLtRAVBhUt' FROM MIGM -ST- To-MICMOLAS- AVE- •PROPOStP-OPtMlMGA^D-WIPEA^IAlG- ROSCOtr- t SAWISTOWSKY- CITY fc-nAiMt-tn- 54 CITY PLANNING FOR DAVENPORT plied. Some small parks are of strictly local benefit, and their cost could properly be placed upon the district m which they are located. In the case of street widening or the cutting- through of new streets, the local advantage is less marked, though it will always follow. The mere fact that a widening or extension is required to accommodate traffic is conclusive evidence that the street has assumed more than local im- portance. The width of the roadway as widened is not an index of its local or general importance. There may be cases where the opening of a new street of a width com- monly given to local streets and extending for a very short distance would, on account of its strategic position, l)e of very great general and of little local benefit." EXCESS CONDEMNATION. Davenport needs badly the power of "Excess Condem- nation." This would require an amendment to the State Constitution and the passage of proper laws by the State Legislature giving cities and towns the power of "Excess Condemnation." At present we are limited in opening or widening any street or boulevard to the precise land needed for the spe- cific public improvement. "Excess Condemnation" is the taking of more land than is needed for a public improve- ment and later the surplusage sold at a profit, due to the increased value of the land al)utting on the improvement. In the opening or widening of streets there are more or less small tracts, or I'emnants left, many of them of such shape and size as to be entirely unsuited for the erection of proper buildings unless, and until, these remnants hare been united with the adjoining properties, generally with those in the rear, which are thus enabled to extend out to the new line. This re-arrangement is seldom ell'ected, due CITY PLANNING FOR DAVENPORT 55 to the conflicting- interests of the property owners. It is often difficult to assess many of these irregular lots, or remnants, for benefits, though they often sell for more than the original value of the lot. * "Excess condemnation is the acquisition through con- demnation proceedings by the governing agency, for ex- ample, a city, of more land than is actually needed for a public improvement, such as boulevard, park, street or playground, in order to meet the expense of this improve- ment later bj^ the sale or lease of the surplus. The taking of too great a surplus of abutting land or property is pro- hibited and the subsequent re-sale or lease of such parts as are not needed is carefully guarded by restrictions for the protection of the improvement, such as regulations de- fining the size and shape of lots to be re-platted and the type of buildings to be erected thereon. This purpose, for which the city claims the land named is needed, must be one which will manifestly promote the convenience, health, prosperity and general welfare of the whole community, in the long run. The demand must not be made to serve the interests of a special section or a spe- cial class. It must be plainly based on the public welfare, interpreting that phrase in the light of the conditions of community life at the time. By the application of the principle of excess condemna- tion, owners whose property is condemned receive full value for their property at the time of condemnation, but not the improved value. The latter, representing a normal increase on an investment of the entire city, accrues to the city, thus frequently relieving the taxpayer from any assessment for the impi'ovement. Excess condemnation not only enables the city to make improvements, such as opening new streets, at practically no expense to the taxpayer, it also insures the success of *City Planning for Newark. 56 CITY PLANNING FOR DAVENPORT the improvement by the proper treatment of the abutting- property. Instead of a medley of handsome residences, ramshackle tenements and unsightly stores fronting a beau tiful boulevard, there are buildings which, by their corres- pondence with the whole scheme, ensure its natural devel- opment and permanence. In other words, under excess condemnation, the improvement is treated as a unit, not as an accident. Excess condemnation implies, therefore, the city's right to profit by its own investments in preference to its exploit ■ ation by a few individuals ; permanent l^enefit to the entire commiunity with injustice to none; utilization of small and irregular plats which otherwise cannot be successfully treated; the development of the improvement as a unit instead of as a series of unrelated accidents. Excess con- demnation is the first and essential step in city planning, and the sine qua non of its success. In Europe excess condemnation has had a long history. By the application of this principle, Paris built the Avenue de L"Opera, Vienna the Ringstrasse, and London has car- ried through a long series of street improvements dating from the completion of Garrick Street in 1861, when 72 9^ was realized through the sale of surplus land, to the present time. The most notal^le of these achievements was the completion of the Kingsway in 1905. This magnificent highway, cutting through some of London's most cor.- gested districts, connects North and South London through the great commercial centers of Holborn and the Strand. It was evolved from a "chaos of rookeries," at a cost of over $25,000,000, and is likel>- to involve no financial burden whatever to the taxpayers, according to the statement of the London County Council. This is particularly significarxt as it involved the expense of re-housing a large number oi:' people of the laboring class. This policy of realizing at least a part of the cost of the improvement from the sale of surplusage is known as "re- CITY PLANNING FOR DAVENPORT 57 coupment." In all the street improvements initiated by the London Council, a varying- per cent of the cost has been met by the application of this principle. In one instance, the improvement of Northumberland Avenue completed in 1876, the city made an actual profit of nearly $600,000 over the cost of land and improvement. New York, Massachusetts, Pennsylvania, Maryland, Ohio and Virginia have statutes permitting the exercise of this power. Hartford has incorporated a clause in her new charter authorizing the practice. In Wisconsin, cities of the first class have the right to purchase excess land, but not to acquire it by condemnation proceedings. Excess condemnation seems not to have been practiced in this country, except in the case of the acquisition of remnants, and even then always with the pi'opei'ty owner's consent. A successful example of the application of rem- nant taking was the acquisition by New York City of rem- nants of property condemned for the construction of the Center Street subway at Canal Street. After building the subway and retaining the necessary space for entrances, the city sold the property at auction, subject to the ease- ment and reserving the space needed for entrances, at a price so near the original purchase price that the easements and the space for station entrances involved almost a nom- mal expense. "Constitutional Amendment No. 1, adopted by the voters of the State of New York by substantial majority at the recent election, makes possible in all cities of the state the power of excess condemnation. It reads: "The Legislature may authorize cities to take more land and property than is needed for actual construction in lay- ing out, widening, extending, or relocating- parks, public places, highways or streets; provided, however, that the additional land and property so authorized to be taken shall be no niorc than sufficient to foi'm suitable building sites abutting on such park, pul)lic place, highway or street. 58 CITY PLANNING FOR DAVENPORT After so much of the land and property has been appropri- ated for such park, pubhc place, highway or street as is needed therefor, the remainder may be sold or leased," This is based upon the recent Massachusetts Constitu- tional Amendment, and will be of tremendous assistance in readjusting street systems, constructing adequate bridge and other approaches, and in the expansion of parks and playgrounds. One case in Davenport the street was to be widened by the taking of 12 feet off of the front of the lot. A house worth $800.00 projected two feet out over the new pro- posed street line. Appraisers allowed the owner damages of $800.00, the City to take the house and dispose of it by auction. If we had had the power of excess condemnation the City could have taken the whole property for about $1,000.00, had the house moved back on the lot at a small expense, and then the City could have probably I'esold the property for more than the cost appraised. In the above case the City paid $800.00 for the house and sold it at auc- tion for $25.00 to a man who moved it onto another lot, the property owner getting $800.00 and retaining the lot, on which he intends erecting a modern dwelling. The following is an example of what occurred in New- York: There was property 100 feet deep valued at $11,000. The City took 30 feet off of the front of the lot. The owner was allowed $11,000 damages. He later sold the remainder of the lot for $12,000 after the improvement was com- pleted. FINANCE. The funds required to meet all improvements are neces- sarily provided for in one of two ways; either by taxes or by borrowing money and issuing bonds. Both of these methods have their limitations ; the amount of the bonds is CITY PLANNING FOR DAVENPORT 59 PIAGCAM-SHOWIMG- Atet • l/iPt DTt PAlt SS-OhCITltS INIOWA- •ATTHeCL03eOf-- 1916- ClAGDA/^-lA^PIC ATE-3/ME-T- IM PtBTeP/HeSSPtHC APIT A,- PAVbMPODT PUBUQUE: 5lOUX-ClTV C^pap-Dapip5 Pt^AIOIAItS UATtQLOO •O OLL ACS ,20 £5. •DIAGDAM-SHOWIMGMtT l/HDeBTtrDnCrSSO^ CiTltS- IHIOWA — 1916- AllLLI0/H5 0^OOLLA05l^tDte>Te-DAlt5S- 2 3 4- Pave-ahpodt POP.-AS207^ COU/NC/L-BLUI^f-5 POR- 31 a 19 PUBUOUt POP- 39667" Ct-DAD-DAPIDS POP- 3676^ Cv'ATtDLOO 5iOUX-ClTY POP- 55960 PtSAIOI/ME-S POP- 997 57 *3fcfc ■THtLIM\'T OF-Lt-GALlHPtBTtPneSSFOCPAVtHPORT WOULP■BE^• •57.•OF•.THE:•ASSt*Stp•TAXABLfc•VA^.Ufc■OF•PnOPl^a■TY-»50,502.e.60 • piAGU AA15- •SHOW IMG DaUEtHPOUT'S •lAiPE-BTtDMtSS- •WlTH-OTHtUCnitr3lM IOWA TOACCOA-\PAAi\- Ct-Poa-T ■CITYPLAAIA1I/HGK)I2 PAVt/iPODT • Boscot-Er SaWI STOCOSKY • city E-AIGlMttQ.- 60 CITY PLANNING FOR DAVENPORT limited by the statutes establishing the debt limit, and in most cases there is a limit placed on the rate of tax. Comparing Davenport's bonded indebtedness with othei' lov^a cities, we find it is relatively small. The present bonded indebtedness of Davenport, includ- ing $243,000.00 of Levee Bonds, is only $803,500.00, or $16.67 per capita. The limit of legal indebtedness allowed is 5% of the total assessed value of taxable property — in the City of Davenport, $50,502,860.00. So it would be pos- sible for the City to go into debt for public improvements to the extent of $2,525,000.00 or an increase of $1,721,- 500.00 over the present indebtedness. TRANSPORTATION. Thoroughly economic and satisfactory transportation facilities will not be provided in any City until the street planning and street railway authorities work hand in hand in planning extensions and improvements. Some difference in opinion exists among city planners as to which is of greater importance, the street or the railway, but it does not seem that any City would make much progress if it did not have both, and as both are undoubtedly essential, they should be considered as directly related and interdependent in any scheme of town planning. Street systetms have ex- panded more or less arbitrarily without any consideration for their practical availability for purposes of general trans- portation, and the rapid transit engineers are everywhere confronted with extraordinarily complex and costly work in providing the transportation facilities now demanded by the public. A street car system should not only keep pace witli the growth of the City, but it should also keep in advance of it. Good street car service means not only a sufficient num- ber of cars in service, but also the use of the right streets CITY PLANNING FOR DAVENPORT 61 62 CITY PLANNING FOR DAVENPORT to give good connections, and that will provide the mini- mum points of interference. For rapid transportation there should be as few curves as possible. There were 14,558,000 paid fares on all the street car lines in the City of Davenport in 1917, and 12,827,078 in 1916. It will only be a short time when the City authorities cmd the street car company will have to consider plans for extending materially the car lines within the City of Dav- enport. THE GROUPING OF PUBLIC BUILDINGS. For economy of administration and no less for civic dig- nity, pride and public convenience, a City's public and semi-public buildings should usually be grouped around a common center. This not only may provide a fine open breathing- spot with restful shade and refreshing fountains, but vrill give proper perspective to each building-, and while providing for concentration of city business, effectually pre- vents congestion. Realizing in addition that such orderly and dignified ar- rangement, while stimulating civic pride, has proved of vast commercial value, many cities are paying large sums to tear down whole blocks to accomplish this purpose in a worthy manner. Our present City and County buildings, Postoffice, etc., ai'e of ample size for manj^ years to come, so it is not deemed necessary at this time to suggest a plan for the grouping of Public Buildings, as the construction of new buildings is not contemplated. CITY PLANNING FOR DAVENPORT 63 64 CITY PLANNING FOR DAVENPORT BATHINC; BEACH. In a City the size of Davenport, it is surprising that no successful effort has been made to provide a bathing beach. Situated on the bank of the mighty Mississippi River yet we have absolutely no facilities for this form of sport and recreation for the people of Davenport, The so-called bath- ing beach at Suburban Island is a poor imitation, badly lo- cated down-stream, the water being polluted by the many sewers flowing into the river above. Many sicknesses have been reported as coming directly from bathing there. Aside from the filthy condition of the water, it is dangerous be- cause of the swift current, and is unsatisfactory due to varying stages of the river. The nearest natural bathing beach is at Campbell's Is- land reached after a one and one-half hour, ten-mile trolley ride. The time and trouljle necessary to reach this place makes it unpopular with the majority of Davenporters. A bathing beach could easily be constructed down on the levee front between Gaines and Scott Street at a nomi- nal expense, which would be of easy access to all the people of Davenport. This beach, if operated by either the Levee Commission or the Park Board, as is done in other cities, would be a source of revenue, and would pay for itself in two years, if necessary. To anyone who has witnessed the activities at the wad- ing pools in either Vander Veer or Fejervary Parks, on a hot day, it need not be argued that a bathing beach for the grown-ups would be populai'. The problem will be to pro- vide one that will be big enough to accommodate the crowds. The cost is estimated at about $50,000, or one dollar per capita — a small sum to spend for such a worthy cause. 66 CITY PLANNING FOR DAVENPORT ANOTHER BRIDGE NEEDED. The three cities, Davenport, Rock Island and Moline, situated as they are, really one unit with opposite frontage of several miles on the Mississippi River, and with only one way of communication, a narrow bridge allowing only one line of travel each way, will need, if not now, in the near future, another bridge. An ideal location to best serve the business districts of both cities would be from the foot of Ripley Street in Davenport to Fifteenth Street in Rock Is- land. As a general proposition, drawbridges should be so close together as to virtually operate as one bridge, or they should be so far apart as to permit of a boat or tow ma- neuvering between the two bridges, in order to make land- ings at Davenport or Rock Island. A High Bridge, with long approaches would be the less objectionable to navigation interests, and would do away with any delays to traffic over the bridge occasioned by boats passing through the draw. A tunnel under the river bed through solid rock, would be feasible, and no doubt less expensive than a bridge, which, exposed to the elements, needs constant inspection and repairs. PARKS AND PLAYGROUNDS. Davenport has at present eight City owned parks valued at $1, 007,500.00 distributed as shown on accompanying map. The total area of parks at present is 107. 15 acres, or, ap- proximately, one aci e of park for every 500 inhabitants. "Study of the sul)ject of piivk ai'eas has led experts to announce as a hand "rule of thumb" that the subdivided portions of a city ought to have neighborhood parks, if pos- sible, not more than one-half a mile from any residence, and that this area ought to be equal to 5 per cent of each divi- sion of the city. ■ Probably in no city are the parks so dis- CITY PLANNING FOR DAVENPORT 67 o J. > 3 o d r''<- "J" "in o ^ ^ t i " Jo a ?- - ,i5 tf H a r, " rT u r D h _) il d ^ Jj $ ? ^ a. ^ > a o ? 5 h 68 CITY PLANNING FOR DAVENPORT tributed because too often the acquisition of parks is left until the only available land is far from the densely popu- lated districts of the city." Our present city area is 5625 acres. According to the above rule, five per cent of this area for parks would be 281 acres, or one acre of park for every 200 inhabitants, so at the pi'esent date our park area is below the standard. The Board of Park Commissioners has well under way the con- demnation of Suburban Island for park purposes. This is- land has an area of 271.5 acres, and when acquired, the total acreage in City Parks will be 378.95 acres, making one acre of park for every 140 people, which will compare very favorably with other American cities. TABLE OF PAPJvS IN OTHER CITIES. Population Population per Name of City. 1910. acre of parks. Kansas City, Mo 248,381 120 Seattle, Wash 237,194 371 Denver, Colo 213,381 205 St. Louis, Mo 734,667 268 Hartford, Conn 98,915 147 Lynn, Mass 89,330 84 Memphis, Tenn 131,105 134 St. Paul, Minn 214,744 153 The only criticism of our present Park System is that they are not sufliciently scattered, or of sufficient number, to serve the whole city. Experts have agreed that one-half mile is the distance adults will walk for recreation and pleasure, and one-quarter mile the limit that children will walk to public playgrounds. Using this as a basis two-thirds of the City of Daven- port is unserved by park facilities. (See Map). Every residence should be within one-half mile of a public park 70 CITY PLANNING FOR DAVENPORT 01- open space. Suburban Island will make a beautiful park, but it is out of walking distance. Practically everyone that will visit this park will have to go by either street car or automobile. We should have more small parks scattered so as to be within easy walking distance of all our citizens. The proposed park along Duck Creek, as suggested by John W. Alvord, would add about 340 acres more for park purposes. The following is from his report to the City Council on the Duck Creek Sewage problem: "One of the large problems confronting the City of Davenport today is how it may best provide for the rapid development of the Duck Creek District; that is, the area north of Locust Street and extending across Duck Creek for half a mile or more. This area is the logical district for Davenport to expand into next; it has a beautiful rolling topography and is the nearest to the center or business district of any undevel- oped area around the outskirts of Davenport. There is no doubt but that if it is supplied with sewers and properly laid out, this area will quickly become one of Davenport's residential communities. The town planning of such an area should ))e done after a well defined, carefully thought out, and conscientiously ex- ecuted general design ; it should not be left to the mercy of a large number of incoordinated real estate promoters' plans, which would only result in a series of rectangular layouts to secure a maximum number of lots without re- gard to accessibility, traffic, topography, or the cost of drainage or sewage construction. The future more than the present should be kept in mind and be the governing factor for which improvements should be planned. This area presents an unusual oppoi'tunity in street planning, and a study of its possibilities shows that pro- visions for a long narrow park ^vjth drives and lagoons can be usefully laid out on land otherwise valueless for residen CITY PLANNING FOR DAVENPORT 71 TErAATH- 51- •IMPROVE Me°A1T -OF-'PADK- T tAiTM-ST AMP -SyuVAM-AVEr- •CITN • t-MG I Mfc ttt'S- Of-»-\Ct- •ScALfc- l'- SO' F-f-B 21, 191a ' ^ 72 CITY PLANNING FOR DAVENPORT tial development on account of frequent flooding from fresh- ets in Duck Creek. Duck Creek is a typical meandering- prairie stream hav- ing flat slopes and ordinarily low velocities of flow. During flood it overflows its banks and flows over a flood plain sev- eral hundred feet wide. In a plan of development for this area, it is evident that attention must be given to the prob- lem of handling the flood flows so that the elevation of the flood water may be lowered and the flood plain confined to a narrow belt along the creek. It is impiacticable at this time at least, to build a con- duit to carry the flow, and the proV)lem, therefore, reduces to how to carry the flood water with the least injury to the property and with as little expense as possible. It is be- lieved that the creek should be straightened, and in that way a steeper grade secured, but even with this increased capacity, overflowing of the low land will occur, and it is suggested that the city purchase and dedicate a strip along the creek about 600 feet in width for park purposes. If the city does not purchase this strip of land for park purposes, the creek will never be straightened, and grad- ually the property owners will encroach upon the flood plain until an unusual freshet occurs with consequent loss of property and perhaps life. Now is the time for Davenport to seize this opportunity. It would be practicable to build low dams in the creek, which would create lagoons, and with drives flanking the creek on either side, a beautiful parkway would be reserved for public use. The land cannot be safely used for residen- tial purposes, owing to its danger of flooding, and an ex- penditure of $50,000 at the present time in this manner will enable the City of Davenport to start an outer boule- vard and pai'k system which will be a large asset to the future residents of this district." CITY PLANNING FOR DAVENPORT 73 APPENDIX. PROPOSED LAW AUTHORIZING THE ESTABLISH- MENT OF BUILDING LINES. An Act, to Authorize the EstabHshment of Building- Lines on Streets in Cities Which Now Have, or May Hereafter Have 30,000 or More Inhabitants, and to Provide the Manner in Which Damages and Benefits May Be De- termined and Paid. Be It Enacted by the General Assembly of the State of Iowa, as follows: Section 1. The word "street," as used in this Act, means any public highway, esplanade, boulevard, park- way, square or street, or any part or side, or part of the side, of any of the same. Section 2. It shall be lawful for any city now having, or which may hereafter have, 30,000 or more inhabitants, to provide by ordinance for the establishment of buildin^i- lines on any public street or highway. Such building line shall be established by the same procedure as that provided by law in such city for the acquiring of land for the opening of streets. After the establishment of any such line no building or other structure shall be erected, I'econstructed or substantially repaired, and no new buildings or other structure or part thereof shall be re-erected within said lines so established. Section 3. Whenever and wherever a building line shall be established as aforesaid, all structures extending within such building lines shall be required to conform to the new line within a period of not more than 25 years from the time of establishing said lines; such time to be provided in the ordinance providing foi- the establishment of such line. At the expiration of the time limit in which all structures are so required to conform to the new building line, the proper municipal authorities shall proceed in the manner 74 CITY PLANNING FOR DAVENPORT then provided by law relating- to condemnation proceedings by such cities to remove all structures then within such line; provided, however, that all owners of property so affected shall receive due notice and hearing in the manner then provided by such law in the determination of the addi- tional damages sustained by the removal of such structure then within the building line. Section 4. In payment for the real estate, improve- ments and easements to be taken and acquired for the es- tablishment of such building lines as are herein provided and of the damages sustained thereby, benefits shall be assessed and collected in the same manner as provided by law in proceedings in any such city for the acquiring of lands for the openings of streets. Section 5. This Act shall not limit or abridge any power now or hereafter conferied by law on such cities to estal)lish building hues, or take any property or any intercut therein by eminent domain. PROPOSED CONSTITUTIONAL AMENDMENT GRANT- ING POWER OF EXCESS CONDEMNATION. Submitting to the Qualified Voters of the State of Iowa an Amendment to the Constitution Thereof Granting to the State, Municipal Corporations and Other Political Subdivisions of the State, the Power of Excess Condem- nation. Section 1. Providing for excess condemnation by the State, municipal corporations and other political subdivis- ions of the State. Be it Resolved by the House, the Senate concurring therein: At the general election to be held an amendment to the Constitution of Iowa shall be submitted to the qualified voters of the State in the following words: Whenever the State, a mu- nicipal corporation or any political subdivision of the State CITY PLANNING FOR DAVENPORT 75 authorized by law to take private for public use, shall ap- propi-iate or condemn any private property for any public use whatsoever, or when the State, a municipal corporation or any political subdivision of the State authorized by law to take private property for public use in furtherance of such public use, shall provide for any public work or im- provements which shall damage or benefit private property, the State, municipal corporation or any political sul)division of the Stale authorized by law to take private property for public use, may provide for the appropriation in fee by the State, municipal corporation or other political subdi- vision of pi'ivate property, or any easement or use therein in excess of that actually required for such specific purpose, under such conditions as shall be prescribed by the Legis- lature or General Laws of the State, or as prescribed by the ciiarter and ordinance provisions of any such municipal corporation operating under special charter, and such ex- cess property, or right therein, so acquired by the State, municipal corporation or other political subdivision, may be sold, leased or otherwise disposed of by it, under such terms and conditions as may be prescribed by the laws of the State and the charter and ordinance provisions of any municipality, corporation oi' other political subdivision, and this right of the State, municipal corporation, or other political subdivision to acquire and sell such excess prop- erty, is hereby declared to be a pul:»lic use; provided, how- ever, that such excess shall be condemned, and compensa- tion therefor ascertained in the same proceeding, and in the same manner as near as may be, as the private prop- erty, easement or use actually needed, as aforesaid; and provided, further, that the value of such excess shall be paid for by the State, municipal corporation, or other polit- ical subdivision, as the case may be. 76 CITY PLANNING FOR DAVENPORT PROPOSED LAW AUTHORIZING CREATION OF CITY PLAN COMMISSION. An Act to Provide for City Plan Commissions in Cities, Towns and Villag-es of This State, Which Have a Popu- lation of 10,000 or More, Providing Funds for Same, and Defining the Powers of Such Commissions. Be It Enacted by the Senate and General Assembly of the State of Iowa: 1. That any city, town or village having a population of 10,000 or more is hereby authorized to appoint a City Plan Commission. 2. The City Plan Commission shall consist of six citi- zens, all of whom shall reside in such municipality, and who shall be appointed by the Mayor, each for a term of three years; the Mayor, City Eng-ineer and Commissioner of the Board of Public Works to be ex-officio members of the Commission; provided, however, that in the first in- stance two of the appointments shall be for three years, two for two years and one for one year. Appointments Lo fill vacancies shall be for the unexpired term only. 3. Such Commission shall serve without pay, and it shall be the duty of such Commission to prepare, from time to time, plans for the systematic development and better- ment of such municipality as a place of residence or for business. It shall have the power and authority to employ clerks and a secretary, and to pay for their services, and to pay for such other expenses as such Commission may lawfully incur, including the necessary disbursements in- curred by its members in the performance of their duties as members of said Commission. The said City Plan Commission may consider and inves- tigate any subject matter tending to the development and betterment of such municipality, and make recommenda- tions as it may seem advisable concerning the adoption CITY PLANNING FOR DAVENPORT 77 thereof to any department of the municipal, government, and for any purpose make, or cause to be made, surveys, plans or maps. Before final action shall be taken by any municipality or department thereof on the location and design of any public building-, statue, memorial, park, parkway, boule- vard, playground, public grounds or bridge, such question shall be submitted to the City Plan Commission for investi- gation and report. 4. All plans, plats or re-plats of lands laid out in lots or plots, and the streets, alleys, or other portions of the same intended to be dedicated to public or private use, shall first be submitted to the City Plan Commission and ap- proved by it, before it shall be recorded. Such plan, plat, or re-plat having indorsed thereon the approval of the City Plan Commission shall then be submitted for action to the Mayor and City Council. It shall be unlawful to receive or record such plan, plat or re-plat in any public office, unless the same shall bear thereon, by indorsement or otherwise, the approval of the City Plan Commission, and the Mayor and City Council. The disapproval of any such plan, plat or re-plat by the City Plan Commission shalj be deemed a refusal of the proposed dedication shown thereon. 5. The City Plan Commission may prepare a plan for regulating by districts the height, bulk, area and use of ail buildings in the municipality, in the interests of public health, safety and general welfare. 6. It shall be lawful for the board or body having charge of the finances of any city, town or village, as afore- said, to appropriate money for the expenses of such Cit^ Plan Commission. The board of estimate and apportionment shall have power to regulate and limit the height and l)ulk of l)uildings hereafter erected and to regulate and determine the area of yards, courts and other open spaces. The board may 78 CITY PLANNING FOR DAVENPORT divide the City into districts of such number, shape and area as it may deem best suited to cany out the purposes of this section. The regulations as to the height and bulk of buildings, and the areas of yards, courts and other open spaces shall be uniform for each class of buildings through- out each district. The regulations in one or more districts may differ from those in other districts. Such regulations shall be designed to secure safety from fire and other dan- gers, and to pi'omote the public health and welfare, includ- ing, so far as conditions may permit, provision for adequate light, air and convenience of access. The board shall pay reasonable regard to the character of buildings erected in each district, the value of the land, and the use to whicli it may be put, to the end that such regulations may pro- mote public health, safety and welfare and the most desir- able use for which the land of each district may be adapted and may tend to conserve the value of buildings and en- hance the value of land throughout the city. The board shall appoint a commission to recommend the boundaries of districts and appropriate regulations to be enforced therein. Such commission shall make a tentative I'eporc and hold public hearings thereon at such times and places as said board shall require before submitting its final re- port. Said boai'd shall not determine the boundaries of any district, nor impose any regulation until after the final le- port of a commission so appointed. After such final report, said board shall afford persons interested an opportunity' to be heard at a time and place to be specified in a notice of hearing to })e published for ten consecutive days in the City Record. The board may from time to time after pub- lic notice and hearing amend, supplement or change said regulations or districts, but in case a protest against a pro- posed amendment, supplement or change be present, duly signed and acknowledged by the owners of tv/enty per centum or more of the frontage proposed to be altered, or by the ov/ners of twenty per centum of the frontage imme- CITY PLANNING FOR DAVENPORT 79 diately in the rear thereof, or by the owners of twenty per centum of the frontage directly opposite the frontage pro- posed to be altered, such amendment shall not be passed except by a unanimous vote of the board. The board of estimate and apportionment may regulate and restrict the location of trades and industries and the location of buildings designed for specified uses, and may divide the city into districts of such num})er, shape and area as it may deem best suited to carry out the purposes of this section. For each such district, regulations may be imposed designating the trades and industries that shall be excluded or subjected to special regulations and desig- nating the uses for which buildings may not be erected oi altered. Such regulations shall be designed to promote the public health, safety and general welfare. The board shall give reasonable consideration, among other things, to the character of the district, its peculiar suitability for particu- lar uses, the conservation of property values, and the direc- tion of building development in accord with a well consid- ered plan. The board shall appoint a commission to recom- mend the boundaries of districts and appropriate regula- tions and restrictions to be imposed therein. Such commis- sion shall make a tentative report and hold public hearings thereon before submitting its final report at such time as said board shall require. Said board shall not determine the boundaries of any district, nor impose any regulations or restrictions until after the final report of a commission so appointed. After such final report said board shall aflford persons interested an opportunity to be heard at a time and place to be speci- fied in a notice of hearing to be published for ten consecu- tive days in the City Record. The board may from time Lo time after public notice and hearing amend, supplement or change said regulations or districts, but in case a protest against a proposed amendment, supplement or change be presented, duly signed and acknowledged by the owners of 80 CITY PLANNING FOR DAVENPORT twenty per centum or more of the frontage proposed to be altered, or by the owners of twenty per centum of the front- age immediately in the rear thereof, or by the owners of twenty per centum of the frontage directly opposite the frontage proposed to be altered, such amendment shall nor be passed except by a unanimous vote of the board. ACT OF IOWA STATE LEGISLATURE AUTHORIZING RESTRICTED RESIDENCE DISTRICTS IN CITIES. An Act, Authorizing Cities of the First Class, Including Cities Under Commission Form of Government, and Cities Under Special Charter, to Designate and Estab- lish Restricted Residence Districts and to Prohibit the Erection, Alteration, and Repairing of Buildings There- on, and Therein, for Certain Prohibited Purposes. Section 1. Restricted Residence Districts — Petition. — Cities of the first class, including cities under commission form of government and cities under special chai'ter may, and upon petition of sixty per cent of the owners of the real estate in the district sought to be affected, residing in sucii city, shall designate and establish, by appropriate proceed- ings, restricted residence districts within its limits. Section 2. Ordinance, Scope of. — In the ordinance des- ignating and establishing such I'estricted residence district, every such city is hereby empowered to provide and estab- lish reasonable rules and regulation for the erection, recon- struction, altering and repairing of l)uildings of all kinds, within said district, as well as the use and occupation of such buildings; and to provide that no building or other structure, except residences, school houses, churches, and other cimiliir structures shall thereafter be erected, altered or repaired, or occupied without first securing from the city council of such city a permit therefor, such permit to be is- CITY PLANNING FOR DAVENPORT 81 sued under such reasonable rules and regulations as may in said ordinance be provided. Section 3. Ordinance — Violations. Any Iniilding or structure erected, altered, repaired or used in violation of any ordinance passed under the authority of this act, shall be deemed a nuisance, and every such city is hereby em- powered to provide by ordinance for the abatement of such nuisances, either by fine or imprisonment, or by action in the district or municipal court of the county in which such city is located, or by both ; such action to be prosecuted in the name of the city. Section 4. Publication Clause. This act being deemed of immediate importance, shall take effect and be enforced from and after its publication in the Des Moines Register, and the Des Moines Capital, both newspapers published in Des Moines, Polk County, Iowa. ^^\ ,\o^' ,^.^ ^^^^^ ^^ .ov \-v^. \^^. .v^^^: a M Q 4 . •'.,"J«-ai»k.>t \e,.-.vj. --:■•»«■■ ' \^,.. ^^:^, A^^^, ^'^S ,\o^ 0^.: M■^'