PART V. SPECIAL REPORTS 123

The Market 123

The Hump Cut 128

The City and the Allegheny River Bridges 133

_Letter of Transmissal_

November 26, 1910. MR. T. E. BILLQUIST, Chairman, Committee on City Planning. Pittsburgh Civic Commission.

_Dear Sir_:--I have the honor to submit herewith a report upon desirable improvements in the main thoroughfares and the down town district of Pittsburgh, prepared in accordance with the instructions of your Committee and in consultation with its members.

In submitting the report I wish to take the opportunity of expressing my appreciation of the attitude of your Committee throughout the twelve months during which the investigations and the preparation of the report have continued, and of the part which the keen interest of its members and their helpful criticism have had in making the report a useful one.

The closeness of the connection between the problems discussed in this report and those of the Traction System, which have been concurrently studied by Mr. Bion J. Arnold, has involved frequent conferences with Mr. Arnold and his assistant, Mr. George A. Damon, as well as with Mr. John P. Fox, engaged by the Mayor for a study of the same problem; and the information and suggestions furnished by them have been of great assistance. In the preparation of the report on the Allegheny River bridge problems, submitted jointly by Colonel T. W. Symons and myself and printed in Part V of this report, information furnished by Colonel H. C. Newcomer, in charge of the local office of U. S. Government engineers, has been of the utmost value. I am also greatly indebted to the Flood Commission, and especially to Mr. F. K. Morse, Chairman of the Engineers' Committee of that Commission, for the use of maps and other data gathered by them.

It would have been impossible to secure an intelligent basis for the conclusions and suggestions presented in this report without the great quantity of detailed information and other help furnished by the Board of Assessors, the Departments of Public Safety, of Public Works and of Law, especially through Mr. N. S. Sprague, Superintendent of the Bureau of Construction, Mr. Chas. A. Finley, Superintendent of the Bureau of City Property, and Mr. Lee C. Beatty, First Assistant City Solicitor. Throughout the investigation and the preparation of this report I have had the benefit of illuminating and stimulating conferences with Mayor Magee.

The actual gathering of necessary information from the above and other sources, the field studies and the preparation of nearly all of the drawings accompanying the report, were carried on under the direction of my personal assistant, Mr. Edward C. Whiting, with the active help of Mr. Allen T. Burns and Mr. Sherrard Ewing, General Secretary and Assistant Secretary of the Commission, to all of whom my hearty thanks are due.

My friend and colleague in the study of several city problems elsewhere, Mr. Arnold W. Brunner, of New York, has given me valued counsel in regard to the possible architectural treatment of the proposed Civic Center, and has been good enough to contribute to the report the interesting sketches on pages 13 and 14 for a possible municipal building framing the east side of the proposed square.

As explained at length in the body of the report, the work has been greatly handicapped and limited in its scope and effectiveness by the entire lack of accurate detailed maps of the city and surrounding country. This lack would have rendered the report almost wholly impossible had it not been for the very useful topographical map of this part of Pennsylvania prepared and published by the United States Geological Survey. Not only have my studies of the outlying thoroughfares been based almost wholly upon this map, but the Survey has courteously permitted the use of transfer sheets from their original plates for the thoroughfare map published in this report.

Respectfully submitted,

(Signed) FREDERICK LAW OLMSTED.

_City Planning and the Cost of Living in Pittsburgh_

PURPOSE AND PREPARATION OF THE REPORT

A factor in the cost of living in Pittsburgh is stated graphically in the frontispiece of this report. These drawings also suggest, from Pittsburgh's own provision for some of her needs, a method to decrease this cost. All delays and congestion of traffic, such as illustrated on Fifth Avenue and East Ohio Street in the frontispiece and as shown by illustrations in this preface and the introduction, add to the expenses of manufacturers, the costs borne by wholesale merchants, and the prices charged consumers by retail dealers; in short inadequate traffic facilities in Pittsburgh, as in other cities, add to the cost of doing business and of living.

The map at the end of this preface portrays a second factor influencing the cost of living. This map shows how much land Pittsburgh has, both used and still unused, for business, manufacturing and residence districts and for means of communication, i. e., streets between these districts. A glance also indicates the almost unparalleled problems of this city because of the large amount of territory 25 per cent or over in grade. For land of this grade is not only unused for buildings and streets, but also often erects barriers to the natural growth and spread of business, manufacturing and residence sections. Consequently, Pittsburgh must exercise greater ingenuity and foresight than other cities to prevent such congestion of all these activities as would increase rents of all kinds abnormally. This would mean again an added burden to the ultimate consumer for all life's necessities.

In addition, tax rates are chronically assailed as a charge on the cost of living. But taxes are spent largely for improvements to furnish adequate streets, to provide for the city's spread and growth and to carry out other improvements which alone can make life livable and desirable in a modern city. In fact, "taxes may actually diminish the cost of living, if the city's money is spent economically in the performance of necessary co-operative service." But taxes are often wasted because the improvements are made piecemeal, by patchwork, with no reference to future needs. Taxes for such improvements should be made only as a part of a far-sighted and comprehensive plan. Then, without waste, work done at the present will fit into the work to be done in the future.

By offering solutions for the above and many other similar problems this report demonstrates that practical city planning--or better, replanning--is part of the world-wide conservation movement. City planning is municipal conservation. Pittsburgh, like other cities and to a greater extent than most of them, faces the problem of using her financial and territorial resources to the utmost. The "utmost" means making these resources go the furthest in securing ample streets for transportation and traffic, and easy communication between all parts of the city; in providing for the cheap distribution of food, fuel and clothing; in making all residence districts as nearly as possible equally healthful, un-congested, and provided with trees and yards; in establishing for all residents public accommodations for recreation and leisure; and in maintaining and developing adequate districts for retail and wholesale trade, manufacture and commerce.

The Pittsburgh Civic Commission has conducted its city planning with the above ends in view, and purposes by this report to contribute to the economy, convenience, practicability and attractiveness of Pittsburgh's development and growth. The Commission began this work by retaining Bion J. Arnold, John R. Freeman and Frederick Law Olmsted to make a report on the outline and procedure of city planning for Pittsburgh. This report stated the scope and methods for investigations on the following subjects:

Steam Railroads

Water Transportation

Electric Railroads

Street Systems

Public Lands and Buildings

Water System

Sewerage System

Control over Developments on Private Property

Smoke Abatement

Building Code

Provision has been made by which several sections of this program are already under way. The city administration has been foremost in appreciating the necessity for just such investigations as the report recommended. Expert advice at this period in our civic advance is imperative if this city is to take its proper rank among American cities. Upon completion of the preliminary report Mayor Magee undertook to have studies made upon the electric and steam railroads, and requested that the Commission release to the city Mr. Bion J. Arnold for this purpose. This the Commission gladly did, and since then Mr. Arnold has conducted these investigations for the city along the lines laid down in this preliminary report. The preparation of a building code as suggested in this report was authorized by the city councils at the request of the Mayor, and the latter appointed a competent building code commission, and an appropriation has been made for the carrying out of this part of the City Plan. Mayor Magee also secured the retention of Mr. Allen Hazen of New York, who is making such a comprehensive study of an adequate sewerage system as was suggested in this report. Likewise, the Mayor has planned to carry out the studies for the water system.

The Commission itself continued the retention of Mr. Frederick Law Olmsted to make a study of a comprehensive main thoroughfare system for the center of the city and to the principal residence and manufacturing districts and the surrounding boroughs. Mr. Olmsted was also asked to report upon the locations of the main public buildings and grounds of the down town district. This report was to cover both immediately necessary improvements and a comprehensive improvement program for the next twenty-five years. Thus could present improvements be made economically because planned with reference to those of the future.

The Commission presents herewith Mr. Olmsted's report on these subjects, made under the supervision of the Committee on City Planning. The members of this Committee have given months of time from their private business to the consideration of every detail of this report; and this committee, with Mr. Olmsted, has given to the report its value as a contribution to the movement for the Greater and Better Pittsburgh.

PITTSBURGH CIVIC COMMISSION.

PITTSBURGH

MAIN THOROUGHFARES AND THE DOWN TOWN DISTRICT

_Introduction_

There are two main divisions of City Planning. One looks to the rearrangement and improvement of what has already been unwisely done through lack of proper planning or through force of adverse circumstances of any sort. The other looks to the wise and economical layout of what still remains to be done, especially at the outskirts of the city where the major part of the city's growth is bound to occur, and where the city plan is daily taking shape out of nothing, whether it is intelligently designed or not.

Prevention is cheaper than cure, and a moderate expenditure of effort and money will accomplish far greater results in the long run if applied to the wise control of the growing suburban districts, where new streets are constantly coming into existence, than if applied to costly remodeling of the older parts of the city; but the latter is sometimes of the utmost importance, and is of direct interest to a much larger number of citizens than the prosaic work of controlling scattered suburban development. In accordance with the instructions of the Commission this report deals primarily with certain problems of remodeling in the down town district, and with the improvement of the main thoroughfares between this, the heart of the city, and the more important outlying districts.

To carry out at once all the recommendations of this report would, even if it were possible, impose an altogether unreasonable financial burden upon the City and the contiguous boroughs. Such procedure is unnecessary and indeed impossible. But in many cases there is a crying need for the improvement already, or it is of such a nature that any delay is apt to involve a considerable increase in the cost and the difficulty of carrying it out.

The most urgent general improvement of this sort is the establishment of new building lines on all main thoroughfares which it is proposed to widen; this in order to anticipate, as far as possible, the construction of new and costly buildings on the present street lines.

Of the specific recommendations made in this report it seems advisable to give the earliest attention to the following:

=In the Down Town District= Page

The cutting of the Hump and the widening of certain streets in the Hump District as recommended 10

The extension of Grant Boulevard to Webster Avenue 11

The acquisition of land required for the proposed Civic Center 11

The widening of Diamond Street 17

The widening of Market Street 17

The relocation of the Market 18

The new connection between Penn and Liberty Avenues at Eleventh Street 7

The elimination of the Try Street grade crossing 10

The proposed bridge and tunnel to the South Hills 49

=Along Outlying Thoroughfares= Section

Sixteenth Street bridge 1 56

Twenty-eighth Street grade crossings 2 57

Thirty-third Street improvement 3 57

Forty-third Street bridge 6 59

[1]Haights Run bridge 9 59

Hazelwood grade crossing 18 64

[1]Baum Street improvement 20 65

Center Avenue improvement 21 65

[1]Hamilton Avenue extension and connection with Kelly Street 22 65

Larimer Avenue extension 24 66

Batavia Street 33 71

Wilkinsburg grade crossings 34 71

Wilkinsburg-Edgewood connection 35 71

Rankin improvement 38 72

Duquesne bridge 51 75

California Avenue and Brighton Road extension 52 75

Lowry's Lane 56 77

East Ohio Street paving 57 77

Sycamore Street grade crossing and Bridge Street improvement in Etna 60 78

Allegheny River Boulevard as far as Main Street connection 61 79

Main Street grade crossing in Sharpsburg 62 79

Carson Street 64_b_ 80

Chartiers Avenue grade crossing 65 80

Crafton-Carnegie connection 69 81

Washington Avenue improvement 72_a_ 82

Thoroughfare to Beechview 73_a_ 83

Carrick connection from South Hills tunnel, probably Climax Street route 75 84

Twenty-second Street bridge approach--South Side 80 86

In the following cases the actual improvements are not so urgent, but the new street locations should be established before expensive developments, which are apt to occur at any time, shall interpose serious new difficulties in the way of the proposed improvements:

Section Page

Penn-Liberty connection at Howley Street 5 58

Fifth Avenue--Center Avenue connection at Soho 12 61

Ellsworth Avenue extension 13 62

Forbes Street extension 39 72

Etna improvement 59 78

For other specific thoroughfare improvements recommended in this report there appear to be no very urgent demands at present. Generally speaking they should be carried out only as some special opportunity offers, or in anticipation of some obstructing development which cannot now be foreseen, or as a growing traffic shall demand.

But a thing of greater consequence than any one of these specific improvements, a thing of vital import to every taxpaying citizen of the present and future City, is the making of comprehensive and accurate topographical maps. It is only on the basis of such maps that all municipal engineering, and indeed much other work, directly managed by the City, can be planned and carried out with proper economy and efficiency. It is only on the basis of such maps that improvements in the city--details of city replanning--can be most economically determined. And in the outlying districts, where the future city is being built, such maps are absolutely essential to an intelligent planning or control which will avoid the heavy penalties that follow haphazard city growth, especially in such a hilly region.

FOOTNOTES:

[1] Already provided for, wholly or in part, in the current bond issue.